Country Report for BURUNDI Cover Photo: Aude Rossignol

United Nations Development Programme democratic governance

Promoting Gender Equality in Electoral Assistance: Lessons Learned in Comparative Perspective Country Report for BURUNDI Cover photo: Aude Rossignol

MAIN TEXT: Page 2: UN Photo/Martine Perret Page 3: UN Photo/Martine Perret Page 5: Gabrielle Bardalle Page 9: UN Photo/ Patricia Esteve Page 10: UN Photo/Marco Dormino Page 19: Gabrielle Bardalle Page 21: Gabrielle Bardalle Page 23: Gabrielle Bardalle Page 27: UN Photo/Martine Perret Page 30: Gabrielle Bardalle Page 32: Gabrielle Bardalle Page 34: UN Photo/Martine Perret Page 37: UN Photo/Basile Zoma

1. INTRODUCTION...... 1

2. Background of Political Participation in Burundi...... 2 2.1. Burundian Political Context and Institutional Overview...... 2

2.2. Situational Analysis of Women’s Political Participation...... 4 Impact of Conflict and Ongoing Insecurity...... 4 Burundian Women during the Transition...... 5 Burundian Women in Politics...... 7

3. International Assistance to Women’s Political Participation in the 2010 Elections...... 10 3.1. International Support and the 2010 Elections Process...... 14 Electoral Reform...... 18 Mainstreaming Gender into the CENI...... 19 Registering Women Voters...... 20 Civic Education...... 22 Election Observation...... 22 Media...... 23 Preventing and Mitigating Election Violence...... 24

3.2. Support to Women Candidates and Parliamentarians...... 25 Women Candidates...... 26 Women Parliamentarians...... 27 Convening Political Parties to Advance Gender Equality...... 30 Long-Term Support to Women’s Civil Society...... 31 Mainstreaming Gender in State Institutions...... 31 Table of Contents (cont’d)

4. LESSONS LEARNED...... 32 4.1. Good Practices...... 32 Long-Term Engagement with Women’s Movement...... 32 Synergy of the Donors...... 32 Political Actors...... 33 Capitalizing on Women as Peacemakers...... 33 Ongoing Legal Review and Oversight...... 33 Use of International Instruments and Regional Targets for Women...... 33 Gender Equality in the CENI...... 34 Rapid Response for Women during Post-Conflict Transition...... 34 Developing UNDP’s Capacities for Gender Mainstreaming...... 34

4.2. Further Opportunities...... 35 Engaging with Perceptions of Women’s Public Roles...... 35 Local Elections...... 35 Supporting Gender through the CENI...... 35 Responding to Boycott Dynamics...... 36 Understanding the Impact of Women Elected to Office...... 36 Incentives for Parties and Candidates...... 36

5. CONCLUSION...... 37

country report for BURUNDI List of Acronyms

ABELO Association Burundaise des Elus CERFOPAX- Locaux (Burundian Association of Chaire Centre de Recherche et de Formation Communal Councilors) pour la Paix ABR Association Burundaise des CFI Canal France International Radios-diffuseurs (Burundian CNDD-FDD National Council for the Defence Association of Broadcasters) of Democracy–Forces for the Defence ACCORD The African Center for the Constructive of Democracy Resolution of Disputes COSOME Coalition de la Société Civile pour le ADC-Ikibiri Democratic Alliance for Change Monitoring Electoral AFEPABU Association des Femmes CSO Civil Society Organization Parlementaires du Burundi DDR disarmament, demobilization AFJB Association des Femmes Juristes and reintegration du Burundi DPA Department of Political Affairs AFJO Association of Women Journalists DPKO Department for AFSC American Friends Service Committee Peacekeeping Operations AWEPA Association of Europeans EAD Electoral Assistance Division (DPA) Parliamentarians for Africa EISA Electoral Institute for Sustainable BINUB United Nations Integrated Democracy in Africa Office in Burundi EMB Electoral Management Body BNUB United Nations Office in Burundi EVER Elections Violence Education BRIDGE Building Resources in Democracy, and Resolution Governance and Elections FRODEBU Front for Democracy in Burundi CAFOB le Collectif des Associations et GPECS Global Programme on ONGs Feminines du Burundi Electoral Cycle Support CECI Independent Communal ICGLR International Conference on the Great Election Commission Lakes Region CEJP Episcopal Commission for IFES International Foundation Justice and Peace for Electoral Systems CENI National Independent IPU Inter-Parliamentary Union Electoral Commission MDPHG Ministre des Droits de la Personne CEPI Independent Provincial Humaine et du Genre Electoral Commission LiST OF ACRONYMS (cont’d)

MOU Memorandum of Understanding RFI Radio France International MSD Movement for Solidarity SFCG Search for Common Ground and Democracy SOFEBA Solidarité Femmes Parliamentaires NDI National Democratic Institute SPPDF Synergie des Partenaires pour la NGO Non-Governmental Organization Promotion des Droits des Femmes NIC National identification cards (Synergy Partners for the Promotion of Women’s Rights) ONUB United Nations Operation in Burundi UN United Nations PACAM Plan d’Action Commun d’Appui aux Médias UNDP United Nations Development Programme PACE Projet d´Appui au Cycle Electoral du Burundi UNHCR United Nations High Commission for Refugees PALIPEHUTU- FNL Party for the Liberation of the Hutu UNFPA United Nations Population Fund People-National Forces of Liberation UNIFEM United Nations Development Fund PBF Peacebuilding Fund for Women (now: UN Women) RFEL Réseau des femmes élues locales UPRONA Union pour le Progrès National

country report for BURUNDI Lessons Learned in Comparative Perspective 1 1. INTRODUCTION

Burundian women have been at the heart of Assistance by international and regional positive political change in their country. Since organizations has provided support to this remarkable movement at many points along the era of the 17-year-long civil war that shook the way. This case study1 traces the progress the country, they have been mobilizing for peace in women’s political participation in Burundi locally, nationally and regionally. Their voices and identifies key instances of international have been heard in the peace agreements, laws assistance, particularly from UNDP, which contributed to current successes within and national constitution that are redefining electoral processes. The main focus is on post-war Burundi. Their presence is increasingly electoral support provided in advance of being felt in parliament and in elected positions the 2010 elections by international organi- at the local levels, in state institutions and in zations, and especially by UNDP. government ministries.

1 This case study has been prepared by Gabrielle Bardall, Kristin Haffert, Imelda Nzirorera and Julie Ballington. Special thanks to Awa Diouf, who was the UNDP senior Gender Advisor in the period under review. Thanks also to the staff in the UNDP Country Office, and Isabelle De Ruyt and Nadege Domjie (DPA Electoral Assistance Division) for their contributions. Photographs are thanks to Gabrielle Bardall ©2010. 2 Promoting Gender Equality in Electoral Assistance

2. Background of Political Participation in Burundi

2.1. Burundian Political Context 200,000 victims) and 1988 (estimated 20,000 and Institutional Overview victims), and the civil war between 1993- 2000 (estimated 200,000 dead, 350,000 At its emergence from the colonial period, refugees, 1,300,000+ internally displaced)4 Burundi held a comparative advantage profoundly shook the foundations of Burun- over many decolonizing African states. dian society and frustrated efforts to have a The small central African nation possessed popularly elected government.5 several of the basic elements for national unity,2 including a well-defined political and Following the short-lived introduction of geographic entity established during colo- multi-party democracy in 1993, the seeds nial rule and a shared socio-cultural and of democratic transition were sown in 1998 linguistic heritage.3 Yet the instability that when Tutsi President Buyoya agreed on a set in following independence in 1962 has transitional constitution with the Hutu-led plagued the country for decades. The rise parliament, launching the Arusha process and fall of six governments between 1962- that culminated with the Arusha Peace and 1966, four successful coups d’états (1965, Reconciliation Agreement of August 2000. 1976, 1987 and 1996), the assassination of Analysts judged the subsequent power- the first democratically elected president in sharing government installed in 2001 to be 1993 and his successor in 1994, and recurrent a positive indicator of some of the essential bouts of ethnic violence in 1972 (estimated elements of democratic consolidation.6

2 Rustow, Dankart. (1970). “Transition to Democracy: Toward a Dynamic Model”. Comparative Politics, vol. 2, no. 3, pp. 337-363. 3 Daley, Patricia. Gender and Genocide in Burundi: The Search for Spaces of Peace in the Great Lakes Region. Bloomington Indiana Press. 2008. 4 Ibid. Lemarchand, René. The Dynamics of Violence in Central Africa. Philadelphia: University of Pennsylvania Press. 2009. 5 Bardall, Gabrielle. “The Roots of Electoral Violence: Tracing the Path of Electoral Authoritarianism in Burundi.” The Centre for the Study of Democratic Citizenship. Quebec City, Quebec. 25-26 March 2011. 6 Dahl, Robert. Polyarchy: Participation and Opposition. Yale University Press. 1972. country report for BURUNDI Lessons Learned in Comparative Perspective 3

Progress in the years following 2001 was justice-sector reform, Burundi moved encouraging. Most of the armed opposi- forward in institutionalizing democratic tion groups agreed to a ceasefire and were institutions between 2005 and 2010. integrated into the transitional government between 2001 and 2005, including the A second round of elections was organized former rebel group, the National Council for between May and September 2010 and the Defense of Democracy–Forces for the included presidential, legislative, senatorial, Defense of Democracy (CNDD-FDD). A new communal and hillside (colline) elections. constitution mandating ethnic pluralism They marked the first elections since all and quota systems for government admin- armed factions laid down their weapons. istration was approved by referendum on The international community provided 28 February 2005. These positive gains were extensive technical support to the process, capped with the 2005 transitional elec- including ONUB’s successor, the UN Inte- tions that created a new slate of leadership grated Office in Burundi (BINUB) and UNDP. at all levels of government and brought The UN electoral assistance for the 2010 the CNDD-FDD leader, Pierre Nkurun- elections was notable in that UNDP provided ziza, the presidency. Organized with the technical assistance for the conduct of the significant support of United Nations (UN) peacekeeping forces (ONUB), as well as UN and international election assistance programmes, national and international observers widely recognized the elections as free, fair and competitive.7

These steps towards democracy were accompanied by persistent internal and cross-border insecurity, aggravated by the pervasive presence of small arms and a frac- tured political environment. In this context, the implementation of a new ceasefire agreement in 2008 and the integration of the Palipehutu/FNL into the armed forces and party politics in 2009 constituted deci- sive progress. Although the protracted disarmament, demobilization and reintegration (DDR) process (especially among FNL ex-combatants) has slowed security- and

7 European Union Electoral Observation Mission (EU-COM). Final Observation Report. 2010. Cited in Bardall, CDSC March 2011. 4 Promoting Gender Equality in Electoral Assistance

elections, while the UN mission (BINUB) was Senate (28 July) and hillside, or “Colline” in charge of the political support to the elec- (7 September). The political challenges toral process. evidenced during the electoral period persisted into the post-election period. Since Despite the peaceful precedent of 2005 the 2010 elections, no official talks have and the international assistance, polit- been held between the CNDD-FDD govern- ical violence marked the lead-up to the ment and the opposition parties of the 8 communal elections on 24 May 2010. The ADC-Ikiriri coalition. The security situation communal elections resulted in the ruling remains fragile and significant governance party, CNDD-FDD, receiving 64 percent challenges remain in the areas of justice- of the vote. Alleging the presence of elec- sector transparency, government oversight, toral fraud, 12 opposition parties united to security-sector reform and human rights. form the ADC-Ikibiri coalition and opted to boycott the rest of the electoral process. After all six opposition candidates dropped 2.2. Situational Analysis out of the presidential race, incumbent Pierre of Women’s Nkurunziza won 92 percent of the vote as Political Participation the only candidate on the executive ballot. Impact of Conflict and CNDD-FDD won over 80 percent of parlia- Ongoing Insecurity mentary seats during legislative elections in July 2010. Over the course of the five-month Women’s experiences in the decade-long electoral period, political violence inten- civil conflict that claimed over 300,000 lives sified, limitations were imposed on public have profoundly shaped Burundian women’s assembly and association and several oppo- role in political life. The war affected women sition leaders went into exile.9 disproportionately. As bearers of ethnicity and culture, women were targeted for rape Despite these shortcomings, the 2010 elec- and other sexual violence by both parties of toral process has been generally assessed the conflict.10 Forced displacement added as a success, at least logistically, in that the to the burden many women faced as single National Independent Electoral Commis- breadwinners for their families. As a whole, sion (CENI) organized five elections in a very the civil war took a heavy toll and, today, short time: communal (24 May), presiden- Burundi ranks 185 out of 187 on the 2012 tial (28 June), National Assembly (23 July), UNDP Human Development Index.

8 Rapport de l’expert indépendant chargé d’examiner la situation des droits de l’homme au Burundi, Akich Okola. 2011. A/HRC/16/CRP 1. http://www2.ohchr.org/english/countries/bi/mandate/index.htm. 9 Human Rights Watch, World Report 2011: Burundi. http://www.hrw.org/world-report-2011/burundi; Nancy Welsh, National Endowment for Democracy. Burundi’s Political Parties in Peril. Demdigest.new. 29 February 2012; Rapport de l’expert indépendant chargé d’examiner la situation des droits de l’homme au Burundi, Akich Okola. A/HRC/16/CRP .1. http://www2.ohchr.org/english/countries/bi/mandate/ index.htm; International Crisis Group. Burundi: From Electoral Boycott to Political Impasse. Africa Report No. 169 – 7 February 2011. 10 Tripp, Aili Mari. 2005. “Empowering Women in the Great Lakes Region: Violence, Peace and Women’s Leadership.” Social and Human Science Papers in Women’s Study/Gender Research, no. 3. France: UNESCO, p. 3. country report for BURUNDI Lessons Learned in Comparative Perspective 5

Burundian women were not passive local women’s peace- victims of the war, but became an active building association and powerful force for peace at local and and currently work national levels. The conflict period laid with over 230 affili- the groundwork for an effective women’s ated women’s groups movement during the transition. The civil at the community level war brought many women into the public across the country. sphere for the first time, forcing them to CAFOB was created in take on new responsibilities and motivating 1994 as an initiative of them to advocate for peace. Women’s rela- seven women’s orga- tionships during the conflict and their efforts nizations and with the to keep their communities running during support of the Canadian the war made them familiar with each other Centre for International Studies and Coop- and well-acquainted by the time they began eration (CECI). It was registered with the to develop a more formal women’s move- Ministry of the Interior on 20 January 1997. ment later on. The fruits of these networks Today, it is composed of over 50 associations and common trust soon became apparent as supporting the participation of Burundian Burundi began its political transition. women in civil and political life.

At the grassroots level, women built inter- ethnic relationships between Hutu and Tutsi Burundian Women during the Transition groups.11 From the beginning of the civil war, women organized on a multi-ethnic Just as conflict shaped the struggles for a basis to educate and lobby for peace. Two generation of Burundian women, it also umbrella organizations were formed – le formed the context for the emergence of a Collectif des Associations et ONGs Feminines women’s movement that played a key role du Burundi (CAFOB) and Dushirehamwe in gender equality advancement during the – to bridge ethnic divides and promote subsequent political transition. The women’s women’s rights at first during the conflict, movement provided a training ground then during the peace process and through for female political and civic leaders and ongoing efforts today to promote women’s contributed significantly to changing the political participation. Dushirehamwe, which norms and customs that limited their polit- means ‘Let’s Reconcile’, began in 1996 as ical participation in the past. a training-of-trainers project in gender and conflict transformation in partner- Women were initially rejected from partic- ship with International Alert. In 2002, they ipating in the Arusha Peace Process, held established themselves as an independent in Tanzania from 1998 to 2000, but seven

11 Ndimurukundu–Kururu, Barbara, 2005. ‘Le rôle des femmes dans la reconstruction post–conflit: expériences et leçons retenues du Burundi.’ Paper presented at gender consultation on ‘Empowering women in the Great Lakes Region: Violence, peace and women’s leadership,’ Addis Ababa, June 2005, p. 2; Watt, Nigel, 2008. Burundi: Biography of a Small African Country. New York: Columbia University Press, pp. 117–118. Cited in Falch, Aschild. “Women’s Political Participation and Influence in Post-Conflict Burundi and Nepal.” Peace Research Institute Oslo (PRIO). Prio Paper May 2010. 6 Promoting Gender Equality in Electoral Assistance

women were eventually granted permanent approved in the 2005 constitution. The observer status following intense pressure ONUB Gender Advisory team worked closely from local and international women’s lobby with women’s organizations in the subre- groups. The movement’s lobbying activ- gion to advocate for the allocation of an ities culminated in the All-Party Burundi electoral quota, using the political leverage Women’s Peace Conference, organized with of ONUB’s senior management. the support of UNIFEM and the Mwalimu Nyerere Foundation one month before Although Burundian women have had the the signing of the Peace accord in August right to vote and stand for office since the 2000.12 Representing women from 50 polit- first elections in 1961, Burundian politics ical parties, women’s organizations, refugee has traditionally been “an overwhelmingly 15 and IDP groups, the Conference resulted in male preserve.” With the exception of a declaration urging the negotiating parties Sylvie Kinigi, who held the office of prime to incorporate a gender perspective as a minister for seven months from 1993 to cross-cutting theme and to introduce a 1994, women’s roles have been tradition- 30-percent quota in all institutions created ally limited to the domestic sphere and their by the peace agreement.13 With extensive political participation has been minimal. Two lobbying and support from ONUB, the UN connected influences in the past decade and other international actors, most of the cracked open this closed political sphere: recommendations of the Conference were the rise of an influential civil society women’s adopted, except the electoral quota for movement and their successful introduc- women.14 tion of gender goals into Burundi’s legal framework. The quota was initially rejected due to a perceived shortage of qualified women Burundian women’s organizations played a candidates and its absence was reflected in critical role in bringing gender issues to the the transitional government where women’s forefront during the constitutional process. participation remained very low. UNIFEM Through their coordinated lobbying and and other international actors cooper- sensitization efforts, they effectively intro- ated with local women’s organizations to duced the issue into the negotiation process maintain intense pressure and continue and pushed for targeted gender equality awareness-raising about the issue, however goals. As a result, the post-transition consti- and the quota was finally introduced and tution enshrines Burundi’s regional and international commitments on gender

12 Nduwimana, Françoise, n.d. United Nations Security Council Resolution 1325 (2000) on Women, Peace and Security: Understanding the Implications, Fulfilling the Obligations. Background report prepared for the Office of the Special Advisor on Gender Issues and Advancement of Women, pp. 82–83. Cited in Falch, 2010. 13 United Nations Development Fund for Women (UNIFEM), 2006b. Beyond Numbers: Supporting Women’s Political Participation and Promoting Gender Equality in Post–Conflict Governance in Africa. Available at: http://www.womenwarpeace.org/webfm_send/99. Cited in Falch, 2010. 14 Falch. 2010, p 11. 15 Bentley, Kristina A., and Roger Southall, 2005. An African Peace Process: Mandela, South Africa and Burundi. Cape Town: HSRC Press, p. 153. Cited in Cited in Falch. 2010. country report for BURUNDI Lessons Learned in Comparative Perspective 7

equality.16 The constitution seeks to ensure are given formal or informal power on the women’s participation at all levels of deci- grounds of their élite status, specialist knowl- sion-making in every area of national life edge or potential to threaten or advance by correcting existing imbalances and essential commitments or goals (such as promoting gender balance in public admin- gender equality). In Burundi, cooptation was istration,17 the judiciary18 and the state introduced as a contingency resource in the security forces.19 This includes a 30-percent electoral code in case the gender quota was quota in elected and non-elected state insti- not filled through elections. In 2005, women tutions.20 Subsequent legal reforms have ran for office, but their positioning within been initiated to introduce gender quotas political parties’ lists of candidates did not into the electoral code (see table), toughen allow them to achieve the minimum quota of penalties for violence against women and 30 percent. As a result, cooptation was used to enforce and extend the reach of the to bring the needed corrections to allow the quota to the communal and colline levels. Parliament to comply with the electoral law The women’s civil society movement was on the representation of women. the driving force behind these reforms and remains the most powerful voice for ONUB’s capacity and assets were used advancing gender equality in the country to advocate for the inclusion of gender today. concerns in the political process, from setting up the national and provincial electoral bodies, voter registration and voter educa- Burundian Women in Politics tion campaigns with modules specifically Since the establishment of gender equality targeting women to elaborating the elec- as a national goal and the introduction of toral laws and placement of women in the the quota, progress in women’s representa- political parties electoral lists and training tion in parliament and government has been electoral officers and potential women striking. In 2005, some women’s seats had candidates at the legislative, commune and to be filled through a cooptation process. colline levels. ONUB further supported the Used frequently in transitional political mobilization of women to participate in contexts, cooptation refers to the process of the elections and a cooperative movement “absorbing new elements into the leadership was developed among the units for political or policy-determining structure of an orga- affairs, electoral affairs, public information nization as a means of averting threats to and gender and assistance was provided to its stability or existence.”21 Co-opted actors women´s organizations in the subregion.

16 Burundi is signatory to the International Covenant on Civil and Political Rights, the International Convention on the Elimination of All Forms of Discrimination Against Women (CEDAW), the Protocol to the African Charter on Human and Peoples’ Rights on the Rights of Women in Africa. 17 Burundi’s Constitution (law 1/010 of 18 March 2005) 18 Ibid. 19 Ibid. 20 Ibid. 21 Selznick, Philip. TVA and the Grassroots. 1949, pp. 13-15. 8 Promoting Gender Equality in Electoral Assistance

With the support of the organizations the quota was not applied, did women’s working on the elections, ONUB facilitated representation fall short, namely 14 percent the elaboration of a road map for the elec- of colline council members and only 4 tions detailing the activities that needed percent of Chefs de colline (heads of hill- to be implemented, designed and agreed side-level councils). At the ministerial level, upon by all stakeholders. The Ministry the CNDD-FDD government named nine subsequently validated this road map in a women to government leadership posi- workshop organized with the support of tions (out of 21 positions), including the key UNIFEM. Local authorities and the elected ministries of finance, justice, agriculture, government subsequently followed up by communication, health and commerce. appointing women to predominant posi- Three women were appointed as provin- tions in the Cabinet, such as chairperson in cial governors. Gender equality was also the Parliament, the two vice presidents of reflected in the electoral management the Senate, province governors and heads body (EMB). From its inception in 2009, the of Commune Councils, among others. Independent National Election Commis- sion (CENI) showed strong leadership on By 2010, enough women were running the topic of gender equality and promoted for office that the cooptation contingency women in CENI bodies at all levels, including measures were unnecessary to fulfil the leadership positions. 30-percent quota. Indeed, the quota was surpassed in all elected bodies in 2010, Women’s role in civil society has fuelled except the collines, and reached near-parity these changes to the political landscape in the Senate. Only in the local races, where for women. Numerous NGOs dedicated to

Figure 1: Distribution of Women in Selected Decision-Making Bodies after the Elections of 2010 (percentage of seats held by women and men) MEN WOMEN

Government Ministries 9 12 Senate 19 22 National Assembly 34 71 Communal Administrators 41 82 Colline (Local Council) 2286 12248 Chef de Colline (Head of Local Council) 136 2905 0% 30% 60% 90%

Source: UNDP analysis based on data provided by INEC country report for BURUNDI Lessons Learned in Comparative Perspective 9 women’s empowerment, including a few strong umbrella groups, helped the women’s movement evolve during the transition and the following years. These relationships and the organizations’ longevity have directly contributed to women’s engagement with the challenges of the current political context. As such, women were able to effectively build on achievements and collectively learn from their mistakes. For example, when efforts to fulfil the quota in 2006 did not yield 30 percent women on candidate lists for the National Assembly, a unified front of women’s organizations fought to include non-compliance measures to the quota in 2010.

Despite the positive gains achieved in women’s political participation during the 2010 elections, the overarching shadow of the opposition boycott and violence incumbent’s position transformed its incen- around the elections obscured some of the tives to include women. Specifically, the advances. The boycott left the presiden- incumbent party had incentive to employ tial and local elections uncontested and measures that would increase its perceived severely restricted opposition participation legitimacy among domestic and interna- 22 in the legislative and senatorial elections. tional actors and could do so without risking The boycott also impacted women’s polit- its electoral success. To this end, maximizing ical participation by effectively excluding women’s participation increased party legit- women candidates from a plurality of polit- imacy that had been otherwise damaged by ical parties and restricting voter turnout the opposition boycott. Overall, by generally to incumbent party supporters. Opportu- undermining the stability and representa- nities for women’s advancement within tiveness of the government, the boycott party structures varied sharply between created a difficult and volatile environment ruling party and opposition parties. While for aspirant and elected women. fierce competition and negotiated deals narrowed the field for women aspirants in the opposition parties, the security of the

22 Of 44 registered political parties, only the UPRONA (opposition party with ethnic Tutsi support) and a handful of small parties associated with the ruling CNDD-FDD participated in the legislative and senatorial elections, in addition to the CNDD-FDD. 10 Promoting Gender Equality in Electoral Assistance

3. International Assistance to Women’s Political Participation in the 2010 Elections

The UN agencies have coordinated support for women’s political participation for over a decade. This has included UNIFEM, UNDP and the UN DPKO missions in Burundi, ONUB (2004-2006), BINUB (2006-2010) and BNUB (2011-present). Coordination has included building partnerships with women’s organizations, NGOs, the electoral bodies, media and political parties.

Likewise, coordination has facilitated the (BINUB) came into being (SCR 1719, 2006). collection, analysis and sharing of rele- BINUB was a political and peacebuilding vant information and data. Similarly, the mission of the Department of Political Affairs long-term presence of several international of the UN Secretariat (that was previously non-governmental organizations (NGOs) lead by DPKO). In order to coordinate interna- including International Alert, the Interna- tional assistance for the elections in Burundi, tional Foundation for Electoral Systems the international partners established (IFES), the National Democratic Institute twin mechanisms in May 2009: a Consul- (NDI), Search for Common Ground, and tative Strategic Committee that served as others has contributed substantially to a forum to define strategic guidelines for achievements in the area of gender equality international assistance, and a Technical in Burundi. Coordination Committee that coordinated technical, logistical and financial assistance The peacebuilding mandate of the UN in through the Independent National Electoral Burundi started officially on January 1, 2007 Commission and oversaw the management when the UN Integrated Office in Burundi of the basket fund established by UNDP. country report for BURUNDI Lessons Learned in Comparative Perspective 11

Following the recommendations of the 2009 and UNDP worked together in order to Technical Assessment Mission (TAM) and provide technical and financial support to Needs Assessment Missions (NAM) of the women of Burundi (civil society, political Electoral Assistance Division of the Depart- women), which enabled the creation of a ment for Political Affairs (DPA/EAD) and a strategy for the integration of gender and report from the Peace-Building Commission, improvement of political participation of UNDP designed the project Appui au Cycle women in elections (based on the experi- Electoral au Burundi-PACE, which funded ence from the 2005 elections and lessons through a basket fund23 and which was learned from other countries). signed on 18 September 2009 for an overall amount of US$32 million (total final UNDP UNDP and UNIFEM initially collaborated contribution was US$28 million). The project closely on the implementation of the was to support the Government of Burundi programme (through co-location) until through the CENI in the organization of free, UNIFEM established its own office in country. transparent, credible and inclusive elections, UNDP support was channelled through the notably through provision of technical and work of the country office’s different units financial assistance in order to strengthen and projects. The integrated (UNDP-DPKO) the capacities of CENI and the electoral Peace and Governance Section based at administration of Burundi. BINUB, UNIFEM BINUB delivered most of UNDP support to

Figure 2: International Actors in Promoting Women’s Political Participation in Burundi

DPA/EAD DPKO (ONUB (2004-2006), BINUB (2006-2010), BNUB (2011-present) UN Actors UNDP UNIFEM, UN WOMEN ACCORD Africare American Friends Service Committee CARE Institut Panos Paris Inter-Parliamentary Union International NGOs International Alert International Conference on the Great Lakes Region International Foundation for Electoral Systems National Democratic Institute OXFAM-Novib Search for Common Ground

23 Contributors were Australia, Belgium, Canada, EC, Egypt, France, Japan, Luxembourg, The Netherlands, Norway, Peacebuilding Fund, Sweden, Switzerland and the UK. 12 Promoting Gender Equality in Electoral Assistance

women’s increased political participation in of the country office team and provided seed the country between 2007 and 2009. UNDP’s funding for pilot activities. UNDP also raised integrated Peace and Governance Section additional funding through the DGTTF, was composed of three units. The first unit Swedish Cooperation, the PBF’s emer- on institutional development was respon- gency window, and Swiss Cooperation to sible for support to Parliament and CSOs, develop different projects and initiatives in including support to women parliamentar- support of civil society organizations (CSOs) ians. The second unit on decentralization (including women’s organizations) and the and local governance managed the part- EMB. Through the implementation of these nership between UNDP and the Burundian projects, all 714 locally elected women Senate. The partnership ultimately facili- officials were trained, paving the way to tated the creation of a network of locally implement ABELO’s statute for Burundi’s elected officials, ABELO, in 2008 and ABELO’s first-ever network of locally elected women women’s wing in 2010. The third unit on the (RFEL-Reseau des Femmes Elues Locales). reform of the public administration was not involved in women’s participation. UNDP had an overall coordination role as it implemented the electoral assistance project Burundi was selected as one of 10 countries through a basket fund mechanism. Under to benefit from UNDP’s Bureau for Crisis the leadership of the Special Representative Prevention’s (BCPR) global programme to of the Secretary-General, Resident Coordi- advance gender equality and women’s nator of the UN System, a gender resource empowerment. The crisis prevention and thematic group was established with the recovery (CPR) context offered a program- participation of UNIFEM (later UN Women), matic and strategic framework for UNDP to UNDP and BINUB to play an advisory role. better position itself within the UN as one On the programmatic side, UN Women and of the key agencies engaged in the field UNDP developed a partnership through of women’s political participation. UNDP a memorandum of understanding (MOU), based its support on the implementation designating UN Women to implement the of Resolution 1325 and the other interna- gender and election part accounting for tional mechanisms on gender equality and about 17 percent of UNDP’s US$3 million PBF women’s empowerment, as well as UNDP’s project. UNDP implemented the national accountability framework including the identity card initiative, which the PBF project Gender Equality Strategy and the 8-Point partly funded. Agenda. UNDP also drew on the Burundi national legal and strategic framework on Key local actors engaged with UNDP and the women’s political participation. international community during this process included: UNDP’s principal activities in this area zz The Synergy Partners for the Promo- took place under the global programme tion of Women’s Rights (SPPDF), which to advance gender equality and women’s was responsible for implementing the empowerment. This programme engaged a national strategy for increased participa- senior gender advisor for three years as part tion of women in the 2010 elections country report for BURUNDI Lessons Learned in Comparative Perspective 13

UN GENDER ADVISORS UN agencies recognized the importance of including senior gender advisory capacity into their programming well before the 2010 election. The first DPKO gender advisor of the UN Office in Burundi (ONUB) was appointed in 2004, when much of the work focused on disarmament, demobilization and reintegration of women fighters as well as supporting women’s full participation in the ongoing political process. As a result of the gender advisor’s lobbying at the time, the category of ‘women fighters’ was redefined to include not only active fighters, but also women who supported or were forced into the war in different roles, including porters, cooks and sexual slaves. Of the 485 women disarmed in Burundi in 2005, 231 joined the country’s police force.24 During the 2005 elections, the ONUB gender advisor energetically worked with women’s organizations in Burundi by supporting training and capacity-building workshops and partnering with organizations such as SOFEPA to promote women’s political participation.25 A gender advisor was also placed with BINUB until 2010. In August 2009, a senior gender advisor was made available to the UNDP country office as part of the implementation of the global programme to advance gender equality and women’s empowerment in 10 selected countries, including Burundi. In addition to her work in UNDP, the senior gender advisor allocated part of her time to the UN Country Team and part to the integrated Gender Thematic Group. The senior gender advisor’s guidance during the 2010 elections laid the foundation for UNDP and broader UN support to the Government of Burundi to encourage women to register, vote and train to run for office.26 The work of the advisor was inte- gral to progress in supporting women candidates, voter turnout and donor coordination around this issue.

zz The Collective of Associations and zz Association of Women Journalists Women’s NGOs of Burundi (CAFOB), (AFJO), which, thanks to its experience in which trained candidates in the legisla- promoting women’s rights and gender tive and colline elections equality in the media, was responsible for the development of the TV and radio zz Dushirehamwe, which worked with the spots for the media campaign SPPDF in organizing the forum for the development of the priorities for gender zz Foundation Intahe, which includes equality in the legislature from 2010 to Bashingantahe (traditional ‘men of integ- 2015 rity’/local conflict resolvers) and worked with political parties to encourage women to apply

24 United National Peace Operations Year in Review 2005. Challenges in Peace Operations. Gender in Peacekeeping: an evolving field of practice. 25 NGO Working Group on Women, Peace and Security. Burundi and the Peacebuilding Commission: Women’s participation in the mainte- nance and promotion of peace and security. January 2008. http://www.un.org/en/peacebuilding/pdf 26 UNDP In Action: Realizing Women’s Peace and Security. Bureau for Crisis Prevention and Recovery. 2011. UNDP. 14 Promoting Gender Equality in Electoral Assistance

Figure 3: Burundian Associations & Women’s Political Participation

Association des Femmes Burundaises pour la Paix Deputé à l’Assemblé Nationale Associations of Association des Femmes Parlementaires du Burundi Elected Women Réseau des femmes élues locales Solidarité Femmes Parliamentaires Association des Femmes Journalistes (AFJO) Women’s Civic Collectif des Associations et ONGs Féminines du Burundi (CAFOB) Organizations Dushirehamwe Synergie des partenaires pour la promotion des droits de la femme (SPPDF) Coalition de la société civile pour l observation et le monitoring des élections (COSOME) Commission Episcopale Justice et Paix (CEJP) Other Organizations La Foundation Intahe Plan d’Action Commun d’Appui aux Médias (PACAM) – ‘Synergie des médias’

During the 2010 elections, the UN supported (f) Support for the integration of women’s several programmes and initiatives to concerns into political party platforms27 empower women and encourage their vigorous participation in the electoral 3.1. International Support and process. The initiatives supported included: the 2010 Elections Process (a) The adoption of a strengthened electoral law that established a 30-percent The 2010 elections marked a substantial quota for representation of women in change in the approach to UN electoral communal councils assistance from 2005. The 2005 elections were supported by ONUB (DPKO mission (b) The registration of women on voter lists chapter VII mandate) with a strong elec- and their vigorous participation in electoral mandate. The UN military and civilian tion observation support staff was immense, with more than 120 staff engaged at the Electoral Division (c) Support for the election of women candi- alone. In 2010, overall some 30 internationals dates to the National Assembly supported the elections (experts and UN volunteers) and BINUB support was targeted (d) Awareness-raising about the rights of at the political level. In the 2010 elections, women vis-à-vis the elections CENI was the steering force in electoral administration, unlike in 2005, when the (e) Encouragement of representation by Commission had significantly less capacity. women within the electoral commission

27 Seventh report of the Secretary-General on the United Nations Integrated Office in Burundi. 30 November 2010. http://www.bnub.unmissions.org. Accessed 20 April 2012. country report for BURUNDI Lessons Learned in Comparative Perspective 15

UNDP’s 2009 programme to support the strategy to improve the political participa- Burundian electoral project (PACE) consisted tion of women based on the experiences of of a comprehensive technical assistance the 2005 elections as well as international initiative designed according to three pillars experiences. The strategy was developed of activity: support to the CENI for the orga- through consultations with Burundian nization of the five elections planned for women of all backgrounds and through 2010; civic education, human rights, civil a coordinated effort of BINUB, UNDP and society, media and gender; and electoral UNIFEM. The other pillars of the UNDP PACE security and electoral dispute resolution. The programme took gender considerations into gender component of PACE (a joint initiative account, with particularly successful results of UNIFEM, UNDP and BINUB) supported the in some areas such as voter registration and development of a gender mainstreaming security, as described below.

UNDP GENDER AND ELECTIONS PROGRAMMING [Extracts from UNDP Programme Document, Support to the Burundian Electoral Cycle, 18 September 2009]

The development of an inclusive approach to electoral management that is sensitive to gender concerns and the concerns of other vulnerable groups is crucial. Taking into account the specific context of Burundi, the project’s gender component is centred around the following four pillars:

Developing a strategy to integrate the gender dimension in the electoral process When women do not share a common vision and agenda, they risk fragmenting their efforts and becoming inefficient in promoting and communicating their vision to their constituents. The development of a strategy to integrate a gender dimension into the electoral process is a response to this risk. It provides for the creation of a framework before, during and after the elections as a tool to ensure a synergy between stakeholders and therefore promote mobilization and greater strength for advocacy efforts.

Technical support for the integration of gender in the CENI activities and programmes Gender mainstreaming in CENI’s work and programmes should be encouraged through a communication strategy and development activities to ensure the inclusion of gender in all stages of the process, including recruitment administrative staff, poll workers, commissioners, etc. To increase the participation rate of women in the electoral process and generally to enhance their role, close collaboration with CENI will be required. Technical support for gender mainstreaming in CENI activities will enable the development of an inclusive approach by systematically supporting the creation of conditions for equal participation of women, men and vulnerable groups in the electoral process. 16 Promoting Gender Equality in Electoral Assistance

Support the mobilization of women in elections as voters, observers, witnesses and key actors in the peaceful settlement of electoral disputes The mobilization of women as voters is important to enable them to exercise their right to express their political choice. The concept of gender mainstreaming in the electoral process should not be limited to women as voters, but must also address the effective participation of women in the electoral process at all levels. In 2010, Burundian women will be involved in the process as: • Members of registration offices within Burundi and abroad • Candidate and party supporters • CENI members at national, provincial and municipal levels • Poll workers within Burundi and abroad • Election observers • Candidates • Members of sponsoring groups • Proxy voters (requesting proxy and assisting in proxy) • Members of the administration, security services and judicial services They must be prepared to play these roles through training, information and the provision of other tools required. It is also important to assist in conducting advocacy and in providing useful information to other actors who will be involved in the integration process of women. These combined actions targeted towards women in each of these categories and towards other actors with whom they will interact will facilitate the identification of a sufficient number of women who meet the criteria for each role. Support to political parties to elicit applications from women and mainstream gender into their programmes One of the main functions of political parties is to nominate and support their candidates through logistical and often financial support. The existence of the current 30-percent legal quota for women’s representation at the national level and the anticipated broadening of the quota at the local level gives political parties more responsibility in the promotion of female candidates and their positioning on the candidate lists. The support provided will provide training, awareness and useful advocacy directed towards the leadership of political parties […] to promote the effective representation of women. (Unofficial translation from French in the original)

A number of other international actors and International Alert. Although a compre- were also providing assistance to the elec- hensive review is beyond the scope of this toral process during the 2010 elections, research, some of the main initiatives are including IFES, NDI, the Electoral Institute described on the next pages. for Sustainable Democracy in Africa (EISA) country report for BURUNDI Lessons Learned in Comparative Perspective 17

Building on over 10 years of democracy tensions at the polling centres. EISA Burundi support programmes in the country, IFES’s promoted dialogue between political electoral support activities in 2010 focused parties in parliament and the national polit- on three areas: 1) building the professional ical arena. capacities of electoral administrators at all levels through training and advising as well International Alert has worked in Burundi as post-elections activities; 2) providing civic since 1995, including by providing training education, especially to marginalized groups in conflict resolution to women throughout such as Twa and women in remote locations, the country and supporting women in the and 3) supporting a national-scale elec- political arena who seek access to the nego- tion violence monitoring and prevention tiating table. Alert-Burundi contributed to system.28 Gender issues were mainstreamed Alert’s Great Lakes regional research on and/or targeted for specific support through women’s political participation and worked many of these activities. with the UN Peacebuilding Commission to support the contribution of women’s orga- NDI opened its Burundi office in March nizations to the Strategic Peacebuilding 2010 to conduct presidential debates and Framework and to the implementation, voter education programme with funding monitoring and evaluation of projects under from the Howard G. Buffett Foundation and the Peacebuilding Fund (PBF). In 2010, Inter- the National Endowment for Democracy. national Alert worked with its local partner, After the election boycott, NDI redirected the women’s organization Dushirehamwe, to its programme activities to support high- prevent election violence.30 level roundtable debates and focus group research. Numerous radio and television OXFAM-NOVIB considered women to stations recorded and broadcast all round- be the major focus of its programming, tables. NDI conducted focus group research working especially on women’s right to in Burundi aimed at collecting citizen views social and political participation in Burundi. about Burundi’s 2010 electoral process. The It supported local NGOs in spreading infor- discussions provided citizens with nonpar- mation about women’s rights through new tisan avenues for expressing their views on and traditional media and sought to ensure a range of pressing issues facing Burundi.29 that local partners promoted women’s leadership roles and mainstreamed gender EISA implemented a three-part programme justice in their work. Its programme also comprised of 1) domestic election observa- involved building the capacity of local tion training for political parties and CSOs, partner organizations to lobby for legislation 2) technical assistance for the Electoral protecting women as well as monitoring Commission and 3) training of mediators in government budgets and holding election-related conflict in order to diffuse government accountable for combating

28 Final Report. IFES Burundi: Electoral Assistance and Technical Support (BEATS). 15 June 2009 – 30 April 2011. 29 National Democratic Institute. http://www.ndi.org 30 International Alert. http://www.international-alert.org 18 Promoting Gender Equality in Electoral Assistance

corruption. OXFAM-NOVIB was also engaged AFJB) spearheaded the legal reform move- in preventing election violence during the ment since the beginning of the transition, 2010 elections.31 campaigning for equal inheritance rights and legal sanctions for rape and other forms 32 Electoral Reform of gender-based violence. Despite the success of the women’s lobby In advance of the 2010 elections, UNIFEM, during the peace accord negotiations and SOFEBA, AFEPABU, CARE and OXFAM- the revised constitution of 2005, signif- NOVIB focused on analyzing the electoral icant gaps remained in Burundi’s legal law for gaps regarding women’s participa- framework regarding women’s rights in tion and on advocating for the resolution of 2010. With support from UNIFEM, the Asso- those gaps prior to the elections. The UNDP ciation of Women Lawyers of Burundi gender advisor provided expert legal advice (Association des Femmes Juristes du Burundi, for the review of the electoral law. Innovative

Gender-related Highlights of the Burundian Electoral Code

Article 12 ensures gender balance in voter registration offices.

Article 38 ensures gender and ethnic balance in the composition of the national, regional and local branches of the CENI.

Article 40 stipulates that appeals against non-compliance with the political, ethnic and gender composition of the different levels of the CENI can be submitted by anyone (including the political parties participating in the elections) and that a final decision must be made on the complaint within four days of its submission.

Article 49 allows proxy voting for pregnant women and other groups with reduced mobility. The proxy must bring the electoral card of the principal and be authorized by the members of the polling station.

Article 97 states that presidential candidacies must be sponsored by a group of 200 people composed of mixed sexes and ethnicities, reflecting the national character.

Article 108 defines a 30 percent minimum quota for women’s representation in the National Assembly using a closed list-PR system with at least one woman out of every four on the lists. If the gender and ethnic quotas are not met, the CENI is authorized to correct the imbalance through a co-optation process defined in this article and conducted in consultation with political parties. Cooptation of Twa representatives also includes gender balance.

Articles 110 and 143 say that, on the first day of the first session of a newly elected National Assembly or Senate, the body must elect a president and two vice-presidents based on ethnic and gender balance.

Article 113 stipulates that, if an elected MP desists from office, he/she must be replaced by a person of the same ethnicity and gender.

Article 127 determines the party lists, wherein at least one candidate out of every four must be a woman.

Articles 108, 141 and 181 respectively ensure a 30-percent quota in both houses of parliament and the communal council.

31 OXFAM-NOVIB. http://www.oxfamnovib.nl 32 Falch. 2010. country report for BURUNDI Lessons Learned in Comparative Perspective 19 lobbying strategies included a dinner-de- election day. The CENI bate advocacy meeting with members did not merely bring in of parliament and of the government on more women, though. opportunities for a better integration of Rather, it integrated women’s issues into current electoral texts them into its structure and a press conference to increase public and is one of the most awareness about the issue of gender and the advanced institutions legal framework. in the country in this regard. Notably, women Article 191 gives CENI the authority to adjust were assigned to senior the outcomes of the communal council to positions of significant respect ethnic and gender quotas, in consul- trust and responsibility tation with political parties, in the case that – e.g., Vice-president, electoral outcomes do not result in the Chief of Staff, Head of targeted distribution. Operations, Finance and Administration, and the Head of Information and Communi- The initiative also lobbied the Ministry of cation Services – and were credibly recruited Interior and Parliament on proposed amend- based on their substantial records of public ments and organized advocacy meetings service and achievement rather than simply with the CENI to ensure fair representation due to party affiliation. For example, CENI in the EMB local offices. Political parties Vice-President Marguerite Bukuru was a were offered the opportunity to express well-respected and outspoken member their positions on the amendments and on of civil society with a reputation for polit- women’s position on electoral lists on publi- ical independence and experience as a cally broadcast programmes. Ultimately, minister and with UNHCR. Women CENI the 30-percent quota was introduced for members were publically visible throughout all levels of elected office, except for colline the elections and participated robustly in leadership. It is integrated into other offices, capacity-building and in the training oppor- such as those of the president/vice-presi- tunities offered during the process. dents of the National Assembly and Senate and the CENI is allowed (in consultation with CENI’s achievements in this area were political parties) to adjust electoral outcomes realized in great measure through the lead- to ensure that the quota is respected. ership of its president and building on the foundation of the legal commitments set Mainstreaming Gender into the CENI forth with the quota provisions. Although international assistance providers aided The 30-percent quota for women’s repre- the CENI in its work, UNDP or others did not sentation also applies to Burundi’s CENI. target the promotion of women within the The 30-percent quota was applied at the EMB and the introduction of gender-sen- national level as well as at lower admin- sitive electoral administration as specific istrative levels of the EMB (communal areas for electoral assistance. UNIFEM, UNDP commissions). The CENI also sought to maxi- and the DPA gender advisor collaborated mize women’s presence as poll workers on 20 Promoting Gender Equality in Electoral Assistance

on mainstreaming gender into the elec- (including how the CENI could adapt opera- toral process in order to pool basket fund tions planning to gender needs at the local resources as well as additional funds, level) and on electoral dispute resolution which UNIFEM and UNDP received from (including considerations of access to formal the Peacebuilding Fund. Informed by the versus alternative dispute resolution mecha- 2005 elections, UNIFEM led support for the nisms for women). The final training, a Train CENI to ensure that it held political parties the Facilitators course held in December accountable for women’s placement on offi- 2010, successfully resulted in the semi-ac- cial candidates’ lists. This was to ensure that creditation of four women members of women were elected rather than appointed the Burundian EMB as BRIDGE facilitators. by the CENI after the election, as had Following the elections in 2011, the CENI occurred in 2005, when women were not on president participated in a GPECS-sponsored party lists in sufficient numbers. training in Dakar on political participation of women and men in Africa and on electoral The UNDP gender advisor worked closely assistance and gender. with the CENI to identify areas to incorporate and mainstream gender issues, including supporting a training session on Registering Women Voters gender cooptation for the communal levels In order to vote in Burundi, an elector must of the CENI (the CECI). UNDP also supported possess a National Identification Card (NIC). the disaggregation of electoral statistics, Burundian women were at risk of low voter including by compiling disaggregated data registration because more women than men and providing it to the CENI in a user-friendly lacked such ID cards, due to lower awareness format for use in public communications. levels and displacement during the conflict. UNDP also worked with the CENI on making Furthermore, the CENI’s efforts to update the sure that polling stations were accessible to list in 2010 met specific challenges; in partic- women. ular, it paid special attention to refugees who had returned to the country after 2005 IFES also supported the development of (the majority of whom were estimated to be the CENI’s capacity to mainstream gender women) by locating them in their temporary through the delivery of three BRIDGE or permanent housing sites. It also focused (Building Resources in Democracy, Gover- registration efforts on youth voters, Batwa nance and Elections) trainings during 2010.33 and other specific groups – particularly All of the trainings ensured equitable partic- women – who were identified as potentially ipation of male and female CENI and CEPI lacking the legal documents necessary for members to promote the capacity devel- their inclusion on the lists or who, for one opment of election administrators of both reason or another, had been marginalized in sexes. IFES BRIDGE trainings during the elec- previous electoral censuses. toral process focused on electoral operations

33 BRIDGE stands for Building Resources in Democracy, Governance and Elections. It is a modular professional development programme with a particular focus on electoral processes. http://www.bridge-project.org country report for BURUNDI Lessons Learned in Comparative Perspective 21

In response, UNDP undertook a major initiative to ensure that women and other disadvantaged members of the population received their NICs ahead of the 2010 elections. UNDP sought funding from the UN Peacebuilding Fund (PBF). The Fund was created in 2006 to address immediate needs in countries emerging from conflict to provide rapid support to fill critical gaps in the process. The PBF aims to contribute to gender equality by increasing the participation of women in political processes, strengthening their voices in post-conflict planning processes and addressing their specific post-conflict needs.34 In 2010, the PBF was a relatively new multi-donor trust fund set up for targeted post-conflict countries, including Burundi, Sierra Leone, Liberia and the Central African Republic. Drawing on this unique resource, and in cooperation with CAFOB and the AFEPABU, UNDP delivered almost 1 million voter ID cards, launched a large-scale awareness campaign 58 percent of which were for Burundian to encourage all Burundians, and especially women. women, to turn out to obtain their NICs. Following a request from the Ministry of the In addition to the UN PBF activities to Interior, UNDP provided substantial assis- bolster women’s registration, IFES provided tance to the 129 NIC delivery centres. The significant training support to CENI’s support consisted of material support as voter registration programme, including well as human resource and capacity assis- a cascade-format training for 15,790 voter tance. Material support included procuring registration agents and a targeted six-day the technology and printed materials training on gender and elections for 98 required to produce 1.1 million voter regis- members of CENI’s staff to complement the tration cards. In terms of human resources, registration agent training. Training partici- UNDP reinforced the 129 card delivery pants in the targeted session on gender, the centres by recruiting, training and remuner- majority of whom were women, received ating a total of 1,032 staff for the centres as necessary background information to well as training 2,908 colline leaders. With independently train other women on the the support of UNDP’s Gender Thematic pre-electoral context, the political partici- Trust Fund and the Swiss Cooperation, pation of women in the electoral process, as the Government of Burundi successfully well as gender issues and elections.

34 United Nations Peacebuilding Fund. http://www.unpbf.org 22 Promoting Gender Equality in Electoral Assistance

Civic Education IFES Within the framework of the Élis et fais toi Community-based theatre, traditional élire campaign, three UN agencies (UNDP, music and dance events, a song compe- UNIFEM and BINUB) coordinated funding tition, a travelling ‘Elections and Peace and implementation to provide civic Caravan’ and the establishment of a training centre for civic educators education to women across the country. In addition to the component targeted at NDI women aspirants and candidates, the Élis et Nationally televised and radio-broadcast fais toi élire campaign emphasized women’s debates and dialogues on issues such civic and voter education. Working through as prevention of electoral and political the SPPDF, the UN agencies trained 258 violence, agriculture and food security, and participatory governance and trainers who implemented both compo- accountability nents. These trainers were deployed in pairs in all 129 communes of the country to raise SFCG awareness about the elections, including Studio Ijambo’s news, special features, about the importance of women’s participa- roundtables, telephone call-ins, music and tion and how to vote. The trainers worked popular soap opera series through local networks of women’s associations and community organizations to reach The use of diversified and creative educa- the broadest audience possible. Drawing tional tools drawing on traditional on funding from the PBF, UNIFEM, UNDP communication approaches is a valu- and BINUB coordinated to provide national able lesson for civic and voter outreach coverage. The PBF, through UNIFEM, covered programmes targeting women voters who 53 communes in seven provinces (Kirundo, often have less access to traditional, formal Kayanza, Muramvya, Makamba, Bururi, educational tools or have higher levels of Bubanza and Bujumbura-Mairie) and trained illiteracy. The community-based events were 100 civic education trainers, while UNDP and also notable in that women could comfort- BINUB covered six provinces and the training ably bring their children – indeed, children of 150 trainers. reportedly often demanded that their mothers bring them to attend the colourful The CENI and other national and interna- and entertaining civic education events such tional NGOs conducted civic and voter as music festivals and dancing. education for all Burundians on a nationwide scale over the course of the electoral process. Election Observation While the Élis et fais toi élire campaign stands out as the most notable women-specific UNDP received a request from national CSOs campaign, the diversity and innovation of seeking assistance to train women for their education tools introduced in the Burundian domestic observation programmes for the elections had a positive effect on reaching communal, presidential and legislative elec- women in remote locations. Educational tions. UNDP provided a grant to IFES/NDI programs by NGOs were truly creative and for this purpose. Although neither the UN varied, including initiatives such as: nor IFES/NDI engaged directly in electoral country report for BURUNDI Lessons Learned in Comparative Perspective 23 observation, they supported the training of de Formation pour la Paix (CERFOPAX-Chaire the domestic observation group COSOME. Unesco of the Unviersity of Burundi), NDI, Through this support, over 7,600 domestic COSOME, ABR, SFCG, Institut Panos Paris observers were trained, half of whom were and RFI and CFI. The Media Synergy ensured women. IFES developed a core training basic coverage for women candidates as group of 140 trainers, including 78 women, well as a platform for parties to debate their to train the domestic observers. According positions on women’s issues and women’s to COSOME, the effort to ensure that nearly political participation. The Synergy made 50 percent of recruited election observers specific efforts to enhance their targeted were women led to increased confidence outreach to women voters. Burundian in the elections and may have played a role women’s associations used it to inform and in maintaining a greater level of peace at educate about women’s political participa- polling stations on election day. tion and issues of priority for the women’s movement, such as non-violence. Also, by Media providing accessible civic education information and contributing to the general Coordination of independent and state security of the elections, the PACAM helped media outlets was one of the greatest overcome two of the major barriers to voter successes of international electoral assis- turnout among Burundian women. tance. Under the auspices of the Burundian Association of Broadcasters (ABR), 15 radio Support for gender-specific media stations, two TV channels and five written campaigns was also a feature of interna- publications pooled their resources to tional electoral assistance. The White Scarf provide comprehensive coverage of the Campaign for Peace and Against Violence, election cycle. The PACAM (Plan d’Action described in the next section, employed Commun d’Appui aux Médias) of Burundi or an extensive media strategy. The initiative media synergy built off a similar experience included a media campaign on non-violence in 2005 and was unprecedented in scope and on women’s roles as agents of peace and participation during the 2010 elections. from July through The project was initiated by the French September 2010. The Cooperation and included several UN agen- media campaign also cies, including UNDP, DfID, SIDA, the Belgian, addressed women’s Swiss, German and French Embassies, USAID political participation and the European Union. and gender equality priorities. The initia- Throughout the election cycle, the media tive produced three synergy contributed increased balance and media spots focusing objectivity in journalism and helped reduce on women’s role in rumour-based and inflammatory election resolving disputes and coverage. Numerous NGOs contributed conflict through the resources, training and support, including remedies provided in La Benevolencija, the Centre de Recherche et the revised electoral 24 Promoting Gender Equality in Electoral Assistance

code. The spots were produced and distrib- of threatened violence and/or sexual assault uted in French, Swahili and Kirundi and aired at polling stations and threats to personal for seven days on 15 radio stations members safety of party supporters and candidates of the Media Synergy, ahead of the colline have created a perilous and terrifying and legislative elections. climate for political participation, especially for women who were singled out as victims Preventing and Mitigating of violence during the war. Election Violence Early in the 2010 electoral process, UNDP Political violence has continued to plague and UNIFEM sponsored the participation of the Burundian electoral process since 2005. Burundian women in the Regional Confer- In particular, intimidation techniques such as ence on Women’s Political Participation and grenades thrown in public spaces, rumours Non-Violence in Bujumbura. In collaboration with the SPPDF, Action Aid, American Friends Service Committee (AFSC) and AMATORA MU MAHORO – CONFRONTING the International Conference on the Great ELECTORAL VIOLENCE IN BURUNDI Lakes Region (ICGLR), 150 men and women from 10 African countries (Burundi, Central The Amatora Mu Mahoro initiative had a substantial impact in African Republic, Benin, Ghana, Kenya, attacking the climate of impunity for acts of political violence Liberia, Mali, Rwanda, Tanzania and Uganda) that has dominated Burundian politics for decades and in exchanged experiences on the best strate- holding responsible parties accountable. By lifting the veil on gies to improve women’s participation in otherwise hidden acts of violence, threats and intimidation, decision-making, the role of women in the the programme empowered victims, women in particular, democratic process and promoting non-vi- to seek accountability and demand an end to the violence. olence. The Conference participants made By systematically recording the forms of violence as well as recommendations in the form of a statement the perpetrators and the locations, the programme helped on strategies to promote women’s polit- decrease the terror caused by seeming chaos and identify ical participation and non-violence during patterns and specific perpetrators, which could all then be elections and post-election. Drawing upon addressed methodically. Likewise, the programme, with the this statement, the women held lobbying public backing of the president of the CENI and the Archbishop meetings with four leading political parties of Bujumbura, presented a united front against impunity and (FRODEBU, UPRONA, CNDD-FDD and MRC) violence by bringing together a large coalition of national and with the CENI.35 and international organizations. It helped voters, especially the most vulnerable citizens such as women, youth and the Women are recognized peace-builders in disabled, participate as voters and political party supporters Burundi at the national level, where they in greater security. successfully advocated during the Arusha Accords, and at the local level, where they have been essential to reconciliation efforts. As part of the effort to capitalize on women’s

35 PACE Final Report. “Rapport d’évaluation: Projet d’appui au cycle électoral au Burundi (PACE) 2010.” Abderhamana Niang, Thompson F. Sama, Manirambona Godefroid. July 2011. country report for BURUNDI Lessons Learned in Comparative Perspective 25 peace-building skills, UNDP also sponsored first–ever nationwide election violence a series of roundtables on electoral conflict prevention system. Using data collected prevention and mediation for women by over 400 local monitors nationwide and leaders at the community level as well as based on IFES’s Election Violence Educa- trainings in the participation of women as tion and Resolution programme (EVER), the agents of peace in provinces at high risk of system identified areas susceptible to elec- violence. Active during the first six months toral violence as well as successful peace after the elections, the programme moni- initiatives around the country. Amatora Mu tored potential pockets of conflict and Mahoro’s gender-disaggregated data on provided outreach to prevent flare-ups and election violence provided the first insight encouraged women to work as agents of into the forms of election violence that peace during the post-election period. Burundian women most often face. Among other findings, it revealed that Burundian As the threat of violence increased over the women were most often victims of psycho- course of the electoral period, women’s logical violence and intimidation, arbitrary associations took action to prevent and miti- detention and coercive pressure to join or gate election-related violence. In particular, support a political party.37 CAFOB and Dushirehamwe launched the White Scarves for Peace and Against Violence 3.2. Support to Women campaign. The campaign’s objective was to demonstrate Burundian women’s rejection of Candidates and violence and to invite the women of Burundi Parliamentarians to prevent violence within their communi- The objectives of UNDP and partner activities ties. UNDP coordinated with Panos Paris, in this area focused on a dual goal of mobi- BINUB and International Alert to support the lizing and supporting women as candidates campaign, including by providing commu- and reinforcing their capacities to compete nications expertise and material support and hold office. In addition to efforts focused of the symbolic candles and 10,000 white on women, targeted activities also sought scarves used in the campaign. The campaign to encourage political parties to incorporate received intense media coverage on local gender mainstreaming into their platforms television and radio stations. and campaigns by respecting the quota and placing women in winnable positions on the In a separate initiative, a coalition of interna- lists. While some activities were planned, tional and domestic organizations36 worked others were developed spontaneously in together to create the Amatora Mu Mahoro response to needs arising over the course of (Elections in Peace) programme, Burundi’s the electoral period.

36 Amatora Mu Mahoro was a partnership of the International Foundation for Electoral Systems (IFES), the Civil Society Coalition for Election Monitoring (Coalition de la Société Civile pour le Monitoring Electorale, COSOME), the Quaker Peace Network-Burundi (QPN), the Episcopal Commission for Justice and Peace (Commission Episcopale Justice et Paix, CEJP) and Oxfam Novib, with the support of USAID. The system was developed in collaboration with Accord, American Friends Service Committee, La Benevolencija, Human Rights Watch, International Alert and Search for Common Ground. 37 Bardall, Gabrielle. Advisor for Election Violence, IFES-Burundi / Amatora Mu Mahoro. http://www.burundi.ushahidi.org 26 Promoting Gender Equality in Electoral Assistance

The electoral law quota required that all (Vote and Get Yourself Elected) to encourage elected bodies (with the exception of women to participate in the elections. In the Chefs de Colline) include a minimum 2010, CAFOB joined the SPPDF campaign representation of 30 percent women repre- and launched a complimentary activity, sentatives. In the Senate and National Elle Est Capable (She Can, She is Able), to Assembly, legal provisions also required target men and women. The two organi- women to be in positions of leadership, as zations, with the support of UNDP, BINUB either president or vice president of both and UNIFEM, developed a comprehensive bodies. Therefore, UNDP and other organi- strategy to engage women in the electoral zations targeted their programmes to build process as voters and candidates and within the capacities of women to run for election. the electoral administration.

The Elis et Fais-toi-élire campaign provides Women Candidates a particular example of the breadth of this UNDP and UNIFEM activities to encourage approach for women candidates and the women to present themselves as candidates deep connections to the peace movement were coordinated through long-standing during the conflict. After almost a decade local partnerships. Prior to the 2005 elec- of developing organizational capacity in tions and again in 2010, the SPPDF organized collaboration with its international partners, the nationwide campaign Elis et Fais-toi-élire the SPPDF launched a major campaign in 2010 to promote women’s political participation. Their campaign trained 258 female QUOTA CONTROVERSIES trainers who were subsequently deployed across the country on a dual mission. First, Arguably, Burundian women candidates had to ‘prove’ them- they led outreach campaigns in some of the selves more than their male counterparts and, for this reason, most remote areas of the country to educate support for women candidates was particularly important. On women and encourage them to register and the one hand, the quota requirements placed a heavy burden to vote (see below). Their second mandate on many women, who were newcomers to the political process was to reach out to women candidates and faced resistance from citizens and other parliamentarians around the country and offer them support that viewed the quota as an ‘easy’ backdoor into government and training for their campaign activities. based on affirmative action more than qualifications. Women also had to deal with fierce competition within the opposition Trainings included leadership skills and parties in the formation of coalitions. Finally, as in any post-con- communication strategies, among others. flict society, politics is dominated by ex-combatant groups, In all, 80 women received training two days which almost invariably, are dominated by men. Burundian before the opening of the campaign for women candidates had to fight to be heard and to demon- parliamentary elections, including women strate their ideas and contributions within this challenging from the incumbent CNDD-FDD, the oppo- context. The training and capacity support programmes by sition party UPRONA and the four smaller UNDP and partners responded to this important need. parties associated with the CNDD-FDD. Another 400 women selected according to their influence in their community received

country report for BURUNDI Lessons Learned in Comparative Perspective 27

a two-day training for the colline elections.38 candidates’ capacities to effectively and effi- UNDP also provided assistance through ciently participate in the ongoing electoral the SPPDF to support women legislative process. By the end of the workshop, 25 candidates by enabling them to engage in women said that they would run for office outreach in their constituent communes. A at the communal level, while 14 women said grant through the SPPDF provided training that they would run for legislative office. to women candidates in the colline elections. UNIFEM, UNDP and BINUB joined Women Parliamentarians forces to ensure equal coverage of the programme nationwide and to provide data UNDP and several other international orga- to orient the group’s advocacy efforts. The nizations have supported women elected to UN also supported the SPPDF in developing office at the national and regional levels. At a three-year action plan and partnership the outset of the process, UNDP supported strategy in order to avoid a vacuum after the a training entitled Gender and Political 2010 elections, when almost 80 percent of Participation for male and female parlia- membership turnover occurred.39 mentarians to help women prepare for the 2010 elections and to sensitize men and Working with Partners for the Promotion of women parliamentarians to the importance Women’s Rights (SPPWR), IFES organized and of women’s political participation. held a workshop to discuss the participation of women as voters and as candidates in the UNDP has also invested in the development electoral process. This workshop, which of networks of elected women. The Associ- took place in late March 2010, was held in ation des Femmes Parlementaires du Burundi Bururi Province, one of the two provinces (AFEPABU) includes 34 women parliamen- with a woman governor. The goal of the tarians and 19 women senators. The group workshop was to reinforce potential women was formed in 2006 and began receiving

38 PACE Final Report. 39 PACE Final Report. 28 Promoting Gender Equality in Electoral Assistance

support from UNDP as well as the Inter-Par- The workshop provided an opportunity liamentary Union (IPU), the Association to sensitize the newly elected women to of Europeans Parliamentarians for Africa their new roles, to exchange information (AWEPA), UNIFEM and IFES during the 2010 and experience, to build coaching relation- elections. AFEPABU was created to open an ships and to encourage knowledge transfer avenue for advocacy and focuses on capac- between incoming and outgoing represen- ity-building for women in decision-making tatives. The workshops brought together positions (including law makers) and reviews almost 1,300 women from all corners of the laws to eliminate discrimination against country. A similar activity was organized for women. Following the 2010 elections, UNDP women MPs and ministers in October 2010, supported the AFEPABU in developing a with 100 participants. Among the outcomes three-year strategic plan for 2012-2014 to of the workshop for MPs and ministers, maximize the ability of the women’s caucus participants sought to create a framework to design, plan and execute advocacy for dialogue between elected women and campaigns and pursue legislative priori- women civil society members. They also ties. The 2012-2014 strategic plan identified identified actions targeting a variety of four priorities: capacity-building of elected stakeholders such as youth, subregional women, the continuation of the Elis et Fais- women MPs, union organizations, media toi-élire campaign, resource mobilization, and male MPs. and legislation around women’s issues. In addition to supporting elected women In order to support a transfer of knowl- at the national level, coordinating women edge between incoming and outgoing representatives at the communal level locally elected women officials, UNDP orga- has met with particular success. In 2009, nized five-day regional workshops in all 17 UNDP held 12 training workshops at the provinces of the country in August 2010. provincial level on leadership and personal

Figure 4: Women’s representation in the House in 2005 and 2010 46% 43% 2005 2010

35% 35% 34% 31% 32%

22% 17% 14%

Government Senatorial Legislative Communal Colline Source: UNDP analysis based on data provided by INEC country report for BURUNDI Lessons Learned in Comparative Perspective 29 development for the 714 women communal members of Parliament, focusing on national councillors and provincial consultations and international law, democratic culture, with the members of the Burundian Asso- international humanitarian law, communi- ciation of Communal Councillors (ABELO). cation techniques and negotiation skills, The provincial consultations resulted in the and leadership management, lobbying and creation of a women’s wing of the associ- advocacy. The Inter-Parliamentary Union ation, the Réseau des femmes élues locales has supported the Burundian Parliament for (RFEL), in order to provide a forum where more than 10 years. This support has focused women could address issues of common on strengthening the capacities of women concern and air their questions about their parliamentarians and the impact of their official responsibilities. UNDP also worked action in Parliament. From 2007 to 2009, a with the RFEL in 2010 to create a three- series of capacity-building activities were year strategic action plan. The women’s implemented. Several coordination meet- wing filled an important gap by educating ings between women parliamentarians, newly elected officials about their duties governmental bodies, CSOs and women’s and focusing on empowerment through associations helped women MPs to define capacity development, leadership training legislative priorities and address discrimina- and conflict resolution and prevention tory provisions in existing legislation. Access throughout the electoral cycle. The women’s to resources and information on women’s wing has become effective in networking rights and gender equality was also facil- with community-based organizations to itated through the establishment of a build partnerships and to identify and over- resource centre at the parliamentary library. come barriers to women’s participation as candidates and representatives. RFEL has Supporting the capacity of women aspi- benefited from the support of a number rants, candidates and parliamentarians is of UN agencies in addition to UNDP, such a critical step in building women’s polit- as UNAIDS, UNIFEM and UNFPA.40 In turn, ical participation. Legislated quotas only ABELO is a member of the East African Local guarantee women’s quantitative presence Governments Association, which includes in parliament; however, their substantive local government associations from Rwanda, participation ultimately determines their Tanzania, Uganda, Kenya and Burundi. This impact on policy and their long-term elec- network may provide Burundian women an toral success. The interventions of UNDP and opportunity to network with other locally other organizations have helped women in elected officials from the region. politics develop more meaningful platforms and establish better communication chan- Other organizations providing capacity nels with their constituents. support to women parliamentarians include IFES, which, in partnership with the local organization SPPDF, trained 53 women

40 Interview with Marie Chantal Habonimana. Former Chair of ABELO, Former President of Network of Locally Elected Women Officials (RFEL). 25 October 2011. 30 Promoting Gender Equality in Electoral Assistance

Convening Political Parties to Advance the 2010-2015 session of parliament. These Gender Equality include issues of land rights, inheritance and gender-based violence.41 The resulting While much effort has been made to increase compact on gender priorities for parlia- the capacity of women elected to office, an ment was signed by the five political parties important area of support for international (KAZE/FDD, PMP, UPRONA, Frodebu Nyakuri, assistance has focused on strengthening UPD) that participated in the four elections gender mainstreaming within political and by an independent candidate. At the parties and engaging men in efforts toward time of writing, talks were underway with gender equality goals. During the 2010 elec- the CNDD-FDD for its signature. In addi- tions, UNDP convened initiatives aimed tion, to educate and inform CSOs, political at leaders of political parties on the inte- parties, the international community and the gration of gender equality into their party general public for the 2010-2015 parliamen- platforms and internal governance. UNDP tary term, UNDP printed and distributed 800 used its impartial convening power to bring posters in Kirundi and French. together political party leaders and provide a forum for discussion with CSOs to discuss Finally, in an untraditional initiative, women’s participation in the elections and UNIFEM provided an incentive programme especially their placement and position on for political parties to promote women’s the candidate lists. participation at the request of the ministry responsible for promoting gender equality UNDP supported the introduction of a (the Ministre des Droits de la Personne gender equality platform by political parties Humaine et du Genre, MDPHG), the CENI in parliament. As part of the outreach to and Burundian political parties and women political parties as a whole, UNDP supported candidates. UNIFEM offered financial incen- the development of gender priorities at the tives to parties by paying the full cost of outset of the new parlia- filing for lists topped by a women candidate mentary session. During and a proportional rate based on how many a two-day forum, 80 women appeared among the first three representatives of candidates on the list, the third through women’s organiza- sixth candidates, the sixth through ninth tions and networks candidates, etc. This programme contrib- from various political, uted to the 21 percent of party lists that were economic, socio-cul- headed by women and to the presence of 81 tural and political women in the top three spots of their lists party groups identi- and the total of 347 women candidates out fied 16 priority areas for of 944 total (36.8 percent) for the National gender equality that Assembly. Providing such incentives is not a they believed should standard approach in UN programmes. be addressed during

41 Fonds de consolidation de la paix au Burundi: Rapport narratif final sur les progrès realisés. UNDP. 2010. country report for BURUNDI Lessons Learned in Comparative Perspective 31

Long-Term Support to The support for women’s CSOs was a crit- Women’s Civil Society ical factor for subsequent achievements during the transition period and the 2005 UNIFEM, UNDP and others played a funda- and 2010 electoral cycles. The development mental role in supporting the formation of of human resources, institutional capacity, a formal women’s movement at the end of and lobbying and organizational skills set the conflict. These investments positioned the stage for the campaigns to enhance the women to participate in the Arusha Peace gender equality provisions of the Burundian Process, a critical moment for rebuilding the legal framework and the political participa- country and for anchoring a commitment to tion of women during the 2005 and 2010 women’s role in government. Likewise, this elections. long-term commitment enabled women’s groups to progressively organize themselves more efficiently for the 2005 and 2010 Mainstreaming Gender in elections. State Institutions Although not the focus of this study, several Key amongst the actors that emerged from activities can be highlighted for their this long-term partnership is the SPPDF. support for mainstreaming gender into state The SPPDF was initially created in 2004 institutions. UNDP supported workshops to as a reflection of the women’s movement promote the engagement of MPs to main- during the Arusha Accords, but struggled stream gender equality into their legislative with political and ethnic tensions through institutions. Working with two national the 2005 elections.42 Over time, however, consultants, UNDP supported the develop- the ongoing support of a variety of inter- ment of a post-election, multi-year training national actors took effect. Initially, Search and capacity development plan to main- for Common Ground, International Alert, stream gender at all levels of elected office. Africare and ACCORD (South Africa) trained Targeted support was provided to main- the first group of women who later went stream gender issues into state institutions, on to become some of the strongest voices such as the elaboration of a gender strategy in SPPDF women’s civil society move- for the Ministry of National Defence and ment. The core group subsequently trained Ex-Combatants. UNDP, in partnership with many others and became influential in the UNFPA, assisted in an evaluation and update creation of CAFOB, Dusherhamwe, Women of the national gender strategy in partner- for Peace and other organizations. Through ship with the Ministry of National Solidarity, the 2010 elections, these organizations Human Rights and Gender. mobilized women to participate as voters and candidates, encouraged solidarity and non-violence at the community level and assessed women’s political participation nationwide following the elections.

42 Falch, 2010. 32 Promoting Gender Equality in Electoral Assistance

4. LESSONS LEARNED

4.1. Good Practices change and learning. This demonstrates several best practices, including the impor- The outcomes of the international commu- tance of taking a long-term outlook on nity’s efforts to support women’s political change. Success was grounded not only in participation in Burundi can be viewed in building on structures, but also on compe- terms of immediate outcomes and longer- tencies, such as the view of women as term frameworks for development. In peace-builders in society, and on solidifying the immediate outcomes, the high level a robust women’s movement. Adopting a of participation of women as voters and long-term approach also allowed partner candidates, the outcomes in parliamentary organizations to overcome internal chal- representation exceeding quota require- lenges and divisions. ments and the incorporation of women into the electoral administration were clear Early trainings by groups like International gains, despite the troubled political climate. Alert provided women with basic organi- In a broader perspective, the evolution of zational and capacity-building skills not the women’s movement and the ripening necessarily delivered for the purpose of of its ties with the international support increasing their participation in elected community evidenced an effective synergy bodies. These skills trainings, which began approach. immediately after the conflict, ultimately provided a foundation for the women’s Long-Term Engagement political participation. with Women’s Movement The achievements of 2010 were the product Synergy of the Donors of over a decade of partnership between The synergy among the donors oper- local and international actors and of the ating under UNDP coordination allowed evolution of a coherent and organized for responsive programming and women’s movement committed to social country report for BURUNDI Lessons Learned in Comparative Perspective 33

flexible funding, often drawing on a variety allow for consultation and the diffusing of traditional and innovative funding of potential conflicts through structured sources. Traditionally, the fundamental chal- dialogue. lenge for women and elections is funding, as technical electoral support (EMBs, voter Capitalizing on Women registration and other aspects of the process) as Peacemakers has often not included a priority focus or consideration of gender mainstreaming International support was effective in aspects. The multi-donor Peacebuilding recognizing and capitalizing on Burundian Commission funds enabled UNDP to prior- women’s role as peacemakers. Historically, itize gender mainstreaming during a crisis women were able to bridge the ethnic and moment shortly before the elections. Like- party boundaries through their lobbying wise, broad collaboration between national and political associations. Assistance and international organizations strength- providers effectively drew on this experience ened various initiatives and helped them to prevent and mitigate election violence overcome logistical and political pressures, in 2010. In particular, the use of grassroots as in the case of the Amatora Mu Mahoro communication channels and traditional violence-prevention initiative. networks was effective in this area.

Political Actors Ongoing Legal Review and Oversight Work with political actors, including women The women’s movement, with the support of candidates, women parliamentarians and the international community, has continually political parties as a whole, is an important returned to the Burundian legal framework area of good practice. Prioritizing the needs as a source for advocacy and improve- of candidates and recently elected women ment of women’s participation. Despite the representatives responded to one of the triumph of the quota campaign in 2005, most significant barriers to entry for women activists successfully maintained pressure to representatives. Likewise, the development analyse and improve the framework during of the compact on gender priorities was an the 2010 elections. The compact on gender important strategic tool to bring gender priorities, which identified legislative priori- issues to the forefront for elected officials ties for the upcoming session of parliament, (women and men) and to collaboratively was also a valuable strategy to ensure that set goals for the upcoming parliamentary the legal framework continues to promote session. It contributed to the sensitization women’s increasing participation. of male representatives through a practical exercise that constructed gender main- Use of International Instruments streaming in approachable, concrete terms. and Regional Targets for Women The formal networks created between Burundi’s signatory status on a variety of women representatives as well as the regional and international agreements informal channels of communication on gender provided the basis for much of opened during the compact process may the advocacy during the 2010 elections. In 34 Promoting Gender Equality in Electoral Assistance

with the process and participate in greater numbers. The support of a UNDP gender advisor and the inclusion of gender as a specific and an integrated topic in capacity support activities by UNDP, IFES and others was a good practice and could be taken a step further in the future – for example, by drawing more on the highly popular BRIDGE resources or integrating gender more deeply into operation trainings. The CENI can build on its success in this area by documenting its achievements, analysing areas for future improvement and sharing its approach with other regional EMBs.

Rapid Response for Women during Post-Conflict Transition By supporting women to participate in a conference preceding the Peace Accords and putting pressure on leaders to ensure particular, targets set forth in international their participation in the peace talks, women agreements helped shape the dialogue gained a seat at the table during a critical around mainstreaming gender in Burundi moment of decision-making for the future and aided in establishing goals. of Burundi. In Arusha, women secured the quota in the new constitution, which laid Gender Equality in the CENI the foundation for their political advances The placement of women in executive posi- in 2008 and 2010. This came partly as a tions of the CENI, as well as throughout its result of the funds and pressure applied by local representative offices, has made a international assistance providers. It is a clear statement in favour of women’s inclu- recognized good practice to take advantage sion. The move demonstrates the political of major political openings such as peace will and respect for women in positions of negotiations to ensure gender targets are responsibility and provides a standard for established from the outset. parties and other actors to live up to. The leadership of the CENI constituted a good Developing UNDP’s Capacities for practice. Women’s leadership in the CENI Gender Mainstreaming helped ensure a more gender-sensitive Electoral assistance missions face demanding approach to electoral administration (for deadlines and extensive logistical challenges, example, targeted voter identification) and which often result in insufficient capacity to their visibility in the pre-electoral period manage gender throughout all areas of elec- encouraged Burundian women to identify toral assistance. Therefore, the presence of a country report for BURUNDI Lessons Learned in Comparative Perspective 35 dedicated senior gender advisor was critical positions. International assistance made for ensuring that gender issues were given only limited progress in overcoming this the priority that they required. The presence major barrier during the 2010 electoral of a gender advisor throughout the electoral cycle. While public sensitization activi- cycle is identified as a good practice as well, ties, leadership training for candidates and as capacity development and civic education engagement with male party leaders were involved in women’s political participation positive steps in addressing this issue, they are long-term actions. The gender advisor were inadequate, given the extent of the used the management role of the electoral barrier. Engaging with perceptions of gender assistance project by UNDP and her posi- roles is an ongoing activity that needs to be tion in the senior management team of the addressed throughout the electoral cycle, CO and UNCT to reach out to the CENI and not only during election periods. different key government decision makers to develop a good partnership and position a Local Elections gender agenda in the process. She provided technical advice and support to the CENI Globally, women in developing states often and to CTA and team whenever they needed enter politics through local-level office. it to communicate on gender-related issues. Hence, the absence of a quota for women She used the information at the CENI level to at the colline level remained a serious package in a practical and easily understand- impediment for women’s participation. The able way and made it available to the CENI. outcome of the local elections demonstrates this clearly, as only 4 percent of colline leaders are women after the 2010 vote. 4.2. Further Opportunities

Engaging with Perceptions of Supporting Gender through the CENI Women’s Public Roles The CENI was one of the strongest advocates Burundian political party culture represents for mainstreaming women’s political partic- an ongoing barrier for women candidates ipation; however, it received only limited and elected officials. In local culture, women support from international assistance are not expected to speak in public and providers in this area. This is considered therefore risk social censure for perceived a missed opportunity: ideally, assistance inappropriate behaviour. According to providers should seek to identify the stron- Ashild Falch’s research, “[Burundian] polit- gest actors in the field of gender equality as ical leaders are resistant to letting women well as the weakest and develop relevant speak up and engage in political discussions, strategies around them. By highlighting local and women party members often appear to leaders in this area, assistance providers can be subordinate to their male colleagues.”43 reinforce this local leadership and build on This leads to the exclusion of women from progress to date. political party decision-making forums and

43 Falch, 2010. 36 Promoting Gender Equality in Electoral Assistance

Responding to Boycott Dynamics order to more effectively promote women’s participation and to evaluate progress, it is The boycott was implemented immedi- necessary to understand more broadly how ately after the communal elections and women and men can jointly contribute to profoundly changed the dynamics of the women’s increased effectiveness and impact electoral process, affecting women’s polit- in decision-making. ical participation. Women’s participation in politics involved immediate goals, such as number of seats won, but also longer-term Incentives for Parties and Candidates perspectives, including women’s active inte- Although some practices were enacted in gration into opposition parties. The emphasis order to respond to immediate challenges on working exclusively with women candi- and needs, their long-term impacts may dates in the elections ultimately overlooked outweigh short-term gains. Notably, the these broader issues. One effect of the provision of financial incentives in the form boycott was to withdraw the women candi- of filing fees or other monetary inducements dates from opposition groups from political is an undesirable practice by international competition and thus largely from interna- organizations. These measures are effective tional assistance activities. This is a missed in increasing the number of women placed opportunity in the short term that may have at the top of lists and elected to office, which, potentially negative effects in the long term in turn, may give women an otherwise unat- as well, including creating an experience gap tainable opportunity to prove themselves between women politicians in the incum- in office and pave the way for others. Some bent party and in opposition groups and drawbacks of this approach include rein- missing out on important conflict-preven- forcing the image of women as “illegitimate tion opportunities within the opposition. The politicians”44 artificially placed in govern- male leadership of opposition parties made ment and developing an expectation for the boycott decision. If assistance providers similar financial support in the future. In had given equal priority to women’s political turn, this may diminish the image of women leadership,, their role as peace-builders and in politics over the long term. These incen- mediators could have made a positive effect tives are not a sustainable practice, as they on the course of events. Likewise, building are unlikely to contribute to long-term women into the leadership of opposition change of perceptions and values of polit- groups would have been a strategic oppor- ical parties that would be the basis of lasting tunity in anticipation of the regularization of inclusion. They may also create a misleading relationships in the future. inflation of the gains made in incorporating women in political parties in 2010. Likewise, Understanding the Impact providing any form of financial support to of Women Elected to Office individual candidates of any sex is viewed as an undesirable practice, first and foremost Progress in gender equality in Burundi was because of questions of donor neutrality. largely measured in quantitative terms. In

44 Falch, 2010. country report for BURUNDI Lessons Learned in Comparative Perspective 37

5. CONCLUSION

There has been considerable progress since the 2005 elections, most notably in the increase in women running for, and elected to, political office.

Today, Burundi is among the topmost in electoral channels in the form of the oppo- the world in terms of women’s represen- sition boycott. This altered the sphere of tation in legislative bodies. Over 10 years engagement for women in politics and, in of mobilization and lobbying have also the absence of adapted tools for supporting placed Burundian women’s civil society in women in non-traditional political situations, a strong position as defender and advocate women members of the boycotting groups for progress in this area. Elected women’s found their representation diminished. associations have also matured and overcome internal divisions sufficiently to work Recommendations for enhancing inter- together towards common goals during the national assistance for women’s political 2010 process. participation: zz Invest in long-term partnerships. Quantitative progress masks ongoing chal- Women’s skills, networks and political lenges, however. The large number of capital are built over time and often women on party lists and elected to office begin at the grassroots level. Long-term is largely the result of affirmative action capacity development in leadership and measures, as is apparent in the colline elec- networking skills lays the foundation for tions where the quota was absent. Cultural enhanced political participation. norms and structural barriers, such as lower levels of education, continue to hinder zz Seek strength in numbers. Pooling women who are elected to office. Finally, skills in a variety of areas – from media in 2010, a significant proportion of polit- to violence prevention to civil society ical activity took place outside the official strengthening – creates dynamic and resilient networks of engagement. 38 Promoting Gender Equality in Electoral Assistance

zz Coordination of resources. Basket assistance mission. The gender advisor’s funds and dedicated gender working role is to support the EMB staff and to groups amongst donors enable broad work closely with all staff in the UNDP geographic and thematic coverage of electoral assistance team. programmes as well as budget effective- zz Seek sustainable incentives for ness. promoting women candidates. zz Engage with male leaders. Male leaders Consider the short- and long-term of political parties and in parliament advantages of any incentive programme often have the greatest impact on and strive to promote only those incen- women’s participation in those arenas. tives that contribute to sustainable Men should be a part of the dialogue growth in women’s political develop- process, sensitized to the issues and ment and do not jeopardize perceptions building a base of support identified about the neutrality of donors. from within their ranks. zz Be responsive to non-traditional polit- zz Bring local skills to the national level. ical contexts. When faced with non-tra- Women’s unique strengths at the local ditional political contexts such as level can provide singular benefits during boycotts, assistance providers should an electoral period. Women’s traditional seek flexible and creative solutions to roles in peace-building and grassroots ensure that women candidates are not communications are examples. marginalized or disproportionately disadvantaged. zz Be vigilant with the legal framework. The legal framework is often the first zz Evaluate quality and quantity. Assis- step in making practical gains in gender tance providers should seek to employ equity. In general, there is space for evaluation indicators that measure quan- constant improvement and advocates titative progress and qualitative gains in should continually seek to enhance the women’s political participation. Success framework. may not always be equated with only one or the other of these measures. zz Identify local strengths as well as weakness. Gender assessments should zz Engage early. Support for women’s identify the strongest areas for gender participation must be provided well in promotion in a country, including key advance of an election; ongoing support actors and institutions, and identify is required in each step of the election creative ways to further their success. cycle. Gender must be thought of at the beginning stages of the technical elec- zz Work with dedicated gender advisors. toral support, not after. Ensuring a gender mainstreaming strategies requires examining all aspects of zz Educate broadly. Inform women about electoral administration. In order to inte- laws so they can use them. Use civic grate gender concerns fully, a knowl- education tools to ensure that women edgeable gender advisor may provide have the information that they require much needed expertise to any electoral to make informed decisions. country report for BURUNDI

Lessons Learned in Comparative Perspective 41 42 Promoting Gender Equality in Electoral Assistance

United Nations Development Programme Bureau for Policy and Programme Support One United Nations Plaza New York, NY, 10017 USA Tel: +1 212 906 6305 For more information: www.undp.org/governance

2014country report for BURUNDI