Subject: [fem-women2000 93] APWLD Paper on CEDAW and BPFA
From: apwld <apwld@loxinfo.co.th>
Date: Wed, 05 Nov 1999 10:40:18 +0700
Seq: 93
Paper Circulated at Lobbying Workshop on Monday, October 25 Asia Pacific Forum on Women Law and Development (APWLD) ------------------------------------------------------------------------- BEIJING + 5 REVIEW WOMEN'S CONVENTION AND BPFA: ADOPTING A DE FACTO EQUALITY FRAMEWORK FOR THE BPFA + 5 REVIEW[*] Introduction The General Assembly, in Resolution 52/231, decided to convene a special session to review the implementation of the Beijing Platform for Action (BPFA) five years after its adoption. The special session, which will take place on 5 - 9 June 2000 in New York, USA, will look into actions taken, lessons learned, obstacles encountered, best practices adopted, persistent and emerging challenges faced by governments and other actors in carrying out the strategic objectives enumerated under the 12 areas of concern of the BPFA. In preparation for this special session, women's NGOs in Asia-Pacific held a Regional NGO Symposium for the BPFA Review on 31 August - 3 September 1999 in Bangkok, Thailand. The symposium was a culmination of national and sub-regional BPFA review activities currently undertaken by women's NGOs in the region. It was also the opportunity for Asia-Pacific women to come together and collectively produce a regional NGO report on the progress made in realising the commitments made in Beijing. The report will be eventually consolidated in a Global Alternative Report on the BPFA to be presented at the special session of the UN General Assembly in 2000. The BPFA review process will centre on the theme "Women 2000: Gender Equality, Development and Peace for the 21st Century". The focus on gender equality, development and peace brings to fore the continuing urgency to address these interrelated issues in the struggle to advance women's rights in the coming millennium. In highlighting gender equality, the theme brings attention to the persistent gap between equality of men and women in law and in fact. It directs the review process towards the commitments made in Beijing to bridge this gap, go beyond granting women mere formal rights and ultimately eliminate all forms of discrimination against women. As the review stresses equality between the sexes, it will be most relevant to consider the framework of gender equality laid out in the Convention of All Forms of Discrimination Against Women (Women's Convention). The Women's Convention framework of equality, which will be discussed in more detail later, clearly asserts the attainment not only of de jure, but more significantly, of de facto equality for women. As such, it can be utilised as a tactical opening in the upcoming review to push governments to institute not only policy or legislative reforms but also appropriate actions to ensure that such changes in policies and laws translate into actual improvement in the lives of women. In the light of the upcoming Economic and Social Commission for Asia and the Pacific (ESCAP) High-level Intergovernmental meeting to review the regional implementation of the Beijing Declaration and the BPFA, conceptually integrating the Women's Convention and BPFA can further provide a framework for a "rights-based approach to empowerment of women" as tabled in the meeting's agenda. The declaration of the Women's Convention that all forms of discrimination against women, as sought to be addressed in the BPFA, are violations of women's human rights transforms the governments' commitments under the BPFA from mere moral imperatives to assertions of claims for women's fundamental rights. Adopting the Women's Convention in the BPFA review will also consolidate the various recommendations on gender equality made under these two international instruments. It will combine the resources and mechanisms employed to monitor the accountability of governments to carry out these recommendations. And as most Asian and some Pacific governments have signed the Women's Convention, linking these two fundamental instruments on women's rights will also significantly reinforce the demands made on governments to undertake all measures to eliminate all forms of discrimination against women. I. The Women's Convention Framework of De facto Equality The Women's Convention takes off from the concept of non-discrimination based on sex developed in international instruments such as the Charter of the UN, the Universal Declaration of Human Rights, the International Covenants on Human Rights and other UN resolutions. But compared to these instruments, the Convention acknowledges that women, more than men, continues to be discriminated upon in society. Hence, it takes the categorical position of advocating for the elimination of discrimination against women specifically. Article 1 of the Convention defines discrimination against women as "the distinction, exclusion or restriction made on the basis of sex which has the effect or purpose of impairing or nullifying the recognition, enjoyment or exercise by women, irrespective of their marital status, on a basis of equality of men and women, of human rights and fundamental freedoms in the political, economic, social, cultural, civil or any other field". This article ensures women's protection against discrimination of all forms, intentional or unintentional, and under Article 2, whether committed by public or private actors. In subsequent related documents[1], the Women's Convention clarifies that women's "human rights and fundamental freedoms" in this context include the following: "right to life; right not to be subject to torture or to cruel, inhuman or degrading treatment or punishment; right to equal protection according to humanitarian norms in time of international or internal armed conflict; right to liberty and security of person; right to equal protection under the law; right to equality in the family; right to the highest standard attainable of physical and mental health; and right to just and favourable conditions of work". By implication, then, any form of discrimination or impairment of any of these rights is a human rights violation for which the State may be held accountable. Even in cases where the violation is committed not by State actors but by private persons or entities, the Women's Convention still holds the State responsible if it fails to act with due diligence to prevent the violation. Article 2 further directs that women and men must be treated equally before the law by incorporating the principle of equality between the sexes in national constitutions, policies and legislation (de jure equality). But in addition to advocating for de jure equality, Article 2 (a) further obliges States Parties "to ensure, through law and other appropriate means, the practical realisation of this principle" (de facto equality). In relation to Article 4 (1), the Convention therefore mandates that gender equality must be manifested in all aspects - in the treatment, access, opportunity and actual enjoyment of rights granted to women on equal basis with men. The Women's Convention thus emphasises the importance of enabling conditions which impact on women's full enjoyment of their rights. Article 3 specifies that State Parties shall "take in all fields, in particular in the political, social, economic and cultural fields, all appropriate measures, including legislation, to ensure the full development and advancement of women, for the purpose of guaranteeing them the exercise and enjoyment of human rights and fundamental freedoms on a basis of equality with men". In this regard, mere codification of rights is not sufficient to ensure equality for women if positive measures are not taken to create political, social, cultural and economic conditions which will allow women to exercise such rights fully and in actuality. In ensuring equality for women in all aspects, the Convention implicitly rejects the common approach to equality that assumes that women and men are the same and, therefore, they should be treated in the same manner. This simplistic approach ignores the biological differences between men and women, the gender-based differences between them and those socially-shaped roles and identities as well as norms and values attached or related to women and men in various spheres of life. The blinders that this approach have results in further discriminating women. For example, they have to meet male norms, at the same time they have to cope with the burdens of their gendered roles; also, women's vulnerability to violence will not be recognised and their reproductive and sexuality rights ignored or marginalised. The Women's Convention does not also subscribe to the approach that emphasises the differences between women and men without questioning those gender-based differences and seeking to correct them. Common examples of such approach are laws that provide for special protection for women by virtue of their reproductive function but which do not provide at the same time for measures to promote shared responsibilities in child-rearing or to prohibit discrimination against women because of pregnancy or marriage, or which curtails the exercise of their other rights. It recognises biological differences but ensures that any form of special protection for women resulting from such differences will not lead to a denial of their other rights or reinforcement of their state of inferiority. So in various articles[2], the Women's Convention recognises the reproductive role of women as child bearers but at the same time points out that socially constructed differences should not be built into such difference to justify women's subordination. In essence, the Convention advocates a framework for addressing discrimination against women and promoting the full enjoyment or realisation of their human rights. Inspite of institutionalising special measures for women, the Convention in no way advances discrimination against men. In fact, Article 11 (3) specifies with caution that such special measures should "be reviewed periodically in the light of scientific and technological knowledge and shall be revised, repealed or extended as necessary". Article 4(1) similarly qualifies that affirmative action schemes which favour women "in no way entail as a consequence the maintenance of unequal or separate standards". These special protective measures are only temporary measures, intended to accelerate de facto equality between men and women. They are provided for in the Convention specifically to progressively address the systemic causes of gender inequality. II. Adopting a De facto Equality Approach in the BPFA + 5 Review The adoption of the Women's Convention framework on de facto equality will be explored here in three of the twelve critical areas of concern of the BPFA, namely: violence against women, women and the economy, women in power and decision-making. These three areas were chosen purposely since they have been repeatedly selected as priority areas in the consultations of APWLD with its network of women's NGOs. These three areas of the BPFA will be examined in the light of the general approach of the Women's Convention to address the elimination of discrimination against women and integrating these areas of concern into its framework of upholding women's fundamental human rights. Despite this specific focus of the paper, special care is taken not to lose the deliberate attention which BPFA accords to special groups of women, e.g., rural women, young women, elderly and others. Nor does this paper preclude the applicability of the approach proposed here to the other areas of concern of the BPFA which are not discussed in this paper. A. Violence against Women The BPFA, in Paragraph 113, defines violence against women as "any act of gender-based violence that results in, or is likely to result in, physical, sexual or psychological harm or suffering to women, including threats of such acts, coercion or arbitrary deprivation of liberty, whether occurring in public or private life". It covers both intended and unintended acts, whether committed by the State or private actors. This extensive definition is copied verbatim from the Declaration on the Elimination of Violence against Women which, as stated in its preamble, was passed to strengthen and complement the implementation of the Women's Convention. Based on this common definition, both the Women's Convention and BPFA therefore adopt the same perspective on violence against women. Both documents assert that it nullifies or impairs the enjoyment by women of their human rights and thus, it is a major obstacle to achieving gender equality. In General Recommendation 19, the Women's Convention goes further to qualify violence against women as an act of discrimination against women per se. Therefore, the Convention implores in the same General Recommendation that governments must undertake all other actions necessary to eliminate de facto discrimination against women in order to fully eradicate violence against women. Conversely, the full implementation of the overall objective of the Women's Convention to eliminate discrimination against women requires governments to take positive measures to address all forms of gender-based violence, whether committed by public or private actors. General Recommendation 19, the Declaration on the Elimination of Violence against Women and the BPFA suggest similar strategic actions for governments to undertake in order to specifically address violence against women: the enactment/implementation/periodic review of domestic legislation on violence against women[3]; gender sensitisation among staff of enforcement bodies and other government agencies and legal, medical and educational personnel[4]; assurance of access to legal and other remedies in cases of domestic and other forms of violence[5]; conduct of awareness-raising campaigns and education programs for the public[6]; provision of shelters, medical and other related services for battered women[7]; data collection and research on violence against women[8]. However, following the perspective that violence against women is a form of gender discrimination and human rights violation as categorically declared in General Recommendation 19 by the Committee on the Elimination of Discrimination Against Women[9], the scope for governmental actions in the BPFA becomes broader than enumerated above. It now includes all measures enumerated under Strategic Objectives I.1-3 of the BPFA on human rights of women as well as all other measures proposed to be undertaken under other critical areas of concern of the Platform aimed at achieving gender equality. Particularly, the mandated area for governmental actions is now extended to cover gaps in the Platform identified during the Asia Pacific Regional NGO Symposium on BPFA + 5. One of the gaps pertain to newer forms of violence experienced by women (e.g., trafficking and working in slavery-like conditions) and girl-children (e.g., child labour) resulting from globalisation and related economic policies of casualisation and exploitation of labour force, privatisation of basic services, etc. Another gap concerns the discrimination against women on the basis of sexual orientation, i.e., lesbian and bi-sexual women and the violence committed against rural, indigenous and Dalit women.[10] Paragraph 118 of the BPFA specifically states that violence against women is essentially derived from cultural patterns, traditional and customary practices that perpetuate the lower status accorded to women. Paragraph 124 (a)of the BPFA, therefore, specifically alerts governments against any attempt to use gender stereotypes, customary practices or religious traditions to legitimise discrimination against women. In particular, Paragraph 124 (i) stresses the eradication of customary practices which are harmful to women such as female genital mutilation, female infanticide, pre-natal sex selection and dowry-related violence[11]. Despite these provisions, participants at the Asia Pacific Regional NGO Symposium on BPFA + 5 observed the alarming resurgence of right wing political movements, religious fundamentalist groups and State-sanctioned armed groups which violate women's rights in the name of culture, religion and other identity-based constructs, e.g., honour killings in Pakistan and other Muslim countries, mass rape of Chinese women in Indonesia, among others[12]. So as governments remain fully unresponsive to the call to eradicate customary practices which are harmful to women, article 5(a) of the Women's Convention can be invoked to support this urgent call to action. This article mandates governments to modify customary and all other practices which are prejudicial to women. Like the BPFA, it underscores the need for governments to critically examine cultural patterns which discriminate against women and perpetuate the violence committed against them. It suggests that the attainment of de facto equality between men and women necessitates that cultural practices must be put into question and not used to cover up discriminatory practices which disadvantage women. It asserts that governments must fully guarantee women's right to life by ensuring that they are free from cultural, political or religious based persecutions. Enhancing the framework of the Women's Convention, the BPFA is especially mindful of the greater degree of vulnerability of special groups of women. So to ensure that certain categories of women are equally protected against domestic and other forms of violence, the BPFA review process must not also fail to overlook the forms of violence committed against women with disabilities[13], migrant women and girls[14], young women, refugee women, displaced and internally displaced women[15]. In the recently concluded Asia-Pacific Regional NGO Symposium on the BPFA + 5, these same concerns were raised as persistent issues. It was pointed out that "while the human rights chapter of the BPFA addresses gender as the causal factor for women's human rights violations, for some women, other circumstances are also relevant to violation(s) of their human rights"[16]. Hence, it was acknowledged that there is a need to expand the framework on violence against women to encompass the broader concerns of human rights in order to address the violence committed against women with disabilities (in the context of their health needs), indigenous women, migrant women and migrant women workers, lesbians and bi-sexual women, displaced women and others[17]. In this regard, the Women's Convention framework on de facto equality becomes critically relevant as it explicitly links violence against women to gender discrimination and human rights violation. B. Employment and Economic Rights The BPFA has a comprehensive list of actions to be taken to advance women's economic rights. It categorises the numerous actions according to strategic objectives and the different actors oblige to undertake such actions. But for the purposes of the upcoming review, it may be more systematic to re-categorise the actions according to the Women's Convention's framework of gender equality. In this manner, greater emphasis can be made on the need to challenge the actors, especially governments, to go beyond mere attainment of de jure equality and give equal importance to achieving de facto equality and creating enabling conditions critical to ensure the full realisation of women's economic rights. So based on the equality framework of the Women's Convention framework, actions enumerated in the BPFA which pertain to women's equality in treatment before the law or de jure equality are limited to policy and legislative reforms to promote equal employment terms and conditions[18] or other formal economic rights for both men and women. De facto equality, on the other hand, relates to actions which recognise and address the gender-based barriers that stand in the way of women's enjoying equal access/opportunity to work or engage in other economic activities. Under the BPFA, these measures refer to the following: equal access to credit and other resources[19]; equal access to extension services and technical assistance[20]; equal opportunity to job training, re-training and other skills development programmes[21] and a general provision in Paragraph 165 (o) which calls for the implementation of affirmative actions to level the field of economic opportunities available to both men and women. De facto equality also entails the provision of measures which address discrimination against women while already employed such as enactment of anti-sexual harassment laws and actualisation of all those measures enumerated under Paragraph 178 of the BPFA. Lastly, de facto equality also stresses the significance of instituting measures to ensure equality in results which translates into measures to ensure women's control over the fruits of their employment such as ensuring their property rights[22] or right to career advancement[23]. The continuing importance of pushing for the attainment of de facto equality as underscored in the Women's Convention becomes more evident in the assessment of women's economic rights during the Asia-Pacific Regional NGO Symposium on BPFA + 5. The participants noted that women's inheritance and property rights remain marginalised compared to men.[24] As a result, women's effective access and control over land remains marginal too. In instances where women were provided access to micro-credit, they observed that the poorest of poor women are still unable to obtain access to such capital. Moreover, they stated that "micro-credit programs have several constraints such as high cost of loan disbursements, small loan size, labour-intensive production methods, lack of marketing and managerial skills training".[25] Thus, they suggested that UN agencies, multilateral bodies and NGOs should "re-examine the impact of micro-credit and income-generating programmes in genuinely empowering women". By invoking the call for de facto equality under the Women's Convention, these gaps can be addressed. More importantly, more comprehensive measures can be adopted pertaining to women's right to have full control over the fruits of their employment or economic engagement such as money they earned, skills and knowledge they acquired, the greater physical mobility and personal freedom they obtained. These measures may cover, in addition to ensuring land and property rights and institutionalising career opportunities, citizenship and under Article 16 of the Women's Convention, marital rights. The Women's Convention approach to equality, as mentioned, also advances that enabling policies and conditions must be in place to allow women to exercise and enjoy their rights. In this regard, the BPFA specifies that governments must revise budgets, policies and programmes, especially trade and economic policies and agreements, to reflect gender balance[26]. The negative impact on women of globalisation, structural adjustment programmes, feminisation of labour migration and other global trends must be reviewed as they limit women's full enjoyment of their economic rights. Relatedly, women must be granted equal access to policy formulation and decision-making especially in matters pertaining to economy[27]. In the recently concluded NGO Symposium, however, participants reiterated that globalisation and the Asian financial crisis have led to casualisation/sub-contracting of labour, reduced wages and employment benefits, exploitative work conditions and the overall erosion of women's employment rights. In this light, it becomes imperative to assert the equality approach of the Women's Convention which draws attention to the advancement of enabling conditions and the categorisation of women's economic rights as fundamental human rights. The equality framework of the Women's Convention also specifies that the special concerns of women due to their reproductive function must also be accommodated to achieve substantial equality for women. To this end, the BPFA identifies the following actions to be taken to eliminate discrimination against women by reason of their reproductive role and responsibilities: elimination of discriminatory practices such as the denial of employment or dismissal due to pregnancy or marital status[28]; reassessment of the valuation and extent of women's work[29]; standardisation of equal pay for work of equal value[30]; provision of child care services in the workplace; and adjustment of employment policies to restructure work patterns in order to promote sharing of family responsibilities[31]. While gains have been made in this area, participants at the NGO Symposium reported this as a persistent issue[32]. In this context, commitments under the Women's Convention regarding acknowledging women's reproductive function as well as the expansive interpretation of 'equality in results' as integral to the achievement of de facto equality for women is relevant for advocacy on this matter. Equality in results in the case of employment is not restricted to women actually getting employed and not being discriminated against in the workplace. Such 'results' can also be extended to women enjoying equally with men the use of and control over their earnings from work. Thus, government programs that seek to correct gender stereotypes and address the power relations especially within the family will integrate raising awareness on women's right of control over the fruits of their employment. To complement the Women's Convention framework, the BPFA also advocates for strategies to respond to the needs of special groups of women which should not be neglected in the review process. It ensures access to credit, market, technology and other resources for small and medium enterprises initiated by young women, low-income women, rural and indigenous women, women with disabilities, elderly women[33]. It provides that economic activities of indigenous women must be supported and their traditional knowledge respected[34]. It maintains that older women and women with disabilities must be granted equal employment rights and benefits[35]. The BPFA also advances the full recognition of the employment and economic rights of women in the informal sector[36]. It prohibits child labour[37] and initiates actions to protect migrant women[38]. C. Women's Political Participation In the context of women's political participation, de facto equality means, at one level, that they have equal access/opportunity to participate in all levels of decision-making. To achieve this, the BPFA enumerates the need to increase the number and upgrade the positions of women in government bodies[39]; government-funded institutions[40]; in political parties[41]; in trade unions[42]; in UN bodies[43]; in NGOs[44]; in corporations and all other strategic decision-making positions[45]. In addition, the BPFA lobbies for the review and revision of criteria for recruitment and appointment in decision-making bodies[46]. The BPFA also encourages the adoption of affirmative action measures to ensure the substantial representation of women in the political sphere[47]. But aside from building a critical mass of women in the political institutions mentioned above, de facto equality also entails that there are capacity-building programmes available for women to develop their full potential as political leaders and decision-makers as well as measures to ensure that women can equally participate with men during their term of office or while holding positions in various decision-making bodies. The following provisions of the BPFA ensures that these measures are in place: development of career advancement and on-the-job training for women of all ages[48]; gender sensitivity training for women and men[49]; leadership training, self-esteem training and other programmes to enhance women's participation in electoral processes and political activities[50]. Both the Women's Convention and the BPFA also recognises that de facto or real equality for women requires the liberation of women from the unequal division of labour and responsibilities within households based on unequal power relations as a precondition to the full realisation of women's right to political participation. Hence, Paragraph 192 (e) encourages the promotion of public debate on the new roles of men and women in the family and society. Under Paragraph 190 (i), the BPFA urges governments to adopt measures to help women reconcile family and professional life. Unless parental responsibilities are shared, women will not have sufficient time and opportunity to develop their skills to be involved in political processes. In the NGO Symposium, the participants listed significant gains in the area of women in power and decision-making such as the enactment of laws on women's political participation and the growing public awareness of this issue; the introduction of quota systems; the increased number of women in politics, especially at the grassroots level; and lastly, the ratification of the Women's Convention which provides for women's right to political participation specifically under Article 7[51]. Despite these gains, the participants at the NGO Symposium still identified several remaining issues, challenges and obstacles which signify that de facto equality has not been fully achieved at the levels of equality in access/opportunity, equality in actual participation and equality in results. Regarding equality in access/opportunity, the participants observed that quota systems are rarely met; the number of women in senior positions remain small; power structures continue to be dominated by men; and women's vote remain unconsolidated as a source of political power. They also pointed out that rising religious fundamentalism and increasing threats of violence have intimidated or prevented women from seeking office. At the level of equality in terms of actual participation in politics, the participants noted that there is still a dire need among women for education and training on political participation, especially in the field of learning and harnessing new technology.[52] The participants emphasised that women are still burdened with traditional duties in the family which hamper their right to participate and enjoy the fruits of their participation in public decision-making processes. More significantly, the existing curtailment of women's right to equality in results means current measures to achieve gender equality have been limited to making sure that a substantial number of women are found in all levels and fora of decision-making and that measures have been in place to promote their capacity to participate on equal terms with men in the actual exercise of political power. However, measures to ensure that they can meaningfully or effective contribute in shaping the political life of society have not been given much attention. Women's potential contribution in redefining the actual exercise and ethics of power and the structures of numerous power sites in society have not been seriously considered to initiate this process for women to significantly shape politics. Programmes have not been identified to respond to the recurring complaint that politics, or the current practice of it is "dirty"; that it pertains too much on "getting and maintaining control". Programmes have not been designed to allow women, and men, to propose alternative structures, practices, ethics of power. Consistent with the previous sections, the BPFA in this area of concern also draws special attention to the needed of specific groups of women in the context of participation in politics and decision-making processes. It states in Paragraph 190 (g) that indigenous women, in particular, must be encouraged to participate in decision-making at all levels. In Paragraph 192 (f), it focuses on the needs of young women in terms of career advancement. As alternative power sites and practices are being located or identified, the actual and active participation of these women in politics is valuable. Conclusion Based on this preliminary application of the framework of the Women's Convention on de facto equality, it appears that the framework will be relevant to use in the review process as benchmarks for identifying further areas for action in the review of the BPFA. It suggests that governments cannot simply stop at implementing de jure measures to obtain gender equality. Rather, they are still accountable to promote gender equality in all aspects - in treatment, access to resources and opportunities, in the results or enjoyment of the rights. In this regard, barriers or obstacles and suggested solutions towards the achievement of de facto equality must be emphasised in the review process. The emphasis on the adoption of special temporary measures in the de facto framework of equality can also be used as a springboard to press for the development of monitoring indicators and mechanisms to assess the implementation of the commitments under Beijing. As stated above, the Women's Convention specifies that such special temporary measures "must be reviewed periodically and shall be revised, repealed or extended as necessary". Hence, it is implied that governments and civil society are encouraged to develop intervening targets and progressive indicators against which to assess the progress of governments in achieving not only de jure but also de facto equality for women. Finally, the integration of the framework of the Women's Convention into the discussions during the BPFA + 5 review process can address a weakness in the structural categorisation of the women's issues in the BPFA that might have eroded the document's substantive merits, both for the purposes of its implementation and the present review process. As structured, the BPFA presents human rights of women only as one area of concern, which gives the erroneous impression that other areas of concern under the BPFA are not human rights issues. The present BPFA format downplays or lacks the exposition of a comprehensive and holistic framework that a rights-based approach can bring to the different areas of concern, considered individually and together. A rights-based framework can emphasise the interconnected nature of the concerns addressed by the BPFA, surface the common systemic causes underlying them, determine the integrated and systematic responses required and promote and foster a deeper understanding of a rights perspective through which those priority concerns can be viewed and assessed. The framework of the Women's Convention for de facto equality for women can provide the basis or foundation of the "rights-based approach to women's empowerment" as tabled in the agenda of the ESCAP High Level Intergovernmental meeting to review the BPFA implementation and in the general agenda of the BPFA + 5 review process. As this paper suggests, the equality framework of the Women's Convention can be useful in assessing whether or not five years of the BPFA indeed has spelled strides in women's empowerment and created positive changes in their lives. /ends ------------------------------------------------------------------ [*] Preliminary Paper prepared by Attys. Eleanor C. Conda and Mary Jane N. Real for Asia-Pacific Forum on Women, Law and Development (APWLD). APWLD is a regional NGO committed to enabling women to use law as an instrument of social change for equality, justice and development. This paper is a draft so we welcome your comments. Please send your comments to: APWLD, Santitham YMCA Building, 3rd Floor, Room 305-308, 11 Sermsuk Road, Mengrairasmi, Chaing Mai, 50300 ,Thailand. Tel. Nos.: 66 53 404613-14; Fax No.: 66 53 404615; E-mail address: apwld@loxinfo.co.th Eleanor C. Conda is an independent consultant on women's human rights. She has worked on the Women's Convention, in the region and outside, for several years now. In particular, she developed with IWRAW-Asia Pacific a Women's Convention-based Monitoring Framework which can be used to enhance fulfilment of State obligations to promote equality for women. Mary Jane N. Real previously worked as a programme officer of Southeast Asia Watch (SEAWatch) where she helped set up the secretariat of the organisation and organised its first "Regional Technical Workshop on Monitoring Indicators for the BPFA". She is currently the programme officer of APWLD and takes charge of co-ordinating its BPFA projects and activities. [1] General Recommendation 19 of CEDAW on Violence Against Women; Declaration on the Elimination of Violence Against Women; [2] See third to last paragraph of the Preamble; Articles 4(2); 5(b); 10(c); 11; 12 CEDAW; [3] Paragraph 124 (c), (d), (i), (o) BPFA; Paragraph 24 (b), General Recommendation 19; Article 4 (d), Declaration on the Elimination of Violence Against Women; [4] Paragraph 124 (g), (n) BPFA; Paragraph 24 (b), General Recommendation 19; Article 4 (i), Declaration on the Elimination of Violence Against Women; [5] Paragraph 124 (h), (d) BPFA; Paragraph 24 (b), (i), (r), (t) General Recommendation 19; Article 4 (d), (g), Declaration on the Elimination of Violence Against Women; [6] Paragraph 125 (d), (e), (g), (h) BPFA; Paragraph 24 (f), (t) General Recommendation 19; Article 4 (j), Declaration on the Elimination of Violence Against Women; [7] Paragraph 125 (a), (i) BPFA; Paragraph 24 (r), (t) General Recommendation 19; Article 4 (g), Declaration on the Elimination of Violence Against Women; [8] Paragraph 129 BPFA; Paragraph 24 (c), General Recommendation 19; Article 4 (k), Declaration on the Elimination of Violence Against Women; [9] The body that monitors implementation by State-Parties to the Women's Convention of their obligations under it. [10] Report of the Asia Pacific Regional NGO Symposium on BPFA + 5, 31 August - 4 September 1999, Thailand, p. 26; [11] Paragraph 124(i) BPFA; [12] Report of the Asia Pacific Regional NGO Symposium on BPFA + 5, 31 August - 4 September 1999, Thailand, p. 16; [13] Paragraph 124 (m), 126 (d) BPFA; [14] Paragraph 125 (b), (c), 126 (d) BPFA; [15] Paragraph 126 (d)BPFA; [16] Report of the Asia Pacific Regional NGO Symposium on BPFA + 5, 31 August - 4 September 1999, Thailand, p. 36; [17] Ibid; [18] Paragraph 165 (b), (r), Paragraph 175 (g), Paragraph 177 (a), (c), Paragraph 178 (a), (b), (c), (h), (l); [19] Paragraph 165(e), Paragraph 166 (a), (e), (l), Paragraph 167 (b), Paragraphs 169, 170, 171, Paragraph 173 (a), Paragraph 176(h), (j); [20] Paragraph 166 (e), (f), (g); Paragraph 173 (c); Paragraph 176 (b), (c), (g); [21] Paragraph 166 (e), (j); Paragraph 173 (f); Paragraph 176(i); Paragraph 177 (b); [22] Paragraph 165 (e) BPFA; [23] Paragraph 178(g) BPFA; [24] Report of the Asia Pacific Regional NGO Symposium on BPFA + 5, 31 August - 4 September 1999, Thailand, pp. 30-33; [25] Report of the Asia Pacific Regional NGO Symposium on BPFA + 5, 31 August - 4 September 1999, Thailand, pp. 31-32; [26] Paragraph 165 (i), (k), (p); Paragraph 167 (d); Paragraph 175 (b) BPFA; [27] Paragraph 165 (d), (i), (n), Paragraph 167 (a), Paragraph 176 (d), Paragraph 177 (b), Paragraph 178 (i) BPFA; [28] Paragraph 165 (c), Paragraph 178 (b), (d) BPFA; [29] Paragraph 165 (g) BPFA; [30] Paragraph 165 (a); Paragraph 166 (l), Paragraph 178 (k) BPFA; [31] Paragraph 165 (m), Paragraph 178 (g), Paragraph 179 (a), (b), (c), (e), (f), Paragraph 180 (a) BPFA; [32] Report of the Asia Pacific Regional NGO Symposium on BPFA + 5, 31 August - 4 September 1999, Thailand, pp. 31-32; [33] Paragraph 167 (c), Paragraph 169 (a), Paragraph 173 (c), (d), Paragraph 175 (d)BPFA; [34] Paragraph 175 (f) BPFA; [35] Paragraph 178 ( f), (j) BPFA; [36] Paragraph 166 (d), Paragraph 174), Paragraph 179 (a) BPFA; [37] Paragraph 166 (l), Paragraph 178 (m),(n) BPFA; [38] Paragraph 178 (p) BPFA; [39] Paragraph 190 (a) BPFA; [40] Paragraph 190 (h) BPFA; [41] Paragraph 190 (b), Paragraph 191 BPFA; [42] Paragraph 190 (c), Paragraph 192 (d) BPFA; [43] Paragraph 190 (j), Paragraph 192 (h), (i ), Paragraph 193 BPFA; [44] Paragraph 192 (d) BPFA; [45] Paragraph 192 (a), (d) BPFA; [46] Paragraph 192 (c), (f), Paragraph 195 (b) BPFA; [47] Paragraph 190 (a) BPFA; [48] Paragraph 192 (f), (g), Paragraph 195 (c) BPFA; [49] Paragraph 195 (d) BPFA; [50] Paragraph 195 (a), (e), BPFA; [51] Report of the Asia Pacific Regional NGO Symposium on BPFA + 5, 31 August - 4 September 1999, Thailand, p. 32; [52] Report of the Asia Pacific Regional NGO Symposium on BPFA + 5, 31 August - 4 September 1999, Thailand, pp. 32-33;