4

Women and girls in war, conflict and

disaster zones
4.1 This chapter discusses evidence presented on the violence and
disadvantage women and girls experience during war, conflict and
disasters. A number of submissions made reference to the particular
circumstances of women and girls caught up in war and disaster zones:
how they experienced these events; the dangers that they face, and what
happens when they become displaced from their homes, regions or
countries.
4.2 The chapter is divided into two sections—the first examines gender
violence in war and conflict, and the second looks at disaster zones. The
issues raised include:
 the particular vulnerability of women and girls in wars or disaster
zones;
 the lack of effectiveness of international conventions in war time;
 the types of violence women and girls might experience;
 women’s lack of participation in peace processes;
 the violence that refugee or displaced women and girls can face;
 the particular forms of violence that arise out of disaster zones; and
 the need for emergency responses to cater for women and girls.

War and conflict

4.3 Women and girls are particularly vulnerable in conflict zones. The
Women’s International League for Peace and Freedom (WILPF) told the
Committee:
100 EMPOWERING WOMEN AND GIRLS

It is well recognised that women have a particular experience of

conflict, sometimes deliberately targeted, by virtue of their gender.
This has a devastating impact on their lives both during and after
the conflict. 1
4.4 The Australian Government recognises the disproportionate impact of
war and conflict on women and girls. Australia’s National Action Plan on
Women, Peace and Security states that the impact of conflict is ‘highly
gendered’ and notes that targeted gender-based violence is a deliberate
tactic in war:
Although often not engaged in combat, women and girls can be
disproportionately affected by conflict. It has been estimated that
up to 90 per cent of casualties in contemporary conflicts are
civilians, the majority of whom are women and children … There
are many acts that constitute gender-based violence, including
rape, sexual slavery, genital mutilation, forced pregnancy,
abortion and sterilisation. These acts have particular significance
in times of conflict and instability, as they are often used to achieve
military or political objectives. The use of this type of violence is a
violation of international human rights law and, in situations of
armed conflict, international humanitarian law. It has a
devastating effect on women, their families and their communities.
This devastation can be long-lasting, extending far beyond the
duration of the conflict. 2

International prohibitions
4.5 Violence against women and girls in conflict has been the subject of recent
international attention. In 2015 the United Nations General Assembly
declared 19 June as the ‘International Day for the Elimination of Sexual
Violence in Conflict’. General Assembly President Sam Kutesa observed
that:
Rape and other forms of sexual violence in conflict and post-
conflict constitute grave violations of human rights and
international humanitarian law.
…

1 Women’s International League for Peace and Freedom (Australia) (WILPF), Submission 53, p. 1.
2 Department of Foreign Affairs and Trade (DFAT), Exhibit 53: Department of Families,
Housing, Community Services and Indigenous Affairs (FaHCSIA), Australian National Action
Plan on Women, Peace and Security 2012–2018, 2012, p. 6.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 101

We should ensure that the perpetrators of these crimes and their

superiors who condone their actions are held accountable and that
victims get justice. 3
4.6 The United States Department of State observed that efforts to highlight
the issue of sexual violence and conflict ‘couldn’t come at a more critical
time’. The Department wrote:
Sexual violence in conflict— against women, girls, men and boys
—is a global scourge. Women and children are disproportionately
affected by such violence and its use as a tactic of war often tears
apart the social fabric that holds communities together. 4
4.7 The United Nations (UN) has previously recognised the particular
vulnerability of women and girls in conflict, notably in the adoption by the
UN Security Council of Resolution 1325 (UNSCR 1325) on women and peace
and security on 31 October 2000. 5 As the Department of Foreign Affairs
and Trade has noted, UNSCR 1325 was ‘the first [Security Council]
resolution to link women explicitly to the peace and security agenda.’ 6
4.8 The YWCA submission explained that:
Resolution 1325 reaffirms the important role of women in the
prevention and resolution of conflicts, peace negotiations, peace-
building, peacekeeping, humanitarian response and in post-
conflict reconstruction and stresses the importance of their equal
participation and full involvement in all efforts for the
maintenance and promotion of peace and security. 7
4.9 The Asia Pacific Centre for Responsibility to Protect (the Asia Pacific
Centre) further noted that the UN Security Council has now passed six
further resolutions on women peace and security. 8 These resolutions in
summary are:

3 United Nations News Centre, Adopting resolution, UN creates International Day against Sexual
Violence in Conflict, <[Link]/apps/news/[Link]?NewsID=51202#.VbfwG_mqqko>
viewed 26 August 2015.
4 US Department of State, Official Blog, A Day to Galvanize Action on Conflict-Related Sexual
Violence, <[Link]/comment/reply/22811?b8ee_name=ec730183c685d3423e3
cadb736_form> viewed 27August 2015.
5 United Nations Security Council, Resolution 1325 (2000), 31 October 2000 < [Link]/
en/ga/search/view_doc.asp?symbol=S/RES/1325(2000)> viewed 26 August 2015.
6 DFAT, Annual Report, 2014–2015, p. 118.
7 YWCA, Submission 65, p. 4.
8 Asia Pacific Centre for Responsibility to Protect, Submission 18, p. 4.
102 EMPOWERING WOMEN AND GIRLS

 UNSCR 1820 (2008), which identifies ‘sexual violence as a tactic of war’

that requires appropriate specialised military and police responses; 9
 UNSCR 1888 (2009), which ‘mandates that peacekeeping missions
protect women and children from sexual violence during armed
conflict’ and established a Special Representative of the Secretary-
General on sexual violence in conflict; 10
 UNSCR 1889 (2009), which called for action to accelerate
implementation of Resolution 1325, including a strategy to increase
female participation in peace talks and ‘recognizing the particular needs
of women and girls in post-conflict situations’; 11
 UNSCR 1960 (2010), which called for an end to sexual violence in
armed conflict and parties in conflict to take action to end impunity for
perpetrators of sexual violence; 12
 UNSCR 2106 (2013), which reiterated that all actors, including the UN
Security Council, parties to armed conflict, and all Member States and
United Nations entities, must do more to combat impunity for conflict-
related sexual violence; 13 and
 UNSCR 2122 (2013), which affirms that ‘the enlistment of men and boys
in the effort to combat all forms of violence against women are central
to long-term efforts to prevent sexual violence in armed conflict and
post-conflict situations’ and required the UN Security Council, UN
Member States, and regional organisations work to dismantle barriers
to enable women to participate in conflict resolution and recovery.14
4.10 DFAT explained that UNSCR resolution 2122 ‘puts in place a roadmap for
a more systematic approach to the implementation of commitments on
women, peace and security’.15
4.11 Measures associated with UNSCR 2122 include:

9 United Nations Security Council, Resolution 1820 (2008), 19 June 2008, <[Link]/
en/ga/search/view_doc.asp?symbol=S/RES/1820(2008)> viewed 11 November 2015.
10 United Nations Security Council, Resolution 1888 (2009), 30 September 2009, < [Link]/
en/ga/search/view_doc.asp?symbol=S/RES/1888(2009)> viewed 11 November 2015.
11 United Nations Security Council, Resolution 1889 (2009), 5 October 2009, < [Link]/
en/ga/search/view_doc.asp?symbol=S/RES/1889(2009)> viewed 11 November 2015.
12 United Nations Security Council, Resolution 1960 (2010), 16 December 2010, < [Link]/
en/ga/search/view_doc.asp?symbol=S/RES/1960(2010)> viewed 11 November 2015.
13 United Nations Security Council, Resolution 2106 (2013), 24 June 2013, <[Link]/
en/ga/search/view_doc.asp?symbol=S/RES/2106(2013)> viewed 11 November 2015.
14 United Nations Security Council, Resolution 2122 (2013), 18 October 2013, < [Link]/
en/ga/search/view_doc.asp?symbol=S/RES/2122(2013)> viewed 11 November 2015.
15 DFAT, Submission 27, p. 38.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 103

 the development and deployment of technical expertise for

peacekeeping missions and United Nations mediation teams
supporting peace talks;
 improved access to timely information and analysis on the
impact of conflict on women and women’s participation in
conflict resolution reports and briefings to the [United Nations
Security] Council; and
 strengthened commitments to consult as well as include
women directly in peace talks. 16
4.12 The Asia Pacific Centre further noted that the United Nations ‘Secretary
General has issued yearly reports on implementation by the UN and
Member States’ of the major elements of UNSCR 1325—’prevention,
protection, participation, relief and recovery, and National Action Plans’. 17
4.13 In June 2014 the British Foreign Secretary William Hague and Special
Envoy for the UN High Commissioner for Refugees Angelina Jolie
co-chaired the ‘Global Summit to End Sexual Violence in Conflict’. The
highly publicised Summit was attended by 1700 delegates and 123 country
delegations including 79 Ministers. Australia’s representatives included
the former Chief of the Army Lieutenant General David Morrison and led
by Australia’s Global Ambassador for Women and Girls, Natasha Stott
Despoja. 18 A ‘statement of action’ adopted by the Summit declared that
‘rape and sexual violence is not an inevitable consequence of war or a
lesser crime’ and that ‘prevention of sexual violence in conflict is critical to
peace, security and sustainable development’. 19 Further to this, the
Foreign Minister, the Hon Julie Bishop MP, held a dialogue at Parliament
House in Canberra with ‘experts across government, non-government
organisations and academia to discuss ways to address and respond to
sexual violence’ in conflict. 20
4.14 Reflecting this increased international focus on violence against women
and girls in war and conflict, a number of submissions highlighted the
need for further action to address the problem.

16 DFAT, Submission 27, pp. 38-39.

17 Asia Pacific Centre for Responsibility to Protect, Submission 18, p. 4.
18 Minister for Foreign Affairs, the Hon Julie Bishop MP, ‘Global Action to Stop Sexual Violence
in Conflict, Media Release, 6 June 2014 <[Link]/releases/Pages/
2014/jb_mr_140606.aspx> viewed 26 August 2015.
19 United Kingdom (UK) Government, ‘End Sexual Violence in Conflict Global Summit London
2014’, Statement of Action, <[Link]/government/uploads/system/uploads/
ttachment_data/file/319958/Global_Summit_to_End_Sexual_Violence_Statement_of_Action_
_1_.pdf> viewed 26 August 2015.
20 Minister for Foreign Affairs, the Hon Julie Bishop MP, ‘Australia and United Kingdom Partner
to Prevent Sexual Violence in Conflict’ Media Release, 2 June 2014 < [Link]/
releases/Pages/2014/jb_mr_140602.aspx>, viewed 4 June 2015.
104 EMPOWERING WOMEN AND GIRLS

4.15 ActionAid expressed particular concern about ‘the gap between

international conventions and the reality on the ground’, arguing that
international responses to violence against women and girls ‘as a war
tactic’ remain insufficiently prioritised:
While the United Nations has recognised VAWG [violence against
women and girls] as a war crime with various resolutions
including UNSCR 1325 recognising the state’s role in protecting
the rights of civilian women and girls during armed conflict, the
uptake of this resolution has been slow by member states and
inadequately resourced. From ActionAid’s experience in
humanitarian settings, the first weeks and months of an
emergency are essential for establishing adequate mechanisms for
the protection of women’s rights and safety … Too frequently,
governments and the international community overlook the direct
experiences of women survivors of sexual violence in conflict. 21
4.16 The Asia Pacific Centre noted ‘to date, 41 countries have adopted
[Resolution] 1325 National Action Plans (NAPs)’. However, this includes
only four countries from ‘the Asia-Pacific region – Australia, Kyrgyzstan,
Nepal and Philippines’. 22
4.17 Seven international and regional organisations, including the Pacific
Island Forum, have integrated UNSCR 1325 plans into their activities.
However, the countries of South East Asia and South Asia appear
‘underrepresented’ in the development of both national action plans and
regional institutional engagement on implementation of UNSCR 1325. 23
4.18 The Women’s International League for Peace and Freedom (WILPF)
argued that violence against women and girls in conflict is often
purposeful and effective in the pursuit of political aims. Further to this,
violence ‘can become a habit carried into the post-conflict context’. Citing
information from the UN Analytical Inventory of Peacekeeping Practice:
Addressing Conflict Related Sexual Violence, the WILPF submission notes
that ‘mass rape is more likely to lead warlords to the negotiating table or
the corridors of power than to a prison cell’. 24

Women and conflict in the region

4.19 While much of the recent international focus on the issue of sexual
violence in conflict has been triggered by events in the Middle East and

21 ActionAid, Submission 29, pp. 4–5.

22 Asia Pacific Centre for Responsibility to Protect, Submission 18, p. 4.
23 Asia Pacific Centre for Responsibility to Protect, Submission 18, p. 4.
24 WILPF, Submission 53, pp. 1–2.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 105

Africa, the Committee received submissions that discussed the

circumstances of women and girls in a number of current and past
conflicts within the Indo–Pacific region. The following examples taken
from the evidence are illustrative of violence women and girls experience
in the context of war and conflict in the region.
4.20 As noted in chapter two, Colonel Najibullah Samsour of the Afghan
National Police told the Committee about the situation faced by
87 per cent of Afghan women who have experienced some form of
violence in conflict ridden Afghanistan. 25
4.21 DFAT highlighted the specific targeting by militants of high-profile
women, including Members of Parliament and police women. 26 The
International Crisis Group (ICG) similarly observed that women in
positions of authority in Afghanistan often face threats of violence with a
number having been killed by insurgents. The organisation further noted
that violence targeting women and girls has extended to girls schools,
students and staff. 27
4.22 The ICG also reported that threats to, and attacks on, women and girls are
not confined to the Taliban insurgency:
Women’s rights are also under attack from yesterday’s warlords,
now powerbrokers both within and outside government. Many
former mujahidin who regained power after the Taliban’s
downfall may not challenge the political order so long as they
have lucrative government positions, but they have retained their
militias to protect their political and economic interests. Because
these private militias are not accountable to the state, they operate
with virtual impunity. The more powerful the warlord and his
militia, the more likely that rights violations and restrictions on
women’s mobility could undo fragile gains. 28
4.23 Several submissions to the inquiry focussed on violence against women
and girls in the course of civil conflict in Sri Lanka. 29 Human Rights Watch
(HRW) submitted that it had:

25 Colonel Najibullah Samsour, Afghan National Police, translated through Mr Mohammad

Sharif Policy and Advocacy Office, Oxfam in Afghanistan, Committee Hansard, Canberra,
13 May 2014, p. 2.
26 DFAT, Submission 27, p. 15.
27 International Crisis Group (ICG), Supplementary Submission 33.1, p. 2.
28 ICG, Supplementary Submission 33.1, p. 2.
29 See for example submissions from Australian Tamil Congress, Submission 8, the High
Commission of the Democratic Socialist Republic of Sri Lanka, Submission 79 and
Supplementary Submission 79.1; and see Name Withheld, Submission 64.
106 EMPOWERING WOMEN AND GIRLS

… documented sexual violence committed by members of the Sri

Lankan security forces between 2006– 2012 against men and
women in state custody … the Sri Lankan government has blocked
reporting and investigation of sexual violence committed by its
forces as well as access to medical and psycho-social care. 30
4.24 Another submission quoted a HRW report noting that ‘rape appears to
have been a key element of broader torture and ill treatment’ of women by
Sri Lankan military forces. The submission further asserted that although
this kind of violence occurred towards the end of military conflict and its
immediate aftermath, it also ‘appears to be continuing to the present
day’. 31
4.25 The High Commissioner of Sri Lanka His Excellency Admiral Thisara
Samarasinghe told the Committee that:
Sri Lanka accords highest priority to the protection and promotion
of human rights of women. Successive governments have taken
proactive steps to ensure equal opportunities for women in
society. Necessary laws, regulations and policies have been
formulated accordingly. Over the years, Sri Lanka has been in the
forefront of advancing women’s issues. Sri Lanka became an early
party to the Convention on the Elimination of All Forms of
Discrimination against Women in 1981 and to its protocol in 2002.
Sri Lanka’s experience with policies that encourage gender
equality and women’s empowerment has placed the country in a
special category in the developing world. Sri Lanka’s political
leadership and policy framers recognised early the mutually
reinforcing links between gender equality, rapid economic growth,
poverty eradication and sustainable development. 32
4.26 Human Rights Watch drew the Committee’s attention to its September
2014 report, Silenced and Forgotten: Survivors of Nepal’s Conflict-Era Sexual
Violence, on sexual violence in Nepal’s decade-long civil war between
government forces and the Communist Party of Nepal, observing that:
While Nepal’s government has acknowledged the rape of women
and girls, it has failed to end impunity for abuses or to seek justice
and reparations for the victims of these abuses. It has also failed to
introduce a comprehensive medical and psycho-social programme

30 Human Rights Watch (HRW), Supplementary Submission 19.1, p. 5.

31 Name Withheld, Submission 64, p. 4.
32 Sri Lankan High Commissioner, His Excellency Admiral Thisara Sugeeshwara Gunasekara
Samarasinghe, Democratic Socialist Republic of Sri Lanka, Committee Hansard, Canberra, 25
November 2014, p. 1.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 107

to benefit survivors and help them deal with the long-term

consequences of sexual violence. 33
4.27 The Department of Defence highlighted a report on Conflict-related Sexual
and Gender Based Violence, which gave examples of sexual and
gender-based violence perpetrated against girls in fighting forces’ in the
region, from 1990 to 2003 including in Burma, Cambodia, India, Indonesia
and Timor-Leste. 34
4.28 The Secretariat of the Pacific Community (SPC) observed that rape has
been used as a weapon of warfare in conflicts in the Solomon Islands and
Bougainville. With regard to the Solomon Islands it was reported that:
Rape of women was ‘used as a measure of sanction.’ Women and
girls were raped by militants in front of their families where family
members or the women were suspected of being spies, where
compensation could not be afforded, and where militants and
their commanders exploited their power to rape women. 35
4.29 The SPC stated that perpetrators of sexual violence included:
… militant groups, the state, state-authorised groups and criminal
elements who had possession of weapons even after a key peace
agreement has been agreed between the warring groups. 36
4.30 More broadly, submissions highlighted both the vulnerability and
diversity of experience of women and girls in conflict zones. Submissions
also emphasised the absence of female leadership or consultation with
women’s groups in peace processes and in periods of transition from
conflict to peace. The Australian Council for International Development
(ACFID) noted that:
Women’s roles in situations of conflict are multiple and varied.
Alongside men they are combatants and spoilers, victims and
innocent bystanders. Despite this women are overwhelmingly
under-represented in conflict prevention and peace processes. 37
4.31 Australia’s National Action Plan on Women, Peace and Security 2012–2018
also emphasises the diversity and complexity of the impacts of war and
conflict on women and girls:
Women and girls are not a homogenous group. Just as women and
men have differential experiences of conflict, conflict affects

33 Human Rights Watch, Supplementary Submission 19.1, p. 4.

34 Department of Defence, Submission 73, p. 9.
35 SPC, Supplementary Submission 24.1, p. 1.
36 SPC, Supplementary Submission 24.1, p. 2.
37 Australian Council for International Development (ACFID), Submission 25, p. 17.
108 EMPOWERING WOMEN AND GIRLS

diverse groups of women and girls in very different ways. Women

of various ages, women with disability, indigenous women and
women from certain religious or cultural backgrounds may be
more profoundly affected or more vulnerable than other groups of
women. They may find it difficult to access support or
infrastructure to meet their specific needs, or be more likely to
experience gender-based violence. 38
4.32 The following evidence highlights some of the risks and vulnerabilities
that women and girls might face in or while fleeing conflict situations. For
example, the Centre for Refugee Research (CRR) highlighted the particular
vulnerability of displaced women and girls who may have no
documentation or legal protection:
Refugee women of any and all ages report being raped. However,
several groups are at heightened risk of sexual violence. Women
report to us that experiences of rape, especially for young women,
makes the woman survivor even more vulnerable to further rapes
and to being targeted for trafficking or survival sex.
Unaccompanied minor girls are at great risk. They frequently live
in exploitative or abusive ‘foster’ arrangements, and in camp
settings in which we have worked are often forced to work as
domestic servants for more powerful families, where they are
subject to sexual exploitation. 39
4.33 Save the Children noted that evidence suggests conflict is a major cause or
catalyst for trafficking, ‘[as] wars, armed conflicts and occupation of
territories often lead to increased trafficking and sexual assault’. 40 Save the
Children also reported that:
Trafficking of women, girls and boys for sexual exploitation is
prevalent in conflict affected or post-conflict nations in our region,
especially Afghanistan, Myanmar, Cambodia, Nepal, Philippines
and Sri Lanka. 41
4.34 Slavery Links Australia further noted that:
… UNICEF [United Nations Children’s Fund] presents evidence
that where people and their society are stressed by conflict (arising
from war, disaster or epidemic such as HIV AIDS) the incidence of

38 DFAT, Exhibit 53: 2012, p. 6.

39 Centre for Refugee Research, Submission 35, p. 4.
40 Save the Children Australia, Submission 23, p. 9. UN CEDAW comment attributed to the
Centre for the Democratic Control of Armed Forces, Sexual Violence in Armed Conflict: Global
Overview and Implications for the Security Sector, Geneva, 2011, p. 87.
41 Save the Children Australia, Submission 23, p. 8.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 109

forced marriage may actually increase, apparently as a hopeful or

last-ditch attempt to protect girls within a marriage. 42
4.35 Amnesty International also pointed out that experiences of women and
girls in conflict situations often reflect patterns of discrimination and
injustice that existed prior to conflict:
All barriers faced by women in accessing justice before the
national courts prior to conflict, such as legal, procedural,
institutional, social and practical, and entrenched gender
discrimination are exacerbated during conflict, persist during the
post-conflict period and operate alongside the breakdown of the
police and judicial structures to deny or hinder their access to
justice. 43

Australian efforts
4.36 DFAT reported that Australia has been actively engaged in contributing to
the implementation of UNSCR 1325 on women, peace and security.
Australia’s work in this area has involved providing practical support to
address issues affecting women and men during and after conflict. DFAT
explained that assistance has been provided to:
… women’s organisations, partner governments and international
organisations to ensure that women participate in peace processes,
that their needs for protection are met and that gender
perspectives are included in peacekeeping operations. 44
4.37 DFAT’s annual report for 2014–15 notes that in November 2014, during
Australia’s second presidency of the United Nations Security Council,
Australia’s representatives ‘drew on our experience in gender-responsive
policing in Solomon Islands, Timor-Leste and Vanuatu to ensure women,
peace and security was a key issue in a landmark resolution on policing –
Resolution 2185.’ 45
4.38 Australia launched its National Action Plan on Women, Peace and
Security on International Women’s Day in 2012. DFAT described the
National Action Plan (NAP) as ‘a practical step forward in Australia’s
efforts to implement UNSCR1325’. The NAP ‘sets out what the
Government will do, at home and overseas, to promote the women, peace
and security agenda’. 46

42 Slavery Links Australia, Submission 88, p. 11.

43 Amnesty International, Submission 74, p. 9.
44 DFAT, Submission 27, p. 48.
45 DFAT, Annual Report 2014–15, p. 118.
46 DFAT, Submission 27, p. 45.
110 EMPOWERING WOMEN AND GIRLS

4.39 The submission from the Department of Defence explained that the NAP
is intended to provide:
… a framework for a coordinated whole-of-Government approach
to implementing the objectives of UNSCR 1325, and related
resolutions. Government agencies reporting under the NAP
include Defence, the Australian Civil Military Centre (ACMC),
Australian Federal Police (AFP), Attorney-General’s Department,
DFAT, and the Department of Prime Minister and Cabinet
(PM&C). The Office for Women in PM&C is the lead for the
coordination of reporting against the NAP. 47
4.40 The NAP has focussed on five key thematic areas identified by the United
Nations and described as ‘pillars’. 48 The five thematic areas, as described
in Australia’s plan, are: Prevention; Participation; Protection, Relief and
Recovery; and Normative. The last thematic area, ‘normative’ refers to
raising awareness about and developing policy frameworks to progress
the women, peace and security agenda; and integrating a gender
perspective across government policies on peace and security. 49
4.41 Australian aid supports ‘the N-Peace Network, which promotes women’s
leadership for conflict prevention, resolution and peace building in the
region.’ This network has:
… over 1600 members representing government, civil society,
grassroots organisations, NGOs, academic institutions, media and
religious groups across Afghanistan, Nepal, Indonesia,
Philippines, Sri Lanka and Timor-Leste. 50
4.42 DFAT explained that the N-Peace Network:
… provides a safe platform for sharing ideas, increasing dialogue
between government and civil society on issues related to WPS
[Women, peace and security] and documenting best practices
critical for peace building. Through the N-Peace Awards,
Australia’s support also provides recognition of women peace
advocates for their leadership in conflict prevention, women’s
empowerment and peace building in the region. 51
4.43 The Australian Federal Police (AFP) informed the Committee on measures
that support Australia’s National Action Plan:

47 Department of Defence, Submission 73, p. 2.

48 United Nations, Women Peace and Security: Report of the UN Secretary-General, 6 April 2010.
49 DFAT, Exhibit 53: 2012, p. 17.
50 DFAT, Submission 27, p. 39.
51 DFAT, Submission 27, p. 39.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 111

The AFP International Deployment Group predominantly

undertakes police capacity development in the Indo-Pacific region.
Police development is a support provided to police in post-conflict
and developing nations, to build their capacity to provide
sustainable and quality policing to their citizens. This support is
delivered by enhancing the operational capacity, leadership and
enabling services of partner agencies. Those partner agencies are
supported through human rights, gender equality and diversity
delivery. This is integral to all AFP missions and incorporates into
mission design and evaluation processes all aspects of human
rights. In keeping with the National Action Plan the AFP has
developed a gender strategy … for the International Deployment
Group. The strategy outlines the ways in which gender will be
normalised in all IDG work, including daily operations, police
development programs and stability operations. 52
4.44 DFAT provided the Committee with the 2014 Progress Report: Australia’s
National Action Plan on Women, Peace and Security. The report reviewed
Australia’s progress on implementing the plan since 2012 and found that
‘the Government is tracking well against its responsibilities under the
National Action Plan’. 53
4.45 Specific achievements recognised in the report include:
 Policy: Integration of a gender perspective into 29 official Government
policy and guidance documents related to peace and security. 54
 Staff training: 54.3 per cent of the 1 141 Australian military, police and
Australian Public Service personnel deployed in operations received
training on Women, Peace and Security in the period. 55
 Audits: The Australian-Civil Military Centre undertook an audit of its
policies and activities ‘to ensure best practice standards and effective
integration of gender perspectives across program activities, and to
develop the ACMC National Action Plan Implementation Plan’. 56
 Representation: Work to remove restrictions that limit the number of
women deployed in conflict and post conflict zones, such as removing
the restriction on women serving in combat roles. 57

52 Ms Mandy Newton, Assistant Commissioner, National Manager, International Deployment

Group, Australian Federal Police, Committee Hansard, Canberra, 18 September 2014, p. 24.
53 DFAT, Exhibit 52: Australian Government, Progress Report Australian National Action Plan on
Women, Peace and Security 2012–2014, Department of Prime Minister and Cabinet, 2014, p. 8.
54 DFAT Exhibit 52: 2014, p. 8.
55 DFAT Exhibit 52: 2014, p. 8.
56 DFAT, Exhibit 52: 2014, pp. 15–16.
57 DFAT, Exhibit 52: 2014, p. 8-23.
112 EMPOWERING WOMEN AND GIRLS

 Engagement: Support for international dialogues and engagements to

engage civil society with the women, peace and security agenda, such
as the 2013 Annual Civil Society Organisation Dialogue in Canberra. 58
 Advocacy: International activities, such as training UN military
observers in Kenya and Rwanda on Women, Peace and Security, and
the roles and vulnerabilities of women and children in conflict zones. 59
4.46 The Progress Report also provided an update on the N-Peace network,
saying it has ‘successfully brought increased visibility of Women, Peace
and Security issues and is gradually expanding to countries in the Pacific
including Papua New Guinea’. 60 Through the network:
… spaces have been provided to women’s groups for dialogues,
which have resulted in increased knowledge and visibility of
Women, Peace and Security issues in the countries and the Asia
region. Women participants have also acknowledged stronger
network and partnerships for advocacy resulting in effective
implementation of UNSCR 1325. 61
4.47 In the wake of the 2013 Annual Civil Society Organisation Dialogue, the
Australian Council for International Development, UN Women and the
ANU Gender Institute collaborated to produce the 2014 Second Annual
Civil Society Report Card: Australia’s National Action Plan on Women, Peace
and Security.62
4.48 The report was broadly positive about Australia’s efforts in promoting the
women, peace and security agenda, including through its term on the
United Nations Security Council, finding that there had been ‘significant
advancements’ made. 63 However, the report also offered suggestions for
improvement, and identified opportunities. These overall
recommendations were:
 Create consistency within and across departments of WPS
implementation. This requires ensuring each department
appoint an operational senior level WPS focal point and
develop an adequately resourced and publicly available WPS
implementation plan.

58 DFAT, Exhibit 52: 2014, pp. 27–28.

59 DFAT, Exhibit 52: 2014, p. 43.
60 DFAT, Exhibit 52: 2014, p. 74.
61 DFAT, Exhibit 52: 2014, p. 75.
62 Australian Council for International Development (ACFID), United Nations Women (UN
Women), Australian National University (ANU) Gender Institute, 2014 Second Annual Civil
Society Report Card: Australia’s National Action Plan on Women, Peace and Security,
<[Link]/news/2014-civil-society-report-card> viewed 13 August 2015.
63 ACFID, UN Women, ANU Gender Institute, 2014 Second Annual Civil Society Report Card:
Australia’s National Action Plan on Women, Peace and Security, p. 2, viewed 13 August 2015.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 113

 Ensure the intentionality of NAP activities in meeting WPS

goals. This acknowledges the specific focus of WPS work (as
opposed to broader gender or peace and security work) and
targets activities towards NAP obligations and WPS values.
 Ensure that reviews offer a qualitative analysis of outcomes of
NAP activities rather than only listing quantitative outputs.
This will ensure activities can be continually refined and
outcomes are measured against goals.
 Continue the development of an open, productive and directed
partnership with civil society that takes advantage of its skills,
experience and community engagement. 64
4.49 The report concluded that Australia had the opportunity to continue its
‘momentum’ by further ‘promoting [women, peace and security]
implementation through its regional engagements in the Indo–Pacific’. To
achieve this, the report suggested:
 [P]roviding advocacy and support to increase women’s
participation in conflict resolution and formal and informal
peace processes in conflict affected regions such as Burma.
 [Supporting] the development and implementation of NAPs
throughout the region including the Pacific Regional Action
Plan and plans in the Solomon Islands and Japan.
 Strategies ensuring the protection of women must be integrated
into all of Australia’s overseas operations. 65
4.50 DFAT also highlighted Australian support for the inclusion of women in
peace efforts in Afghanistan, providing an example of the Australian
Government’s recent efforts to protect women and girls in conflict during
a United Nations Assistance mission to Afghanistan. 66 During the mission,
Australia advocated for ‘new and strengthened provisions to support
political participation by Afghan women’, enhanced protection for women
and girls from sexual violence, the need to ‘hold perpetrators of gender-
based violence to account’, and the need to ‘maintain legislative
protections for Afghan women’. 67
4.51 DFAT noted that through the Afghanistan Peace and Reconciliation
Program (APRP), women are:
… actively encouraged to engage in peace and reconciliation
activities, including through conferences, civil society

64 ACFID, UN Women, ANU Gender Institute, 2014 Second Annual Civil Society Report Card:
Australia’s National Action Plan on Women, Peace and Security, p. 2, viewed 13 August 2015.
65 ACFID, UN Women, ANU Gender Institute, 2014 Second Annual Civil Society Report Card:
Australia’s National Action Plan on Women, Peace and Security, pp. 16–17, viewed 13 August 2015.
66 DFAT refers to this as the ‘United Nations Assistance Mission to Afghanistan (UNAMA)
Mandate Renewal (Resolution 2145)’. DFAT, Submission 27, p. 39.
67 DFAT, Submission 27, p. 39.
114 EMPOWERING WOMEN AND GIRLS

organizations, membership of the High Peace Council and of the

Provincial Peace Councils (PPCs). 68
4.52 Further to this, DFAT explained that:
… APRP has established close partnerships with government
institutions, including the Ministry of Women Affairs, to deliver
its programs. At the provincial level, PPCs comprise key local
stakeholders, including women, who are responsible for initiating
and supporting peace initiatives in their communities. 69
4.53 Australia’s Ambassador for Women and Girls, Natasha Stott Despoja, has
made the protection of women and girls in conflict zones a priority in her
advocacy. 70 The Ambassador noted that:
My work to promote Australia’s women, peace and security
agenda has been certainly a priority for government, especially
during the term that Australia has had on the UN Security
Council. I am confident that that priority on women, peace and
security will continue, even though we are no longer represented
on the council. 71
4.54 DFAT advised that the number of vulnerable women and girls provided
with lifesaving assistance through Australian Aid in conflict and crisis
situations in 2012–13 was 1 675 834, and 3 726 581 were supported in
2013-14. 72
4.55 The Defence Department’s submission emphasised Australia’s
responsibility under United Nations Security Council resolutions to
protect women and girls from violence arising from conflict. More broadly
the Department affirmed, ‘[i]t is in Australia’s interest to encourage the
participation of women in peace processes and to create structures that
promote gender equality in support of lasting peace’. 73
4.56 The submission from Defence noted that Australian Defence Force (ADF)
members deployed in NATO and United Nations missions are required to
‘understand the unique role that women can play in the host country’. The
submission further noted:

68 DFAT, Submission 27, p. 39.

69 DFAT, Submission 27, p. 39.
70 DFAT, Submission 27, pp. 39–40.
71 Ms Natasha Stott Despoja, Ambassador for Women and Girls, DFAT, Committee Hansard,
Canberra, 3 December 2014, p. 2.
72 DFAT, Submission 27.2, p.13, cited from ‘DFAT Results Bank 2014’. DFAT notes that further
detail would be required to ensure these figures are fully comparable.
73 Department of Defence, Submission 73, p. 1.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 115

The ADF has previously deployed female engagement teams as

part of the provincial reconstruction capability in Afghanistan, and
since 2013, deployed senior ADF women as NATO GA (Gender
Advisor). 74
4.57 To improve awareness of the issues and challenges facing women and
girls in conflict and post-conflict situations, the ADF stated it has
undertaken a number of ‘communication events’ such as contributing to
international forums, including:
… the NATO Committee on Gender Perspectives conference, and
the 2013 UN Development Program Gender Perspectives
Conference Asia … national government and civil society events
on WPS and related issues, civil-military workshops, International
Women’s Day events, and the 2013 inaugural national CDF
Gender Conference … In addition, Defence has contributed
articles for internal and external media consumption, and in
NATO and UN publications. 75
4.58 The Annual Chief of the Defence Force Gender Conference has also
focused on women in peace and security operations. 76
4.59 Australia’s then Chief of Army, Lieutenant General David Morrison,
emphasised to the Committee the critical role of leadership in changing
the behaviour of military forces towards women and girls in conflict
zones:
At the most elemental point the soldier has the choice to either be
a protector or a perpetrator. There is without doubt a high level of
sexual violence perpetrated by men, almost exclusively, in armies
around the world and there is a requirement, in my view, for all
leaders of any armies to address matters around culture that go to
the heart of the choice that individual soldiers will make, either to
be a perpetrator or a protector. 77

Justice, reparation and women’s involvement in conflict resolution

and peace processes
4.60 A number of submissions to the Committee argued that notwithstanding
increased attention by the United Nations there is still much that urgently

74 Department of Defence, Submission 73, p. 6.

75 Department of Defence, Submission 73, p. 7.
76 Department of Defence, Submission 73, p. 7.
77 Lieutenant General David Morrison, Chief of the Army, Department of Defence, Committee
Hansard, 2 September 2014, p. 1.
116 EMPOWERING WOMEN AND GIRLS

needs to be done to address sexual and gender-based violence in conflict.

In particular, to ensure access to justice or reconciliation for victims and
the engagement of women in conflict resolution and peace making.
4.61 Lieutenant General Morrison particularly emphasised the need to bring
perpetrators of violence against women and girls to account:
From my attendance at the global summit and from my
participation in military operations or my study of them, without a
doubt holding men—primarily men of course—to account
following the perpetration of a violent sexual act is probably the
most important thing at the moment. … Education is very
important. The United Nations Security Council resolution 1325
goes to the heart of this and Australia is a signatory to it. We train
all of our personnel who are deploying what is right and what has
to be done if they come across instances of sexual violence. But
there is, when you look around the world at the moment, such a
long way to go. The very first thing that could be done is to hold
people to account. 78
4.62 The submission from ActionAid suggested that ‘[t]oo frequently,
governments and the international community overlook the direct
experiences of women survivors of sexual violence in conflict’. 79
4.63 ActionAid, in partnership with Sydney University and with funding from
the Australian Government, stated that the partners are seeking to:
… [provide] opportunities to understand women’s
interpretation of justice and to gain first hand information
about access to justice for survivors. For example, women
who were forcibly abducted and recruited as child soldiers
during the civil war in Uganda have shared that they are
seeking reparations from the government in the form of
education for their children, as this was a right that they
were denied as children. 80
4.64 Ms Irene Santiago, the Lead Convener of ‘Women Seriously’, noted in her
submission that women are often excluded from peace processes. She
stated that while peace negations are about ending war, women will not
be invited to sit at the peace negotiation table as war is traditionally seen
as a male dominated sphere of activity. However, if peace negations were

78 Lieutenant General Morrison, Defence, Committee Hansard, 2 September 2014, pp. 5–6.
79 ActionAid Australia, Submission 29, p. 5.
80 ActionAid Australia, Submission 29, p. 5.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 117

seen to be about building peace then women would be more likely to be

included in negotiations. 81
4.65 The WILPF cited research in Burma, Sri Lanka, the Philippines,
Bougainville and Fiji that suggested women have found peace processes
to be as gendered as conflict itself, with women either not being included
in the process or ‘offered an advisory role only.’ The organisation
reported:
Experience has shown that this leads to women’s perspectives
being ignored or sidelined, which, in turn, is a barrier to their
human rights being safeguarded or promoted. The inclusion of a
gender perspective in peace processes means finding ways in
which women’s perspectives can be included at an early stage,
rather than as an afterthought. 82
4.66 Quoting an article by Hunt Swanee and Cristina Posa, Women Waging
Peace, the WILPF also commented that ‘[a]llowing men who plan wars to
plan peace is a bad habit’. 83
4.67 ACFID was also highly critical of the lack of female representation in
peace negotiations:
… women are overwhelmingly under-represented in conflict
prevention and peace processes. Of the 31 peace processes through
the period 1992–2011, only 9 [per cent] had female negotiators
present. UNSC Resolution 1325 affirms the importance of the equal
participation and full involvement of women in all areas of work
to maintain and promote peace and security. A discussion of the
role of women in conflict and peace should move beyond a sole
focus on protection and violence, which sees women only as
passive victims of conflict, and recognise women’s agency and
participation in situations of transition from conflict to peace. 84
4.68 However, the risk to women who obtain public roles was noted in
evidence by Amnesty International who observed that in Afghanistan:
Two leaders of the women’s department in the Laghman province
were murdered in succession in a period of about six months. I
think something like 70 women in public life in Afghanistan were
murdered last year. So we think Australia focusing on the whole

81 Ms Irene M Santiago, Lead Convener, ‘Women Seriously’, Global Campaign on Women, Peace
and Security, Submission 85, p. 1.
82 WILPF, Submission 53, p. 1.
83 WILPF, Submission 53, p. 4. See also, Hunt, Swanee and Posa, ‘Women Waging Peace’ Foreign
Policy, 2001, 124, pp. 38–47.
84 ACFID, Submission 25, p. 17.
118 EMPOWERING WOMEN AND GIRLS

women, peace and security agenda, which will allow women to be

more involved in peace building and political participation, will
have genuine benefits. 85
4.69 Amnesty International recommended that Australia encourage and
support the efforts of civil society organisations:
… including women groups and human rights defenders, to
improve the monitoring and documentation of human rights
violations, including cases of sexual and gender-based violence in
conflict and empower survivors to access justice. 86
4.70 Amnesty further argued that it is equally essential to ensure women’s full
and equal participation in peace negotiations and post-conflict
reconstruction efforts, in order to ensure that issues that affect women
including their ‘economic and political empowerment and sexual and
gender-based violence adequately are addressed.’ 87
4.71 However, WILPF made that point that ‘just because a woman is present at
peace talks … does not mean that she will represent the views of other
women, which are themselves not monolithic’. 88
4.72 The WILPF further argued that ‘[s]pecific expertise is required to translate
gender issues into gender sensitive language’, in peace talks, adding:
Although the possession by women of natural peacemaking skills
is controversial, it is accepted that they bring different perspectives
and motivations to the peace table and, in general, they are still the
main proponents of gender-sensitive issues. Further, their very
presence may contribute symbolic, as well as practical, value to the
process. In any event, as UN Women recognises ‘A case in which
peace negotiations were derailed due to women’s demands has yet
to be discovered’. 89

Refugee women and girls

4.73 A number of submissions to the inquiry raised the plight of women and
girls who live in refugee camps or urban areas, having fled their homes as
a result of war, conflict or natural disasters.

85 Ms Sophie Nicolle, Government Relations Adviser, Amnesty International, Committee Hansard,

Sydney, 21 August 2014, p. 6.
86 Amnesty International, Submission 74, p. 12.
87 Amnesty International, Submission 74, p. 9.
88 WILPF, Submission 53, p. 5.
89 WILPF, Submission 53, p. 5.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 119

4.74 The submission from the Refugee Council of Australia observed that
‘[s]exual and gender based violence (SGBV) is endemic in refugee
situations, not only in Asia but across the world’. 90 The Council submitted
that:
Women and girls constitute around half of the global refugee
population, a proportion that has remained consistent over the
past decade. While women and girls face the same challenges as
other refugees and asylum seekers in the region, they also face
additional risks and barriers due to their gender. 91
4.75 The Centre for Refugee Research similarly commented:
While all forcibly displaced people experience human rights
violations and abuses, entrenched social disadvantage and gender
discrimination result in women and girls facing heightened risks
and increased violations in the displacement context. This is
exacerbated by severe disruption to family/community support
and protection, by the absence of gender‐sensitive responses to
their situation, and by their lack of legal status and protection in
the country of asylum. 92
4.76 Evidence to the inquiry suggested that the types of violence that can affect
women and girls in refugee camps include sexual and gender-based
violence, family violence, sexual exploitation and harassment. 93
4.77 Family separation can also put women and girls at greater risk of violence.
The Refugee Council of Australia pointed out:
… individual family members—particularly women—can face
greater risks apart than they do when the family remains together.
For example, single women and female-headed households are
often at greater risk of violence and exploitation than families
which include adult male relatives. Women may also find it more
difficult to financially support their families without the assistance
of other family members due to the often limited livelihood
opportunities available to women. 94
4.78 With particular reference to the plight of women in Asia, the Centre for
Refugee Research explored the places and risk factors that contribute to
violence against women and girls in refugee communities:

90 Refugee Council of Australia, Submission 34, p. 5.

91 Refugee Council of Australia, Submission 34, p. 5.
92 Centre for Refugee Research, Submission 35, p. 2.
93 Refugee Council of Australia, Submission 34, p. 6.
94 Refugee Council of Australia, Submission 34, p. 6.
120 EMPOWERING WOMEN AND GIRLS

Women report sexual violence occurring in the workplace, on

public transport, at the markets at night, from landlords, in parks
and public places and in the home. The women with whom we
have worked have identified many factors that intersect to
increase the risks ... These include lack of access to livelihoods …
lack of secure shelter, and complete lack of access to formal justice
systems. 95
4.79 The Refugee Council of Australia pointed out that Australia ‘makes a
significant contribution to addressing the needs of refugee women and
girls through its Refugee and Humanitarian Program’ further stating that:
Over the past five years, around 40 [per cent] of the humanitarian
visas issued under the Program have been granted to women and
girls. Australia also offers targeted resettlement opportunities for
refugee women through the Woman at Risk program, designed for
women and their dependents who are without the protection of a
male relative and are in danger of victimisation, harassment or
serious abuse because of their gender. RCOA welcomes the
commitment of the Australian Government to offering these
targeted resettlement places on an ongoing basis. 96

Disasters and gender-based violence

4.80 Evidence to the Committee strongly suggested that women and girls are
also disproportionately vulnerable in times of disaster. One of the flow-on
effects of disasters for women and girls appears to be an increased risk of
gender-based violence.
4.81 The Asia Pacific region is particularly prone to natural disasters. Save the
Children noted that in 2013 there were some 334 country level disasters
across 109 countries worldwide, ‘resulting in 22 616 people killed,
96 million people affected, and economic damages in the vicinity of USD
118 billion’. In that year:
… Asia experienced 88 [per cent] of all disaster-related mortality,
as compared to the decadal average of 62 [per cent] (2003 to 2012).
Typhoon Haiyan devastated the Philippines (7 986 killed) and
imposed damages equalling 5 [per cent] of national Gross
Domestic Product (GDP). 97

95 Centre for Refugee Research, Submission 35, p. 4.

96 Refugee Council of Australia, Submission 34, p. 7.
97 Save the Children Australia, Submission 23, p. 7.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 121

4.82 The submission further noted that, in the same year, a single flood event in
India claimed 6 054 lives. Floods in the Solomon Islands, disasters in the
Philippines, and the landslides in Afghanistan highlighted ‘the endemic
disaster risk right across the Indian Ocean and Asia Pacific region’. 98
4.83 In its supplementary submission to the inquiry, CARE Australia observed
that natural disasters are not just physical events but can cause massive
social dislocation:
Disasters affect power dynamics at all layers of society, whether at
the political level, within communities or within households. And
indeed, gender roles change, across age and over time, and a
humanitarian crisis can lead to radical changes, both for people
who stay in the affected region and for people who flee. 99
4.84 The Director of ActionAid Mr Archie Law argued that natural disasters
increase women’s vulnerability to violence and can reverse hard won
social progress:
In terms of barriers to women’s rights in the region, emergencies
and natural disasters in particular are increasing women’s
vulnerability to violence, exploitation and abuse. These also create
setbacks of years in terms of the broader developmental gains that
had been made before disasters strike. 100
4.85 ActionAid observed that ‘addressing VAWG [violence against women and
girls] in humanitarian settings is crucial to ending the cycle of
vulnerability, marginalisation, exclusion and poverty faced by women’.
However, only ‘limited data is available in the region on links between
VAWG and disasters’. Despite this, the organisation observed, ‘reports
from other areas are instructive’. The organisation noted the following
example:
… eighteen months after the earthquake in Haiti, women and girls
reported having experienced widespread sexual abuse and
exploitation as they struggled to obtain the basic goods and
services needed to survive. 101
4.86 The GLASS Research Unit submitted that natural disasters exacerbate
existing gender inequalities and further ‘increase men’s violence against
women’. GLASS also suggested, ‘it is highly likely that the recent flood in

98 Save the Children Australia, Submission 23, p. 7.

99 CARE Australia, Supplementary Submission 54.1, p.1
100 Mr Archie Law, Director, ActionAid, Committee Hansard, Canberra, 21 August 2014, p. 11.
101 ActionAid Australia, Submission 29, p. 5.
122 EMPOWERING WOMEN AND GIRLS

Honiara resulted in further incidences of MVAWG [male violence against

women and girls]’. 102
4.87 GLASS also pointed out that finding a safe place to seek shelter from
disasters can be problematic for women:
Violence against women is common in shelters during and after
environmental disasters and there are moves across the world to
make shelters more gender sensitive as a result. In situations
where they are not gender sensitive, women and girls are choosing
not to seek shelter. 103
4.88 Similarly, Professor Hilary Bambrick argued that disasters caused by
climate change in turn cause social disruption which can increases the
exposure of women and girls to the risk of violence:
Whether they are in emergency shelters because of an extreme
event or because of forced migration and conflict over the
increasingly scarce resources of land, water and food, climate
change threatens the safety of women and girls. 104
4.89 Dr Priya Chattier advised that the impacts of environmental change are
often a threat to food security and to the livelihoods of women, with
Pacific women most likely to be affected by the impacts on crop rotation,
reef fish stocks, damage to houses from more intense tropical cyclones,
and from rising sea levels, changing rainfall patterns and ensuing water
shortages. 105 She recommended:
It is essential that Australia’s aid programme for the Pacific
examine the situation of rural women in the Pacific region and
identifies and pursues opportunities to analyse and integrate
gender dimensions and strategies to empower rural women in all
aspects of agricultural and rural development. Women’s concerns
and knowledge on food security could be better signposted in
other programmes concerned with climate change mitigation,
adaptation, awareness raising and sustainable resource
management, all of which impact on women’s lives. 106
4.90 Professor Hilary Bambrick referred to successful work conducted by the
Kiribati Climate Action Network (KiriCAN) through the Live and Learn
environment centre in Kiribati:

102 GLASS Research Unit, Monash University, Submission 7, pp. 11–12.

103 GLASS Research Unit, Submission 7, p. 4.
104 Professor Hilary Bambrick, Private capacity, Committee Hansard, Canberra, 7 May 2015, p. 17.
105 Dr Priya Chattier, Submission 55, p. 3.
106 Dr Priya Chattier, Submission 55, p. 4.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 123

Live and Learn have been working at the community level to

develop much more sustainable farming in the area—one of the
problems in Kiribati is that you get tidal inundation and you lose
everything that you have just planted, so it is a matter of trying to
find crops that can withstand that and diversifying and things like
that—teaching women, in particular, not only how to grow things
but how to sell them as well. It is about community enterprise. 107

Gender sensitive disaster relief and reconstruction

4.91 Evidence suggested that governments and humanitarian agencies need to
make greater efforts to provide humanitarian assistance that takes into
account the needs of women and girls during and after disasters.
4.92 ActionAid observed that:
… many humanitarian agencies often lack the capacity to address
women’s human rights in these settings. Beyond immediate relief
and support for women, they are not equipped or mandated to
respond to VAWG in disaster and conflict settings. 108
4.93 The GLASS submission observed that failures by governments and
humanitarian agencies to consult with women and girls in post disaster
relief and reconstruction could result in ‘unintended consequences’ and
adverse outcomes:
In two sites in different countries of the region we are aware of
rebuilding that included the siting of toilets at the end of a road of
newly constructed houses. In both cases women and girls have
been victims of sexual violence when going to the toilets. It is
therefore important that the Australian government’s aid efforts
do not add to the human rights abuses of women and girls, that
women and girls are consulted about reconstruction efforts and
that funds are fairly distributed. 109
4.94 To combat gender-based violence, CARE Australia argued that a gender-
sensitive approach to humanitarian assistance is essential:
Dedicated GBV expertise and stand-alone GBV initiatives are
essential to enable survivors to have a place to turn to for the
multi-sectoral support they require, including medical services,
psycho-social support as well as potentially legal, security and
longer-term livelihoods assistance. However, too often agencies

107 Professor Hilary Bambrick, Committee Hansard, Canberra 7 May 2015, p. 20; for other Live and
Learn activities see Live and Learn International, Submission 9, p. 1.
108 ActionAid, Submission 29, p. 5.
109 GLASS Research Unit, Monash University, Submission 7, p. 5.
124 EMPOWERING WOMEN AND GIRLS

delivering programs in other sectors, such as WASH, food

security, shelter, refugee camp management and so on, fail to
factor gender into their efforts. The consequence is that
opportunities are missed to mitigate GBV risks in their project
design. Without that mainstreaming, we notice that even in cases
where stand-alone GBV services are available, the numbers of
survivors accessing these services are low in comparison to the
levels of GBV reported through wider needs assessments. Effective
referral systems are crucial. 110
4.95 CARE Australia told the Committee that the ‘humanitarian world’ have
recognised the importance of addressing gender in emergencies, including
through:
… the publication of the Inter Agency Standing Committee (IASC)
Gender Handbook in Humanitarian Action, Guidelines on
Gender-based Violence and the Minimum Initial Service Package
for Reproductive Health in Emergencies, the deployment of
international gender advisers, the promotion of an IASC gender
marker, and the collection of sex and age disaggregated data and
more. 111
4.96 CARE Australia further noted, however, that: ‘On the international
political and donor agenda however, the topic has received far less
attention, with the exception of sexual violence’. 112
4.97 Ms Julianne Scenna, Director, Government and Multilaterals, at World
Vision Australia told the Committee:
I would also highlight gender based responses in emergencies. The
Australian government has had significant involvement in
humanitarian responses. There is a large bank of evidence on the
impact of violence against women and girls and sexual based
violence in emergencies but also on the success of gender-
responsive approaches and disaster-preparedness training, in safe
spaces, for women and children in the case of emergency
responses. Having intentional gender focus in our humanitarian
program would be another area that I would call out. 113
4.98 DFAT advised that its Humanitarian Action Policy includes a
commitment to gender equality in humanitarian action:

110 CARE Australia, Supplementary Submission 54.1, p. 6.

111 CARE Australia, Supplementary Submission 54.1, p. 3.
112 CARE Australia, Supplementary Submission 54.1, p. 3.
113 Ms Julianne Scenna, Director, Government and Multilaterals, World Vision Australia,
Committee Hansard, Sydney, 21 August 2014, p. 14.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 125

The policy supports the active participation of women, girls, boys

and men, and the increased disaggregation of data by sex.
Protection is a core component of Australia’s humanitarian action.
Australia has a long-standing commitment to protecting people
affected by natural disasters and human-induced crises, reflecting
our desire to prevent and reduce the violence, exploitation and
deprivation that people in such situations face. 114
4.99 The Department further advised that the Australian Government released
its first ‘Protection in Humanitarian Action Framework’ in 2013, with a
commitment to fund dedicated protection programs, and for protection to
be mainstreamed in humanitarian action:
For all humanitarian investments over $3 million it is compulsory
to complete a Humanitarian Response Aid Quality Check
(HAQC). HAQCs are similar to AQCs but contain modified
criteria suited to assess how well humanitarian response
investments are performing. This means that each humanitarian
investment must be rated on its ability to make a difference to
gender equality and empowering women and girls. HAQCs also
include a criterion on protection. This includes an assessment of
the extent to which the investment includes measures to prevent
and respond to gender-based violence and the extent to which the
monitoring and evaluation system for the investment collects sex,
disability and age disaggregated data. 115
4.100 CARE Australia observed, however, that while ‘there is rhetorical support
for gender programming in emergencies, in practice many actors are still
working “gender-blind”’, and were consequently less effective, risking
negative outcomes:
If we neglect or ignore gender issues in emergencies, we fail to
recognise the different needs, capacities and contributions of
women, girls, boys and men, and operations that do not respond
to gendered needs risk being discriminatory in their delivery. At
best this means the work is less effective and at worst, it risks
harming the communities we are supposed to serve. 116
4.101 The need for a greater emphasis on gender responsiveness during
disasters was further highlighted by World Vision:

114 DFAT, Submission to the Senate Inquiry into International Aid (Promoting Gender Equality)
Bill 2015, p. 6.
115 DFAT, Submission to the Senate Inquiry into International Aid (Promoting Gender Equality)
Bill 2015, p. 7.
116 CARE Australia, Supplementary Submission 54.1, p. 2.
126 EMPOWERING WOMEN AND GIRLS

The Australian government has had significant involvement in

humanitarian responses. There is a large bank of evidence on the
impact of violence against women and girls and sexual based
violence in emergencies but also on the success of gender-
responsive approaches and disaster-preparedness training, in safe
spaces, for women and children in the case of emergency
responses. Having intentional gender focus in our humanitarian
program would be another area that I would call out. 117
4.102 CARE Australia argued that the programs that directly ‘address the needs
of women and girls in emergencies, such as preventing and responding to
gender-based violence, must be resourced’. 118
4.103 Amnesty International submitted to the inquiry the need to pursue a
‘practical and cohesive programme of action’ to address sexual and
gender-based violence in conflict situations, taking into account factors,
including:
… gender inequality; the continuing lack of women’s participation
in conflict resolution and peace processes; and lack of access to
justice, truth and reparation for victims of crimes of sexual and
gender-based violence under international law, whether they are
male or female, adult or child. 119
4.104 DFAT also noted that sometimes post conflict situations can provide
opportunities to make change for the better:
Sometimes we see post conflict as an opportunity, where there has
been a disruption. The United Nations, for example, in both
Afghanistan and in Timor ensured that the constitutions were
drafted in such a way that gender equality was embedded within
the constitutions. We saw that as well in Sierra Leone, and of
course Sierra Leone is one of the two countries in the world now
where women outnumber men in parliament. That emerged post
conflict because there was the drafting by an international
consortium, along with the country concerned, of the constitution.
And we see the same in both Timor-Leste and Afghanistan—that
there is probably greater representation by women then there
would have otherwise been. So there are entry points and
sometimes opportunities emerge from post-conflict environments

117 Ms Scenna, World Vision Australia, Committee Hansard, Sydney, 21 August 2014, p. 14.
118 CARE Australia, Submission 54.1, p. 2.
119 Amnesty International, Submission 74, p. 8.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 127

as well, which is clearly unfortunate. But thinking originally about

where the entry points might be is usually the way we do it. 120

Committee comment

4.105 The Committee is aware of the considerable international attention that

has been focussed recently on the issue of gendered violence in conflict.
This has built on some 15 years of diplomacy with the UNSCR 1325 and
subsequent Security Council resolutions which have established a clear
international framework providing guidance for measures to address this
persistent problem.
4.106 The Australian Government has been active in this policy area and is to be
commended for adopting and working to implement a National Action
Plan on women, peace and security. The Government is also to be
commended for its work in Afghanistan advocating for the inclusion of
women in peace efforts. 121
4.107 Against this background, Australia’s diplomatic efforts may be most
usefully focussed on regional dialogue and engagement. Some proposals
made to the Committee for the Australian Government to adopt included:
 Leading an annual ASEAN–Australia Dialogue held for
parliamentarians, judicial, public service and security sectors on
Women, Peace and Security.
 Facilitating an Australia–ASEAN Annual Dialogue on Defending
Women’s Rights that could promote and defend women’s human rights
and could, for example, engage in areas such as training and awareness
of international legal instruments. 122
 Supporting the implementation of the Pacific Regional Action Plan on
Women, Peace and Security, and increase resources committed to
ensuring effective monitoring and evaluation of the Action Plan. 123
4.108 The Committee was pleased to hear from DFAT officials, the Ambassador
for Women and Girls, the ADF and AFP, and UN Women, as well as a
number of other organisations who work in this critical area.
4.109 Evidence received by the Committee indicates a key aspect of combating
violence relates back to the broader issue of the need to educate men,

120 Ms Sally Moyle, Principle Gender Specialist, DFAT, Committee Hansard, Canberra, 17 June
2014, p. 6.
121 DFAT, Submission 27, p. 39.
122 Asia Pacific Centre for Responsibility to Protect, Submission 18, pp. 5–7.
123 WILPF, Submission 53, p. 10.
128 EMPOWERING WOMEN AND GIRLS

governments and legal sectors on the need to include women and girls in
peace negotiations, relief efforts and post conflict reconstruction.
4.110 The Committee supports proposals for greater focus on the role that
women and girls can and should play in responses to humanitarian crises.
4.111 The Committee also notes DFAT’s reliance on international agencies to
deliver gender equality outcomes in the context of humanitarian
assistance and disaster relief. It would seem timely—with the increased
gender focus of the Australian Aid Program—that a review be conducted
to ensure that agencies have, or are developing and implementing, gender
sensitive programming in an agreed and co-ordinated fashion during
humanitarian crises.
WOMEN AND GIRLS IN WAR, CONFLICT AND DISASTER ZONES 129

Recommendations

Recommendation 9

The Committee recommends that the Australian Government:

 adopt the proposals made in the 2014 Second Annual Civil

Society Report Card: Australia’s National Action Plan on
Women, Peace and Security; and
 encourage governments in the region, which have not already
done so, to prioritise the approval of national action plans for
UN Security Council resolution 1325 on women, peace and
security.

Recommendation 10

The Committee recommends that the Australian Government work to

ensure that Australian responses to disasters and humanitarian crises
factor in the unique and additional needs of women and children, by
ensuring:

 that all plans, toolkits and guidance documentation for

humanitarian and disaster relief include a requirement to take
into account the unique needs and vulnerabilities of women
and children, and guidance on how this can be achieved; and
 humanitarian responses funded by the Australian Government
model gender-sensitive processes, and avoid additional harms
to women and children.
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