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Chapter 03 Women's Participation and a Better 23 CHAPTER 03 WOMEN’S PARTICIPATION AND A BETTER UNDERSTANDING OF THE POLITICAL “If the goal of a peace process is only to end violence, then women — who are rarely the belligerents — are unlikely to be considered legitimate participants. If the goal is to build peace, however, it makes sense to gain more diverse inputs from the rest of society.” Marie O’Reilly, Andrea Ó Súilleabháin, and Thania Paffenholz, “Reimagining Peacemaking: Women’s Roles in Peace Processes”1 38 Chapter 3. Women’s Participation HIGHLIGHTS FROM THE RESOLUTIONS Resolution 1325 Resolution 1820 Urges Member States Urges the Secretary- to ensure increased General and his representation of Special Envoys to invite women at all decision- women to participate in making levels in discussions pertinent national, regional and to the prevention and international institutions resolution of conflict, the and mechanisms for the maintenance of peace prevention, management, and security, and post- and resolution of conflict conflict peacebuilding 2000 2008 2009 Resolution 1889 Urges Member States, stages of recovery processes, international and regional through […] promoting women’s organisations to take further leadership and capacity to measures to improve women’s engage in aid management and participation during all stages of planning, supporting women’s peace processes […] including organizations, and countering by enhancing their engagement negative societal attitudes about in political and economic women’s capacity to participate decision-making at early equally 39 Resolution 2122 Requests the Secretary- through consultations with General and his Special civil society, including Envoys and Special women’s organizations, Representatives to United in discussions pertinent Nations missions, as part to the prevention and of their regular briefings, resolution of conflict, the to update the Council on maintenance of peace and progress in inviting women security and post-conflict to participate, including peacebuilding 2013 Resolution 2122 Further expresses its reintegration programs, intention to include security sector and provisions to facilitate judicial reforms, and women’s full participation wider post-conflict and protection in: election reconstruction processes preparation and political where these are processes, disarmament, mandated tasks within the demobilization and mission 40 Chapter 3. Women’s Participation Women have always participated in peace negotiations New empirical data is making it harder for the skeptics and peacebuilding, but always at the informal level and to doubt the positive impact of women’s leadership rarely visible to the formal peacemakers and keepers and participation in peace processes. This chapter of peace. Women have surrounded buildings to make presents a growing body of research that connects leaders stay in the room, such as in Liberia; they have the inclusion of women in peace processes—including elected themselves as a third force, such as in Northern national dialogues and post-conflict implementation of Ireland; they have demanded that justice be part of any peace accords—with more durable and stable peace. It peace process, such as the Mothers of the Plaza de also highlights both good practice and implementation Mayo; they have rallied the country with calls for peace, gaps, and proposes comprehensive recommendations like the Women in Black in Serbia. Despite their heartfelt on the way forward. efforts, statistics collected by international organizations, focusing on formal processes, record only a small percentage of women, if any, involved in peacemaking.2 INCLUDING WOMEN IN PEACE As a result, a great deal of effort and programming at PROCESSES the international level has gone into including women in formal peace processes and in the formal politics of the The best-known and most celebrated diplomatic country concerned. agreement to be settled in 2015 was not to put an end to a war, but to prevent one. After many years of failed At a technical level, this has meant that a great deal negotiations and decades of enmity, the Republic of of donor money has been poured into women’s Iran and a group of countries formed by the United programmes that attempt to develop political leadership States, Russia, China, France, the United Kingdom, for women in formal processes. This is important, and Germany reached a historic deal to curb Iran’s and there must be a sustained effort to increase their nuclear programme. One important feature of this numbers, because research shows that this has an diplomatic breakthrough was the prominent leadership important impact. However, we must also look at ‘politics’ of three women, Federica Mogherini and Helga and ‘peacemaking’ differently—not only as a set of actors Schmid on the European side and Wendy Sherman around a negotiation table, but as a comprehensive for the United States. They built on the previous work process within a society that is inclusive, diverse, and of another woman, Catherine Ashton, the EU’s chief reflective of the interests of the whole society. The diplomat until late 2014. They were all credited by present programmes put forward by the international their colleagues on the Western side for leading the community tend to be extremely narrow: just to bring a negotiations and ensuring a deal was reached.3 Yet, female body to the table with some technical expertise. this is a decidedly uncommon sight. Most of the data that is collected and circulated widely is Many actors involved in mediation and conflict about this number. As seen below, though this does have resolution remain resistant to including women, a direct impact, there must be a collective commitment claiming a lack of evidence about the positive and a qualitative change in the understanding of impact of women’s participation.4 They are wary of ‘inclusive’ politics in the context of conflict situations, overloading or derailing the process, and assert especially by institutions such as the Department of that their performance as mediators is not based on Political Affairs and the Department of Peacekeeping inclusiveness, but on effectiveness.5 Operations at the UN and their counterparts in Member States. Over the last few years, there have been many This definition of ‘effective’ is erroneous. positive changes within these institutions but a great deal More than half of peace processes that reach an remains to be done. Strengthening their gender capacity outcome lapse back into conflict within the first five is one way to move forward. years. Women activists rightly point to a history 41 of peacemaking littered with examples of failed The positive effects of women’s inclusion mediation attempts and broken peace agreements that prove that traditional models cannot be justified Based on research undertaken by the Graduate Institute by existing assumptions about what works and what in Geneva from 2011 to 2015, an in-depth analysis does not. As one activist has remarked, few patients of 40 peace processes since the end of the Cold would choose a heart surgeon with only a 50 per cent War, academics have shown that in cases where chance of success, and yet the international community women’s groups were able to exercise a strong continues to choose operating models with a low influence on the negotiation process, there was a effectiveness rate, even when presented with evidence of much higher chance that an agreement would be better options.6 reached than when women’s groups exercised weak or no influence.9 In fact, in cases of women’s participation and strong influence, an agreement was almost always reached. Furthermore, strong influence of women in negotiation processes also Women activists rightly positively correlated with a greater likelihood of point to a history of agreements being implemented. When analyzing commissions set up after the peace agreement to peacemaking littered implement major aspects—from drafting and adopting with examples of failed a new constitution, to monitoring disarmament or mediation attempts and a ceasefire, to setting up a truth and reconciliation broken peace agreements commission—the research found that the more that prove that traditional specifically an inclusive composition of these commissions is written into the agreement, the more models cannot be justified effective they have been in practice.10 by existing assumptions about what works and what Despite claims of the risk of overburdening processes does not. through women’s inclusion, in these 40 case studies, there was not a single case where organized women’s groups had a negative impact on a peace process, an observation that does not hold true for other social actors.11 Quite the contrary, one of the most repeated The issue of ‘effectiveness,’ of ‘what works’ is, at the effects of women’s involvement in peace processes same time, core to the justifications for the inclusion of was pushing for the commencement, resumption, women. The advocacy behind resolution 1325 rests on or finalization of negotiations when the momentum the argument that under the equality provisions of human had stalled or the talks had faltered. rights documents, including CEDAW, women have the right to full and equal representation. This is buttressed This finding is complemented by recent statistical by recent research that provides concrete evidence that analysis based on a dataset of 181 peace agreements women’s participation is linked to better outcomes in signed between 1989 and 2011.12 When controlling general, and that the inclusiveness of peace processes for other variables, peace processes that included and the democratization of conflict resolution are crucial women as witnesses, signatories, mediators, and/or to sustained peace and stability.7 Despite this continuing negotiators demonstrated a 20 per cent increase in the to be openly or implicitly questioned and doubted, the probability of a peace agreement lasting at least two body of empirical research illustrating the positive role of years.13 This percentage increases over time, with a 35 women’s participation only continues to grow.8 per cent increase in the probability of a peace agreement 42 Chapter 3.
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