InfoBrief SEPTEMBER 2011
Mainstreaming Gender in REDD in Tanzania This briefing includes information and strategies to support REDD participants in understanding and realizing gender equality and women’s empowerment in Tanzania.
What is REDD?
Key Messages REDD will often have gender-differentiated impacts; women are generally more vulnerable to adverse im-pacts and loss of benefits in REDD. Reasons for pursuing gender equality and women’s empowerment in REDD include: respecting women’s rights, realizing REDD’s full effectiveness, and meeting national and international obligations. There will also be challenges, including that changing gender relations means grappling with broader histori-cal, cultural, political, socioeconomic issues. REDD participants can draw on (and contribute to) many existing strategies and resources. Gender is not yet well addressed under the UN FCCC, or international REDD safeguards, but it is improving. Other international instruments also establish strong gender rights mandates, (e.g., CEDAW.) Gender could be strengthened in the draft National REDD Strategy, but other national laws, policies and strategies also protect women’s rights and promote their equality and empowerment.
Today, the impacts of deforestation and forest degradation are significant contributors to climate change. ‘Reduced Emissions from Deforestation and forest Degradation’ (REDD), is a mechanism to address this problem by offering financial benefits for conservation and forest enhancement efforts. But, as REDD development takes shape in Tanzania and internationally, it is essential to ensure it’s done right, which means potential challenges and risks are properly considered and addressed.
Why incorporate gender in REDD? REDD will have gender-differentiated impacts, due in part to women’s and men’s different powers, roles, rights and responsibilities in forest governance and other contexts. Gender is a social construct that pre-exists, but can be reinforced (or changed) by REDD at all levels and phases. Women generally have: distinctive roles in forest management, despite their important forest knowledge and skills; unequal access to justice, markets and capital, formal education, employment, and other resources; limited formal and informal powers and participation in forest governance systems; greater responsibilities for food crop production; food preparation; and collection of fuel wood, wild foods, medicines, water, and other natural resources; insecure land and tenure rights, often due to lack of understanding and respect for statutory rights; and greater exposure to gender based violence. More generally women face wide discrimination, and are thus more vulnerable to bearing the costs of
REDD and losing out on its benefits. But, there are many reasons to seek gender equality and women’s empowerment in REDD, including legal and ethical obligations to respect women’s rights, including freedom from discrimination. Many international and national laws, policies and strategies, as well as donors, investors and others engaged in REDD, increasingly support gender equality principles. Additionally, engaging women can enhance REDD benefits and effectiveness. Indeed, gender equality in REDD will result in broader social benefits as women are critical to family and community wellbeing.
What challenges can we expect? There are clear benefits to integrating gender equality and women’s empowerment in REDD; however, there are many challenges that must be addressed for such to occur. Gender issues are complex, and often not REDD specific (a challenge, and a benefit). REDD proponents need to understand and address gender issues within their broader—historical, political, socio-economic, cultural, ecological—contexts, and recognize diversity among women within and across communities.
Ensuring gender equality and women’s empowerment ultimately means transforming relations and institutions; this takes time and dedication, particularly where discriminatory beliefs are strongly held. Changing gender relations can sometimes exacerbate risks to women; for example, further increasing workload. Gaps in political will, awareness, information and capacity will have to be overcome. Gender mainstreaming may require additional resources—time, financial, human and technical. Fortunately, most gender issues in REDD are not ‘new’. There is a wealth of knowledge and resources for gender mainstreaming to build upon (and further contribute to)... We don’t have to start from scratch. Photo copyright TFCG/MJUMITA 2011
What are some strategies for realizing gender equality and empowering women? Draw on existing resources. While limited, resources on gender in Community Based Natural Resource Management (CBNRM), Participatory Forest Management (PFM), and REDD are emerging. REDD participants can also link with other existing resources, such as government gender focal points, technical experts and civil society organizations working on gender. REDD stakeholders can contribute to further learning through, for example, establishing vertical and horizontal networks and facilitating policy – practice links. Be creative and seek multiple entry points for change. Changing actions with regard to gender roles can change ideas... and vice versa. Support women and men in learning-by-doing in new roles, and in engaging in respectful, challenging discussion about gender. Take an empowering approach to gender mainstreaming itself, including by building on women’s own knowledge, values, and systems. Enhance women’s full and effective participation, representation, and information sharing at all levels. This can include designing processes to address women’s interests and needs: hold meetings at times and places that work for women, use accessible communication mediums, create opportunities for women
to contribute (not just receive) information, and recognize diversity among women. Also support women in holding leadership, management, and other positions that go beyond just a ‘seat at the table’. Engage men too. Some ideas include supporting men’s capacity to take on new gender roles, sharing positive case examples, and hosting events to bring men together to discuss gender issues. Enhance women’s and other stakeholders’ capacity and resources for gender mainstreaming. Strengthen women’s capacity and opportunity to engage in REDD, and to claim rights and benefits, for example, by providing paralegal services. Gender training is also useful for all stakeholders. Promote gender equality in REDD payments management and distribution, for example, by linking community forestry and women-centered micro-finance institutions, and by setting guidelines for gender-sensitive use of collective funds. Ensure respect for women’s rights, and equitable cost and benefit sharing, in forest conservation and management. For example, help women secure their land rights; ensure increases in women’s workloads are voluntary and fully compensated; recognize women’s knowledge, skills, abilities; engage women in multiple roles, including those seen as “’men’s;’ and link adaptation, sustainable agriculture, and REDD in gender-sensitive ways. Mainstream gender in assessment, monitoring, and reporting through empowering means. In addition to capturing gender disaggregated data, this can include ensuring women’s full and effective participation, and considering women’s rights and interests. Leverage (and help strengthen) gender issues in international and national law and policy, for example, by promoting full implementation and enforcement of existing provisions, and by advocating for stronger gender provisions in the National REDD Strategy, National Forest Programme, etc. Treat gender mainstreaming as a process – to be carried out through time – rather than a one-off event. Walk the talk. Ensure gender equality and women’s empowerment in your own work.
Mainstreaming Gender is Not Something New…
Instead, a strong foundation both nationally and internationally supporting gender equality and women’s empowerment exists, and REDD can and should take advantage of these frameworks.
How is gender addressed in international frameworks? Gender concerns are not yet well captured under the United Nations Framework Convention on Climate Change (UN FCCC), particularly with regard to mitigation. However, more women are participating in delegations, and Conference of Parties’ decisions increasingly reflect gender concerns. Major international REDD safeguards only weakly address gender. These include: UN FCCC Guidance and Safeguards; World Bank operational policies; UN-REDD draft guidance; REDD+ Social and Environmental Standards; and the Climate, Community & Biodiversity Standards. However, as safeguards are still developing, this weakness can be addressed. Other international and regional instruments recognized by Tanzania provide a strong mandate for gender integration in REDD. Such instruments affirm freedom from discrimination and gender equality in the enjoyment of all human rights, and include other provisions important for women. For example: Universal Declaration on Human Rights (UDHR) (1948) addresses core civil, political, economic, social and cultural rights of women and men. International Convention on Civil and Political Rights (ICCPR) (1966) articulates rights to equality before the law, participation, and protection from cruel, inhuman, or degrading treatment. International Covenant on Economic, Social, and Cultural Rights (ICESCR) (1966) articulates rights to just and favorable working conditions, an adequate standard of living (including food and housing), health and education. Convention on the Elimination of All Forms of Discrimination Against Women (CEDAW) (1979) addresses, among others, equality in participation and decision making, and particular concerns of rural women. Vienna Declaration (World Conference on Human Rights) (1993): Beijing Platform for Action (1995) includes specific recommendations on improving women’s opportunities for participation and power, women’s
human rights, and women and the environment. African Charter on Human and People’s Rights (1981), Protocol on the Rights of Women and Africa (Maputo Protocol) (2003) affirms all basic, internally recognized rights for women, and protections from traditional practices harmful to women’s health. Universal Declaration on the Rights of Indigenous Peoples (UN DRIP) (2007) recognizes that particular attention is needed in realizing some rights for women and other vulnerable people. SADC Protocol on Gender and Development (2008) deals with, among others, participation, representation, and water and land rights. Multilateral environmental agreements are also relevant. For example, the Convention on Biological Diversity provides a mandate for addressing gender issues in forest conservation, and examples of how gender might be integrated into the UN FCCC, including a 2008 Gender Plan of Action.
How is gender addressed in national frameworks? The current draft National REDD Strategy (December 2010) is not very strong in regards to ensuring gender equality and women’s empowerment. While proposed actions on issues like tenure security, benefit sharing, and assessment could include a gender component, specific references to gender remain limited. This gap can be addressed in further drafts and related guidance. Additionally, other national laws, policies, and strategies do recognize gender concerns, protect women’s rights, and promote equality and empowerment (see table). These can help inform the National REDD Strategy. Despite the below, there are gaps in the treatment of gender in the national legal framework. For example, the Environmental Management Act (2004) and regulations on environmental impact assessment and audits (2005), only have weak gender provisions. There are also still conflicts between customary and statutory laws regarding women’s land inheritance. Further, many legal provisions are not fully or effectively implemented or enforced.
Natural resource and environment instruments Instrument
(Mainland) Environmental Policy (1997) Forest Policy (1998)
Recognizes the importance of women's participation and empowerment, and the burden of women's work load Mentions gender in two (of 41) policy statements: commmunity forest extension services should be gender sensitive (PS 7) and “...forest land and tree tenure rights will be instituted for local communities including ...women.” (PS 39)
Forest Act (2002)
Specifies that village land forest committees should be gender balanced
Forest Programme (2001-2010)
Promotes gender mainstreaming and recognizes the need for ‘gender balanced community participation’ and ‘gender issues consideration’
Energy Policy (2003)
Recognizes gender as a cross-cutting concern
Agriculture Policy (1997)
Promotes women’s access to land, credit, education and information
(Zanzibar) Forest Policy (1999)
Specifies that women and men will be supported in tree-growing, and requests a gender policy be established for forestry sector development
Agriculture Policy (2000)
Supports women’s access to control of productive resources
Other national instruments (Mainland) Constitution (as of 2001)
Prohibits gender-based discrimination
Population Policy (2006)
Includes a goal of attaining gender equality, and supports development of gender disaggregated data and gender mainstreaming
Women and Gender Development Policy (2000)
Emphasizes gender mainstreaming in all sectors
Land Act (1999)
Supports “the right of every woman to acquire, hold, use, and deal with land …to the same extent and subject to the same restriction … as the right of any man”
Village Land Act (1999)
Stipulates the number of women required for committees and quorums, requires that village adjudication committees treat the land rights of women (and pastoralists) the same as men (and agriculturalists), and promotes gender equality in the assignment of customary rights.
Rural Development Strategy (2001)
Promotes women’s access, ownership, and employment in agriculture; mainstreaming gender in local governance; and improving women’s access to justice
MKUKUTA II (2010 – 2015)
Includes goals and targets on gender equality and women’s empowerment. These are focused on employment, education, and health, as well as land titling. There is little recognition of gender issues in natural resources use or agricultural development
Micro-Finance Policy (2000)
Provides guidelines on making financial services accessible to women
(Zanzibar) Vision 2020
Supports women’s freedom from discrimination, full participation, and equal access to opportunities, resources, property ownership, credit access, etc.
Policy on Protection and Development of Women (2001) and Gender Policy (2010)
Aim to protect women’s rights, realize equality in opportunity, and mainstream gender in national frameworks
Land Tenure Act (No. 12) 1992 and Land Policy (1993)
Aim to protect women and children’s matrimonial property, though women’s tenure security remains weak. The revised Land Policy (2011) can strengthen women’s land rights.
This briefing is based on a more complete report available at http://www.tnrf.org/genderreport.pdf. It also draws on the summary report of the CARE/ HIMA Gender and REDD Training Workshop (Zanzibar, April 2011). The laws, policies, strategies, and other issues reviewed are an illustrative subset. They are not exhaustive. © Copyright Tanzania Natural Resource Forum 2011 - This brief was prepared by Jessica Campese