Displaced Women - Rights
and Resettlement North & East Sri Lanka: 2003
Center
for the Study of Human Rights
--
Sophia Elek
At present, thousands of displaced women
throughout the North and East of Sri Lanka are leaving the camps, villages and
homes where they have endured nineteen years of conflict. They will meet an uncertain future – facing
a further upheaval that for some may be a final chapter to a life shaped by
displacement.
A number of recent studies document the
overall situation of Internally Displaced Peoples (IDPs) within Sri Lanka,
while internationally a body of work exists on factors affecting women in
conflict. However, the Centre for the
Study of Human Rights (CSHR) embarked on this study with the aim of enhancing
understanding of the specific experiences and needs of women IDPs within Sri
Lanka. Our focus was on the factors
affecting women following the February 2002 Ceasefire Agreement and resultant
peace process. The nature of this study
prohibits an exhaustive analysis of the problems facing women who are displaced
but living in the broader community, and instead focuses upon issues facing
displaced women living in welfare centres (WCs, or camps[i])
and resettlement and/or relocation villages.
During October - December 2002 CSHR travelled
through the North and East of Sri Lanka, meeting with IDPs – women, men and children – and international
and local non-governmental organisations (I/NGOs) whose work centres on IDPs
and their 'host' communities.
The
importance of Women's Voices
Rather than being subsumed into the broader
needs of all IDPs, this report aims to highlight that displaced women face
specific issues that other members of the displaced communities do not. The following
issues were named as critical by displaced women:
The varying roles women play within the common
experience of being displaced – we look at differences that arise due to
ethnicity, age and marital status
The needs of female-headed households (with an
emphasis on widows)
The practical concerns of women during
displacement arising from the traditional roles of women
Violence against women because of the
confusion and changing social boundaries that result from displacement
Positive features resulting from displacement
have also resulted, such as increased participation in previously male
domains. These may be crucial in
reducing the challenges for displaced women upon resettlement/relocation
The importance of involving all members of the
community – including males – to effect broad change
Women's role in decision making, conflict
resolution & empowerment were also changing in many areas throughout the
North and East
All of these factors listed remain for women
when they contemplate return. Upon
resettlement/relocation the practical needs of women are immense. They include:
Women – from female headed households
particularly – may not have the skills or resources to consider resettlement or
relocation
Negotiating with relevent authories in
relation to assistance packages is a difficulty faced by many IDP women
We conclude that adopting a Rights-based
Approach to Resettlement would be one way that the needs of women, and other
marginalised sectons of the community may be addressed.
We raise the questions as to whether the
rights of women are adequately recognised within the peace process – both within their communities and
internationally. The answer we found
was that it appears already within these broader debates, the rights of women
are marginalised. Displaced women
expressed a dissatisfaction with the current level of commitment shown to
women's rights so far during the process, but largely felt unable to
contribute: not knowing how, who or where to direct their concerns. The recent establishment of a women's committee
advising the government upon resettlement issues for women may see this change,
and their voices may become audible.
As we began our research into the factors
facing IDPs as they contemplate resettlement or relocation, displaced women
spoke immediately of the specific ways in which they have experienced
displacement. As we will examine, these
factors have coloured their experiences as displaced peoples, and will shape –
to varying degrees – the decisions they
make following the Ceasefire agreement.
For this reason, before tackling the 'practical' features of
resettlement such as land and property rights, we saw the need to look further
into the role of women in conflict, and how the experience of displacement has
been informed along gendered lines.
Diverse Roles of Women in Conflict
While the role and involvement of women IDPs
during conflict, and now following the Ceasefire share many features, they are
also richly varied. Women of different
ethnicities, of different marital status, ages, and backgrounds all fall under
the title of 'IDP', yet their lives and experiences are unique. Women respond differently to programs that
are offered due to their ethnicity, ages and marital statuses.
We feel that acknowledging women as victims of
war is a first step in developing strategies that accommodate their positions
as marginalised displaced persons.
However, this does not mean that women should not be recognised as
individuals with a will and capacity to contribute to the current discussions
about resettlement.
Many women spoke highly of NGOs that sought to
meet the diverse needs that they themselves identified, rather than imposing an
agenda upon them. For example, older
women, who have become displaced late in life, have a wealth of knowledge and
skills that are unknown to those who may have born in the welfare centres. A few programs sought to bring together both
older women and cross-generational women to share and learn from each other. These opportunities strengthen connections
and culture that may have become weakened during displacement, and aid the
practical transmission of skills and knowledge vital for women who live and
work on the land.
Female-Headed Households
Of all the issues that were raised by
displaced women, martial status may be the factor that stood out the most. All who work with IDPs are aware of this
fact; that the needs of single, female headed households are immense, and are
not adequately met. To their credit,
many NGOs we met were attempting in some way to address this issue.
As men are traditionally more likely to join
militant forces, be killed in action or 'disappear', thousands of women are
now the sole economic and social support for their families. Not only must their gendered roles be
fulfilled, but these women must learn to relate to the world in ways previously
unheard of: among the challenges are finding external employment, and liaising
with government forces, militants and aid officials. Despite these changes, patriarchal values continue to pervade
many aspects of women's lives, with the discrimination against widows of major
concern. Substantial challenges remain
in addressing the political, or structural issues faced by women.
Ethnicity
Ethnicity is clearly far too large an issue to
cover in a brief summary. One thing we
can mention is the importance of offering culturally appropriate programmes for
women. A trend that is occuring in the
Muslim community is for men to leave their families to assess the state of
their land, before the family joins them in resettlement. Because of this, Muslim women in spoke of
their needs for adequate protection while their men are away. Of all the women we spoke to, Muslim women
also named themselves as slow to come forward to take a leading role in their
communities. Making the decision of
whether or not to resettle is an enormous one, and moves can be made to enusure
all women's voices – Muslim, Tamil and Sinhalese – are heard. Consistently we heard reports that Sinhalese
women were the most eager to take part in programs or development initiatives,
followed by Tamil and Muslim women.
Gendered Diemsions of Conflict
What we found striking however, was the number
of women who saw that their needs as women were the same despite differing
ethnicicities. This we feel is due to
the shared responsiblities and work that arises due to gender. Due to these responsiblities, women suffer
violations, threats and insecurity that other sections of the displaced
communities do not. Attempts by
displaced women to fulfill their responsibilities within the family – providing
for their family's basic needs including food, water and healthcare – become
difficult by the scarcity of resources and dangerous due to military presence
and land mines. Displaced women told us
that seeking adequate health care, schools and support was increasingly
difficult, if not impossible during displacement. Only now are some of these services becoming available, through
the work of various GoSL and I/NGO intiatives.
Risk of Sexual Abuse
Because of the confusion and blurred social
boundaries resulting from flight and displacement, women suffer from increased
threat of sexual and other forms of violence from external forces (military,
police or militant cadre etc.), members of other ethnic groups and from their
own communities. Seeking justice for
these abuses is rare, and has proved largely ineffectual when attempted. This is due to a combination of insensitive
and inadequate reporting mechansims and a lack of awareness of many women about
their rights.
Dependency
We found that a 'dependency syndrome' was
commonly spoken of by NGOs we met. We
felt that this is closely connected to the length of time displaced peoples
have been recipient of government and international assistance and the manner
in which this has been given. IDPs and
a number of NGOs spoke of the non-participatory, largely top-down structures
that provide emergency and development assistance. These were commonly seen as contributing to the sense of apathy
displaced peoples commonly feel – opposed to a lack of desire upon the part of
displaced peoples to take control over the direction of their lives.
If resettlement strategies can involve
displaced peoples from the outset in designing and implementing activities,
this factor may be lessened.
Innumerable international studies point to the importance of women's
participation in emergency relief and development – theory and practice that
can well be used in Sri Lanka's resettlement schemes. A Rights-based approach to development consistently point to the
benefits that result from involving women.
Positive Features for Women
Although women have stuggled and suffered with
the losses and changes that have resulted from displacement and the upheavels
of return, there are also positives that have resulted. Strict gender roles have become more
maleable – offering women the oppurtunitiy to experience life outside of
generally accepted parameters. Many
women spoke highly of these changes, and saw the increased oppurutunities for
women gained through the war as 'fast-tracking' a process that would have taken
years to bring about in normal conditions.
Many hope, however, that the ability for women
to work and expand their options will be strengthened with an absence of
war. Internationally this has not been
the case for women, and many women felt it to be critical that the gains
achieved for women must not be lost in the transition to 'normalcy'. The majority of women throughout the North
and East did not see this as a possiblity for them; our hope is that their
confidence in their own abilities and the attitudes of those in power will make
a difference.
The existance of LTTE female cadre was
continually cited as a source of strength by Tamil and Muslim women. However, it remains to be seen whether the
LTTE will involve women in a meaningful way – and other minority groups – in a
potential Interm Administration. It is
too early to tell whether the LTTE statements about women's equality and
inclusion at high level decision making will be put into practice. We met some LTTE women who were inspiring in
their beliefs about women's integral role in the LTTE's future political structures,
but the overarching control that the male leadership holds over the lives of
its citizens and cadre does not point toward an inclusive leadership.
Economic & Psychosocial Issues
We also looked at how I/NGOs working in the
North and East are attempting to meet the needs of displaced women. While an exhaustive analysis of programmes
has not been attempted, two areas stood out in their importance: a woman's
ability to earn a livelihood and be economically independent and the emotional
needs of displaced women addressed through psychosocial programmes.
We have seen that as women become the sole, or
significant, economic provider in their families they also gain in their
ability to partake in decisions that impact their own lives. Economic independence provides greatly
enhanced options for women, and many programmes offered by NGOs seek to
facilitate women's income generation.
Entrance into external employment in order to meet their basic needs was
necessity for many displaced women.
This employment however, often places a double burden on women, as they
stuggle to meet all the needs of their families in the public and private
realms. Providing opportunities for
women to continue their economic activities, or become financially secure upon
resettlement is essential.
The field of psychosocial programmes is one
presently challenged by the rapid development of a wide variety of programmes
with differing aims and application, with an absence of regulating
standards. Our experiences concur with
a number of recent studies which find that if the specific needs of women are
not adequately recognised by national and international agencies from the
outset of assistance or development a ineffectual – or negative – experience
may result for women.
Empowerment
The majority of NGOs we met with however,
sought to effect change primarily through the establishment of women's groups;
strengthening and empowering women was viewed as the first step towards a
broader campaign for rights. We found a
clear distinction between the small number of NGOs who seek to bring about
change through actively promoting women's rights, and the majority of NGOs
prioritise women's practical concerns, and then move from that platform into
issues of rights and empowerment.
Whatever the methods, these moves were welcomed by a broad cross-section
of women as being ways to enhance their identity's as strong individuals with
rights worthy of respect: essential for women upon resettlement.
The Role of Men
Because gender discrimination is perpetrated
largely by men toward women – and in
some cases sanctioned by traditional societal sturctures – addressing these
issues cannot be done without the involvement of men. Despite the proliferation of programmes for displaced women,
substantial challenges remain in addressing the political, or structural issues
they face. Patriarchal values continue
to pervade many aspects of women's lives, with decision making, conflict
resolution and agency over their lives an unmet ideal for many women.
Peace and Resettlement
Despite these myriad hardships, the spirit,
determination and resiliance were striking features of the majority of women we
met in the North and East. Facing
extremes of poverty, trauma and continuing uncertainty, women consistantly astounded
us with their commitment to their families' survival and well being. Their ingenuity and imagination was
infectious. As we spoke about peace,
and the possibility of it breaking down and rendering some of these women
displaced once more, the need to bring about permanent peace became
paramount. Facilitating this, a large
number of displaced women and NGOs emphasised the centrality of addressing the
underlying causes of Sri Lanka's conflict in order to effect sustainable, long
term change. Within the immense shifts
occuring in the social and political landscape of Sri Lanka, addressing the
practicalities of peace and resettlement needs to be strengthened through a
parallel emphasis on inter-ethnic reconciliation.
Resettlement: Practical Issues
Practically, women share many needs felt by
all displaced people: for a safe, dignified and supported way to resettle,
relocate or establish themselves more permanently where they are. The top priorities for those we spoke to
were the clearance of landmines and un-exploded ordnance (UXO), establishment
of essential infrastructure, such as schools and hospitals, and being assured
of ways to support themselves finacially.
For women, female headed households
particularly, the economic and physical realities of resettlement – involving
heavy work of clearing dense bush, building shelter and establishing fields and
crops – are daunting, if not impossible tasks.
Women spoke of selling their food rations to gain money for this, or
taking out loans to meet their costs.
Women also spoke of the harsh gossip and rumours that result from
engaging with men who are not from their immediate familes that stopped some of
them asking assistance from 'outsiders'.
A number of displaced women also felt unsure
about their ability to successfully negociate with aid and government agencies
with regard to official assistance packages, compensation for lost land and
property and/or for a deceased spouse.
It is imperitive that relevant information reaches women in a way they
can understand.
The trend we witnessed of males leaving camps and areas of temporary
settlement to assess a family's land and begin the physical work prior to a
family's relocation is also an option many female headed households do not
have. The landless women are also among
those who are not moving; unsure of their rights and options for the future.
Rights-Based Approach to Development &
Gender Sensitive Policy
These are the main issues that stood out in
our fieldwork and research. We hope
that through a greater understanding of the ways conflict and displacement
affect women may assist in forming
policies that ensure their protection now and in the future. Looking for solutions to some of these
issues, we were led early on in our study to become interested in looking at
the models set out in a 'rights-based approach' to assistance and
development.
This approach has been developed to strenghten
the ability of state and non-state actors to respond effectively and
appropriately with emergency assistance and development. The guidelines have been developed upon the
most widely recognised set of minimum standards for human survival and
dignity. It offers a perspective that
places those receiving aid as partners – citizens with entitlement to the full
realisation of their human rights – as oppsed to passive recipients of
resettlement packages. This would mean
inclusion of women throughout the process of designing, implementing and
evaluating gender-responsive resettlement strategies.
A Rights-based appoarch to development has
been developed in attempt to ensure accountablilty of all actors, stressing the
importance of clear planning, participation and priority setting in order to
empower and build the capacity of those in need. To achieve this in practice, the norms, standards and principles
of the international human rights system could be agreed to by the GoSL, and
integrated into their resettlement plans.
The rights of IDPs to participate in determining how resources are
distributed and policies formulated are central to this. A Rights discourse will give voice to women.
While challenges and uncertainty remain,
unique oppurunities exist to take advantage of what is now known about the
experience of displacement for women.
If aid, assistance or support is to achieve its goals, the importance of
flexible, contextulised and responsive programmes cannot be
overemphasised. Displaced women
throughout the North and East told us that their needs are simple: a safe and
productive place to live, to be respected within their families and
communities, for services and facilities that will enable their own and their
families' needs to be fulfilled, and most importantly – to live without fear.
Sophia
Elek is an Australian currently working for The Centre for the study of Human Rights, based at the University of
Colombo. Her time is spent divided between education, training
and research in the field of human rights education. Her interest in gender,
human rights and development has led to work in Nepal, India and Sri Lanka.
