Pioneers of Peace: The Crucial Role of Women Mediators in Peace Processes in West Africa

Pioneers of Peace:

Analysing the Crucial Role of Women Mediators in Peace Processes in West Africa

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Acknowledgements

Make Every Woman Count would like to express our sincere gratitude to all those who have been instrumental in the development of this policy brief. We are immensely thankful to the entire MEWC team for their invaluable contributions to its publication. Their availability and support have been crucial in making this policy brief possible, despite limited resources. We extend our heartfelt thanks to the following individuals for their contributions and support in bringing this policy brief to fruition: Rainatou Sow, Vivian Nilsson - van Iperen, Chelsie Loveder, Grace Marwa-Pattison, Naomi Ndifon and Jeptum Tuitoek.

Special appreciation goes to Roo Griffiths for her meticulous editing of the report and for her unwavering availability, flexibility and understanding throughout the entire process.

Furthermore, we would like to express our deep gratitude to Oxfam Africa for their invaluable support in the realisation of this report.

Thank you also to the Solidarity for African Women’s Rights Coalition member organisations for their contributions to the recommendations.

About Us

Established in 2010, Make Every Woman Count (MEWC) is a women’s rights organisation that emerged from the launch of the African Women’s Decade 2010-2020. Our primary objective was to monitor and track the progress of women’s rights across the continent throughout this Decade. Since then, we have consistently gathered and carefully recorded crucial advancements related to women’s rights.

Through research, meticulous data collection, and insightful analysis, we aim to shape policies, programs, and advocacy initiatives that champion gender equality. The knowledge we generate is a valuable resource to inform policies, advocacy, programs, and initiatives promoting gender equality.

We believe in a world where every individual, regardless of gender, has the equal opportunity to lead, contribute and thrive. Our long-term goal is to dismantle the barriers that hinder equal rights between men and women.

Executive Summary

In recent years, women have become increasingly active participants in conflict resolution and mediation processes in West Africa, such as in Liberia, Mali and Sierra Leone. These developments point to a notable shift from previous practices, whereby women traditionally were excluded. Moreover, empirical evidence shows that the probability of peace agreements being successful and sustainable increases when women are involved. Despite the evidence and the advances made, though, women’s groups and women mediators are largely absent from or, if included, marginalised in conflict resolution and mediation processes across the region.

This policy brief unveils the crucial role that women have played in conflict prevention and peace processes in West Africa and the importance of advancing inclusive peacebuilding. It does so by providing an overview of conflicts and their changing nature and of the current status of women mediators in the region. The policy brief also reviews efforts by the Economic Community of West African States to advance the Women, Peace and Security agenda in the region by adopting legal and policy frameworks. These frameworks are essential in promoting women’s role in conflict prevention and resolution and in peacebuilding efforts.

Advances have been made at the local, national and regional levels but women still face obstacles that prevent them from fully and equally participating as mediators in conflict prevention and resolution processes. The challenges include underrepresentation in political and public life and persistent threats of violence. This policy brief provides concrete steps to advance and enhance inclusive mediation efforts to address the challenges women face. It also includes recommendations from civil society organisations and women’s groups on how to enhance women’s participation and inclusion in conflict prevention and mediation processes.

Finally, the policy brief highlights best practices by regional and national women’s groups in conflict prevention and mediation. These examples demonstrate the positive impact of women and the importance of including them in all peacebuilding efforts. The hope is that this policy brief will serve as a resource and an advocacy tool in realising women’s full and equal inclusion and participation in conflict prevention and mediation processes in West Africa.

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This policy brief provides concrete steps to advance and enhance inclusive mediation efforts to address the challenges women face.

Methodology

Research Process

This analysis focuses on West Africa: Benin, Burkina Faso, Cabo Verde, Cote d’Ivoire, The Gambia, Ghana, Guinea, Guinea-Bissau, Liberia, Mali, Niger, Nigeria, Senegal, Sierra Leone, and Togo. The findings presented in this policy brief rely on a desk-based review of primary and secondary sources. These include reports from regional and international organisations such as the United Nations (UN) and the Economic Community of West African States (ECOWAS), journals and books, and studies and research published by research institutes on peace and security. Databases maintained by academic institutions and the UN were consulted to map the status of women mediators (2003–2023) in West Africa. Finally, besides the abovementioned resources, information on websites of regional and national women’s groups in West Africa provided examples of women’s organisations and networks active in conflict prevention and mediation processes in the region.

Additionally, MEWC shared a questionnaire via email with Solidarity for African Women’s Rights (SOAWR) members. The questionnaire was also shared on social media with women’s groups and civil society organisations (CSOs). It asked participants to provide two to three recommendations on how to advance the meaningful inclusion of women in conflict prevention and mediation in West Africa. The responses provided form the basis of the recommendations shared in the policy brief.

Finally, each data visual (maps, tables, graphs and infographic) has been manually created by Make Every Woman Count using the referenced secondary data sources.

Limitations

The research process faced some challenges and limitations in the collection of information and data:

 The collection of information relied primarily on desk review, and the information on women in conflict resolution and mediation processes in West Africa varies greatly.

 Sex-disaggregated data on women and their role in peace agreements are mainly absent in the research and databases reviewed.

Databases maintained by academic institutions and the UN were consulted to map the status of women mediators (2003–2023) in West Africa.

Recommendations

To ensure the full and equal participation of women at all levels of conflict prevention and mediation processes in West Africa, women’s groups and CSOs have made the following recommendations:

1. Include women in electoral systems, ensuring their representation and active involvement in decision-making processes.

2. Implement gender-sensitive policies and practices that promote women’s empowerment and address the unique challenges they face in conflict situations.

3. Strengthen women’s leadership and capacity-building initiatives and provide them with the necessary skills and resources to effectively contribute to peacebuilding efforts.

4. Support collaboration and partnership between CSOs, governments and international stakeholders to support and amplify the voices of women in conflict prevention and mediation.

5. Ensure the continuous monitoring and evaluation of progress, with a focus on measuring the impact of gender-responsive initiatives and addressing any gaps or barriers to women’s participation.

6. Strengthen the capacities of women leaders and local elected officials in grassroots communities to contribute to conflict management.

7. Facilitate the creation of sub-regional (Sahel) networks of women and girls involved in conflict prevention, to serve as platforms for exchanging ideas, sharing experiences and coordinating joint actions. Encourage the formation of coalitions with other CSOs.

Overview of Conflicts in West Africa

West Africa is characterised by an abundance of natural resources, a rich cultural heritage and diverse ethnic groups. However, the region has also been plagued by numerous conflicts that have had devastating impacts on the people and economies of the affected countries. These conflicts have often been rooted in historical, political, economic and social factors, making them complex and difficult to resolve.

There have been significant changes to the nature of conflict in West Africa. In the years following independence, most conflicts were internal, characterised by civil wars. These have now diminished and the region faces new threats and various forms of violence, including military and constitutional coups, extremism, terrorism, and election-related and intercommunal violence. These pose a significant challenge to the security and stability of the region.1 Since January 2020, seven coups have occurred in five countries in the region, in Burkina Faso, Guinea, Guinea-Bissau, Mali and Niger. Other countries have experienced political upheaval (Sierra Leone) or an escalation of extremist violence (Benin and Togo).2

With new threats come new actors involved in the conflict and an increase in the number of armed groups. Groups such as Boko Haram, Islamic State West Africa province, Islamic State Sahel province and Jama’at Nusrat al-Islam wal-Muslimin are reportedly active in half of West African

Source: Geneva Academy (2023).51

Current conflicts in West Africa

Burkina Faso

countries and often target civilians.3 In response to growing insecurity, community defence groups have organised, resulting in a rise in violent inter-communal attacks and forced displacement in parts of Burkina Faso, Mali, Niger and Nigeria.4

As the violence and extremist activities in the Sahel move south, they affect not only the neighbouring countries but also the region itself. Increasingly, “conflict spill-overs”, whereby conflicts and violence are transmitted to other countries, affect not only the security and stability of West Africa but also the countries’ ability to respond to growing threats and challenges.5

Causes of conflicts in West Africa

The increase in violence and conflicts in West Africa can be attributed to a complex web of interconnected factors, encompassing political, economic and sociocultural dimensions, as well as deeper structural and historical issues. Conflicts have been triggered by a multitude of factors, including the enduring legacies of colonialism, weak governance, economic disparities, marginalisation of specific groups, competition for resources and external influences. The arbitrary division of the African continent by European colonial powers during the 19th and 20th centuries resulted in artificial borders that separated ethnic groups, fuelling tensions and conflicts. Additionally, weak governance, corruption and a lack of accountability have contributed significantly to the emergence of conflicts, providing fertile ground for grievances and inequalities to flourish.

One coup or attempted coup:

Guinea - Coup in September 2021

Two coups and/or attempted coups: Guinea-Bissau

Coup in September 2021

Attempted coup in November/ December 2023

Mali

Coup in August 2020

Coup in May 2021

Niger

Attempted coup in March 2021

Coup in July 2023

Sierra Leone

Coup plot for August 2023

Attempted coup in November 2023

Three coups and/or attempted coups: Burkina Faso

Coup in January 2022

Coup in September 2022

Attempted coup in September 2023

Source: Aljazeera (2023).52

Coups and attempted coups in West Africa, 2020–2023

Pioneers of Peace: The Crucial Role of Women Mediators in Peace Processes in West Africa

Furthermore, the region as a whole, as well as each country in its own unique way, is grappling with the impacts of climate change. Rising temperatures, droughts, heavy rainfall and flooding, for instance, exacerbate food insecurity and intensify competition and conflict over natural resources and land. As livelihoods are threatened and incidence of poverty increases, many are forced to flee, resulting in a growing number of refugees and internally displaced persons, as well as humanitarian crises. For instance, Nigeria has experienced significant displacement as a result of flooding, with 1.3 million people being displaced. Burkina Faso continues to struggle with a worsening internally displaced persons crisis.6

Consequences of conflicts in West Africa

The consequences of conflicts in West Africa are far-reaching and multidimensional. They include loss of life, population displacement, destruction of infrastructure, disruption of economic activities, food insecurity, human rights abuses and political instability. The loss of life is perhaps the most devastating consequence, with innocent civilians often bearing the brunt. Population displacement also has serious implications for social and economic stability, as people are forced to leave their homes and livelihoods. The destruction of infrastructure, such as schools and hospitals, hinders access to basic services and exacerbates the humanitarian crisis.

Moreover, the precarious situation in West Africa places women and girls at heightened risk of human rights violations, including sexual and gender-based violence, forced marriage, exploitation and human trafficking. This exacerbates existing inequalities, limiting access to education and sexual and reproductive healthcare. Furthermore, it often leads to setbacks in women’s rights, which are deprioritised or altogether abandoned. However, there is evidence that, despite the challenges and stereotypes they face, women play a critical role in

local-level negotiations, conflict prevention and resolution. These contributions are frequently overlooked, though, and the inclusion of women in national-level mediation, conflict prevention and resolution remains limited.

The graph below captures deaths incurred from the use of armed forces in state-based and non-state conflicts, as well as deaths stemming from attacks carried out by organised actors, targeting unarmed civilians, over a 10-year period. The cumulative total for the region was 62,776 people.

Note: Benin, Cabo Verde, Côte d’Ivoire, The Gambia, Ghana, Guinea-Bissau, Liberia, Senegal, Sierra Leone and Togo each had a cumulative total of under 100 deaths over the period. However, the regional trend line accounts for every death from every country.

Source: Uppsala Conflict Data Program, Department of Peace and Conflict Research (2023).7

Recorded deaths from conflict in West Africa, 2012–2022

Current Status of Women Mediators in West Africa

Women and girls are disproportionately affected by conflicts, yet peacebuilding processes often exclude their voices. In many conflict-affected countries, women have long played critical roles as peacebuilders and mediators within their communities. Women often work tirelessly to negotiate with armed groups and prevent violence from escalating. They also provide vital support to victims of conflict, including access to essential services such as healthcare and education.

In West Africa, women are often the ones who bear the brunt of conflicts and violence. Despite their vulnerability, they have been at the forefront of peacebuilding efforts in the region. Nevertheless, women’s participation in formal peace negotiations remains limited. This is because of various factors, including discriminatory gender norms and structures that exclude women from decision-making processes.

According to the available data (which is severely limited, as the table below shows), women remain largely excluded from formal peace processes. Of the

18 peace agreements for which data was available, on average:

 Women made up 14% of mediation teams, with only two instances of a woman lead mediator.1

 Women made up 6% of signatories.

 Women made up 10% of witnesses (even with the exceptionally high outlier of the Kafanchan Peace Declaration between Grazers and Farmers 2016).

However, it is important to note that these numbers do not capture women’s informal, but just as significant, contributions to their outcomes; for example, every day, throughout the development of the 2003 Accra Agreement, between 150 and 200 refugee women activists, organised by Women of Liberia Mass Action for Peace, lobbied at the hotel where the talks were being held, “advocating to stop the shelling of Monrovia and the violence in their country.”8

In many conflict-affected countries, women have long played critical roles as peacebuilders and mediators within their communities.

1. Alice Wairiumu Nderitu, representing the Centre for Human Dialogue, was Senior Advisor and Lead Mediator in the Kafanchan Peace Declaration between Grazers and Farmers 2016 and the Southern Plateau Peace Declaration 2016 – both local Nigerian peace processes.

Women’s involvement in peace agreements in West Africa, 2003–2023

19 Côte d’Ivoire Linas-Marcoussis Agreement 2003

2 Côte d’Ivoire Joint Declaration of the Defence and Security Forces of Côte d’Ivoire and the Armed Forces of the Forces Nouvelles 2003

3 Côte d’Ivoire UN Security Council Resolution 1721 2006

510 Liberia Peace Agreement between the Government of Liberia, the Liberians United for Reconciliation and Democracy, the Movement of Democracy in Liberia and the Political Parties (Accra Agreement) 2003

6 Mali Agreement between the Dafing, Samogo, Fulani, Dogon and Bozo communities of the Baye municipality, located in the area (“circle”) of Bankass and the region of Mopti (Baye Agreement) 2019

8 Mali/Azawad Accord pour la paix et la réconciliation au Mali – issu du processus d’Alger (Bamako Agreement) 2015

9 Mali/Azawad Accord préliminaire à l’élection présidentielle et aux pourparlers inclusifs de paix au Mali (Accord préliminaire de Ouagadougou) 2013

10 Nigeria Oyo State Workshop Resolutions on the Promotion of Community Dialogue, Conflict Resolution and Peacebuilding for Share and Tsaragi Communities 2017

Nigeria Kafanchan Peace Declaration between Grazers and Farmers 2016 Approx.

Notes: nd = no available data. * Witnesses included the Centre for Human Dialogue mediation team (two women, five men), state/local government and security agencies (one woman, six men) and Kaduna Centre for Human Dialogue Women’s Steering Committee members (from five Local Government Areas) (30 women).

Women in post-agreement bodies

Related to the peace agreements reviewed, there is some evidence of the inclusion of women in new decisionmaking or agreement implementation bodies, such as in:

 Mali, where 38% of the Malian Monitoring Committee (2022) were women.

 Nigeria, where the Oyo State Workshop Resolutions on the Promotion of Community Dialogue, Conflict Resolution and Peacebuilding for Share and Tsaragi Communities aimed to establish an Interim Committee of Share-Tsaragi Peace Development, with one out of the nine members to represent “market women.”

 The Gambia, where, in 2018, a Truth and Reconciliation Commission, with four out of 11 commissioners reported to be women.14

 Ghana, where four out 14 members of the Governing Council Board of the National Peace Council are women.15

However, a continued lack of data at every stage of a peace process hinders the ability to hold parties to account for quota, and especially non-numerical, commitments.

Substantive Gender Issues in West African Peace Agreements (2003 - 2023)

OF THE

47%

REVIEWED

PEACE AGREEMENTS...

12%

reference international law with regard to women.

Zero mention particular groups of women, such as refugee/displaced women, indigenous/nomadic women, or pregnancy/maternity.

Mention at least one form of women’s participation

Zero account for general political or legal equality provisions or provisions concerning non-discrimination on grounds of gender or sex.

24%

reference Violence Against Women

Note: These percentages do not include analysis of the Peace Agreement between the Government of the Republic of Senegal and MFDC 2022 as it has not yet been made public.

The Importance of Inclusive Peacebuilding

Inclusivity is crucial in peacebuilding efforts, and women’s participation is a key component of this. Women bring unique perspectives and experiences to the negotiation table, as well as skills such as communication and collaboration, which are essential for successful mediation.

United Nations Security Council Resolution 1325 (UNSCR 1325) on Women, Peace and Security (WPS) acknowledges the importance of gender equality and women’s participation in all aspects of peacebuilding. This resolution was a significant milestone in recognising the role of women in conflict resolution and promoting their inclusion.

As of July 2023, 34 out of the 55 African Union (AU) Member States have adopted at least one National Action Plan (NAP) to implement UNSCR 1325. In West Africa, five countries have adopted one, eight countries have adopted two and Mali has adopted three; Benin and Cabo Verde are yet to adopt their first NAP. Most (77%) of the NAPs in the region are expired or expired as of 2023 and 31% do not have an estimated or allocated budget.

Women can bring unique experiences to mediation

Women and men in West Africa experience conflict and postconflict situations differently. Sexual and gender-based violence (often used as a tactic of war) spike not only during but also postconflict.

UNSCR 1325 NAPs in West Africa as of July 2023

States who have had one UNSCR1325 NAP

States who have had two UNSCR1325 NAPs

States who have had three UNSCR1325 NAPs

States who have never had a UNSCR1325 NAP

Source: Women’s International League of Peace & Freedom (July 2023)53

There is often a significant increase in women-headed households, which take on additional productive and unpaid care responsibilities. Women disproportionately represent refugees and displaced persons following a conflict.

One of the advantages of including women is the unique experiences they bring to mediation. When women are involved, their lived experiences can alter perspectives.

Activists in the Mano River region, locked out of the formal 2003 Accra Agreement processes, focused their advocacy on pressing mediators to hear and formally consider the women’s views. According to one participant, “The mediators were treating the warring parties with deference and respect, calling them ‘gentlemen.’ We, on the other hand, called them ‘bandits.’ By the end of our presentation to the mediation team, they said, ‘We did not know. We did not understand the full gravity of the crisis.’”16

During The Gambia’s political transition in 2016–2017, women leaders and civil society activists, including prominent figures like Isatou Touray and Fatoumata Jallow Tambajang, played significant roles in mediating the political impasse. These women were instrumental in negotiating with various stakeholders, including regional organisations like ECOWAS, to resolve the crisis peacefully. The women leaders were seen as neutral and credible mediators, working to ensure a fair and inclusive process. Their participation helped build trust among different factions and garnered broader support from the population for the negotiated solution.

Women’s lived experiences inform their understanding of peace and how to achieve their vision. Moreover, their lived experiences can transform the priorities of peace agreements.

During peace talks in the Niger Delta region, for example, women leaders advocated for the inclusion of provisions addressing gender-based violence and ensuring women’s participation in the region’s economic development initiatives. Their advocacy led to clauses in the peace agreements promoting women’s rights and gender equality.

Lastly, considering women’s active roles in conflict enables a more thorough perspective on a conflict’s mechanics and what an effective peace agreement requires. It requires a reframing of women’s supposed passiveness in conflict. For example, West African women “have used their status as mothers, wives, and sisters of the rebel forces to obtain information that they used to protect their communities.”17 Further, studies show there has also been a noted trend of the increased proportion of women and girls as combatants and so-called martyrs in West Africa, as well as of the recruitment of women in extremist groups.18 Bringing this array of lived experiences to a peace agreement, in the same way that men are included in mediation, also adds a greater breadth of understanding on how various, often complex and “non-logical,” stakeholders function, what motivates them and therefore how to better encompass these dynamics and address underlying causes of conflict.

A holistic, innovative and equitable vision of society

When involved, women do not consider just their own lived experiences. They speak to and centre various societal groups’ needs, such as those of the elderly, youth, children, the poor, small and medium-sized enterprise owners, religious communities and persons with disabilities. Women mediators often increase the participatory nature of peace agreements by consulting with these diverse groups, leading to more robust agreements. Women also contribute experience and expertise on other issues.

Women taking part in mediation tend to raise issues beyond the immediate concerns of borders, titles and who can maintain armed forces, and bring longer-term consideration on building effective, reimagined power-sharing structures to sustain systematic peace. Women in mediation often elevate issues that men overlook, such as human rights at the heart of conflicts, social and public service provision, the importance of truth and reconciliation measures, disarmament, education and reintegration of warring parties.19

For example, in Sierra Leone, the involvement of women, such as Zainab Bangura and other activists, led to the inclusion of socioeconomic provisions addressing issues like access to education, healthcare and livelihood opportunities in the Lomé Peace Agreement. These areas of intervention often represent a greater breadth of civil society’s needs and increase the comprehensiveness of agreements reached through mediation; this may be one of the reasons why women’s participation has its most significant impact in the long term: if women participate in a peace agreement’s creation, this latter is 35% more likely to last at least 15 years.20

Mediation strategies used by women mediators

Women mediators frequently utilise different approaches and soft skills to those their male counterparts use in mediation. It is crucial to stress here that this does not reinforce stereotypes of sex-essential traits or values but rather highlights the learned by-products of gendered socialisation processes. Many women mediators reported a deliberate emphasis on listening – rather than controlling discussions – as a key approach during mediation processes. This method ensured all parties involved felt heard, facilitating the identification of optimal routes to compromise or agreement. Other soft skills noted included employing

empathy and developing relationships rather than adopting authoritarian or aggressive stances.

Additionally, women mediators often harness societal perceptions of women to their advantage. They have discovered that they can often initiate crucial discussions while appearing non-threatening. Moreover, women do not easily fit into militant power structures or other hierarchies, unlike many men involved in mediation. This ability allows them to establish trust more swiftly with negotiating parties. Furthermore, women are often not directly associated with formal leadership bodies, such as governments or religious institutions, which could imply bias or a specific agenda. This perceived neutrality enables them to navigate religious, political and ethnic boundaries more effortlessly. Some argue that this grants women greater flexibility to form innovative alliances and devise creative solutions.

Women mediators have positive impacts on conflict resolution

In addition to the contributions mentioned above, empirical evidence validates the positive impacts of women mediators at every stage of mediation:

 Women’s participation increases the likelihood of an agreement being reached.21

 The influence of women’s groups is associated with much higher rates of implementation of an agreement.22

 When women participate in peace processes, peace is more likely to endure.23

Women’s participation in peace processes, including mediation, can have positive impacts in other areas.

For example, following women’s significant contribution to the national dialogue in Mali, the gender parity law was integrated into the revised electoral law in June 2022.

Moreover, women’s involvement in a peace agreement increases:

 Community/civil society buy-in as women are more likely to be represented in the agreement’s substantive matter as a result of women’s advocacy (as discussed above);

 The agreement’s perceived legitimacy by key stakeholders and international actors, which, in turn, affects the support provided for the agreement’s implementation.

Women’s continued representation and participation in decision-making following the signing of an agreement is essential in preventing a relapse into conflict. For example, one study1 showed that “when no women are represented in the legislature, the risk of relapse increases over time, but when 35 per cent of the legislature is female, this relationship virtually disappears, and the risk of relapse is near zero.”24 Another study2 found that “as the percentage of women in parliament increased by 5%, a state is five times less likely to use violence in an international crisis.”25 More broadly, when women are more empowered in multiple spheres of life, countries are less likely to go to war, to be in bad standing with the international community or to be rife with crime and violence within their society. 26

While acknowledging the positive impacts supported by the above evidence, it is crucial to differentiate and avoid conflating certain aspects:

 Women’s participation in mediation does not equate to gender advocacy.

1 The study covered 58 conflict-affected states between 1980 and 2003.

2 The study based its findings on data on international crises over four decades.

 Women should not be solely associated with representing “women’s issues.”

 It is important to recognise that one woman’s perspective and lived experience does not encompass all women’s perspectives and experiences.

 The responsibility of including women and addressing their distinct issues should not be placed solely on women.

The assumptions mentioned above, it is argued,27 have contributed to the tokenisation of women in peace and security matters and to the persistently low numbers of women in mediation processes, particularly among mediators who design and direct such processes. These equivalencies have also undermined the goal of transforming peace processes to be meaningfully inclusive (in terms of participants and substantive matter), ultimately effective and long-lasting. They also highlight the importance of reframing the discourse to centre gender equality and equity, of consistently integrating these as core lenses and tenets throughout all aspects of mediation as the responsibility of all genders.

When mediation processes are gender-sensitive, they move “beyond the simple inclusion of women or their participation in peace processes towards a more substantive engagement with women’s needs and interests as defined normatively in the WPS resolutions.”28 Just as gender equality is a strong indicator of a state’s peacefulness (even more than factors like democracy or gross domestic product),29 the studied correlations between gender-equitable mediation and the quality and durability of peace agreements highlight the advantages of employing this approach.

Regional Frameworks and Initiatives on Women in Peace and Security in West Africa

ECOWAS recognises women’s rights in several fundamental legal frameworks and strategies on peace and security in the region. Through these frameworks, ECOWAS seeks to safeguard the role of women in areas such as governance, conflict prevention and resolution, and peacebuilding30 and recognises gender equality and the empowerment of women and girls as a key pillar in achieving an integrated and peaceful region.31

The Supplementary Act Relating to Equality of Rights between Women and Men for Sustainable Development in the ECOWAS Region (2015),32 a legally binding framework, includes objectives to increase women’s participation at all “levels of decision-making in the different sectors, particularly in the political sphere, notably the processes of conflict prevention and management and the restoration of peace and security.”33 It also aims “to ensure a more significant role for women in early warning mechanisms within the ECOWAS region.”34 The subsequent roadmap for implementation (2017) identified five priority programme areas: strengthening national gender machinery and processes; civil society participation; good governance; WPS; and citizen participation. The roadmap also includes key actions such as strengthening the capacity of women leaders and women’s groups and the creation of women mediator platforms to increase numbers of women mediators.35

The Supplementary Protocol on Democracy and Good Governance (2001) recognises that the right to protection and the elimination of all forms of discrimination and harmful and degrading practices against women are precursors to peace.36 Other frameworks recognise the vital role women play in actively promoting peace and security across the region, from engaging in prevention to participating in peacebuilding processes directly, as well as the need for women’s inclusion with regard to achieving good governance.

The roadmap also includes key actions such as strengthening the capacity of women leaders and women’s groups and the creation of women mediator platforms to increase numbers of women mediators.

Key ECOWAS legal and policy frameworks mentioning women in peace and security

ECOWAS legal/policy framework Key mentions of women in peace and security

Conflict Prevention Framework (2008)

Action Plan for the Women Peace and Security Component of the ECOWAS Conflict Prevention Framework (2017–2020)

ECOWAS Gender and Elections

Strategic Framework and Action Plan (2017–2022)

ECOWAS’s general conflict prevention framework includes a dedicated component on the inclusion of women in peace and security processes “to enhance the role, visibility and impact of women in peace and security.”37 Under this framework, ECOWAS commits to increasing the number of women in senior decision-making positions on peace and security matters; facilitate targeted programmes to enhance the leadership, negotiation and dispute resolution skills of women; and improve the capacity of women’s organisations.

The Action Plan accompanying the ECOWAS Conflict Prevention Framework aims to increase women’s leadership and engagement in national and regional institutions and mechanisms, strengthen the role and contribution of women in conflict prevention and resolution, and increase the number of women as troops and police officers across peace operations.38

The ECOWAS Commission Gender and Elections Strategic Framework works to enhance women’s political participation and representation in West Africa. The Framework binds member states as well as the institutions of ECOWAS to work to improve the engagement of women in the entire election cycle, including reducing barriers related to participation, including cost and cultural barriers.39

Guidelines on Women, Peace and Security (2020)

The Guidelines represent efforts by ECOWAS to codify its existing frameworks on women, peace and security. They are a comprehensive tool for mainstreaming gender considerations in all policies across different departments, including ECOWAS Peace Support Operations. The objective is to ensure ECOWAS as a whole adheres to the pillars under the WPS framework.40

Critically, ECOWAS has also supported the development of regional advocacy networks specifically to support women working in peace and security. In addition to working collaboratively with these regional networks, it actively engages with civil society, including youth.

Challenges Facing Women Mediators

Women have made great strides in West Africa as mediators in recent years. They are increasingly taking on leadership roles and actively participating in conflict resolution processes. This is a significant shift from the traditional exclusion of women from formal peace negotiations. In countries such as Liberia, Mali and Sierra Leone, women have played crucial roles in mediating peace agreements and advocating for the inclusion of women’s perspectives in peacebuilding efforts. In fact, the involvement of women has been shown to increase the likelihood of successful and sustainable peace agreements.

However, despite advancements, women face obstacles that hinder their full participation as mediators in West Africa. Traditional gender roles and societal expectations continue to pose significant challenges for women in leadership positions, despite progress towards gender equality. Women mediators and women’s organisations are still marginalised or excluded from formal mediation and peace processes.41 Structural barriers limit their meaningful participation in formal prevention and mediation efforts. Challenges include:

 Persistent underrepresentation in political and public life, as well as in the security and governance sectors. This not only hinders women’s ability to participate actively in decision-making processes but also limits their influence in shaping policies and initiatives that are crucial for sustainable peace and development in the region.42

 Lack of representation and recognition. In many cases, men are seen as the primary decision-makers and peacemakers, with women often left out of important discussions and negotiations. This can lead to a marginalisation of women’s voices and perspectives in conflict resolution processes.

 The ongoing threat of violence and discrimination. Women who take on leadership roles, especially in traditionally male-dominated fields like mediation, are often targeted with threats and violence in an attempt to silence them or discourage their involvement. This creates a dangerous and intimidating environment for women trying to participate in peacebuilding efforts.

 Lack of adequate training and resources for women mediators. The underrepresentation of women in this field means they may not have access to the same opportunities for training and capacity-building as their male counterparts. This can put them at a disadvantage when it comes to navigating complex conflict resolution processes.

 The impact of cultural and societal norms on women’s involvement as mediators. In some West African cultures, women are expected to prioritise their roles as wives and mothers over any other pursuits. This can make it difficult for women to take on leadership roles or travel for extended periods of time, which are often necessary in mediation processes.

Steps Towards Inclusive Mediation Efforts in West Africa

To effectively address the challenges facing women mediators in West Africa, it is crucial to take concrete steps towards fostering more inclusive mediation efforts:

 It is important to acknowledge and address the intersectional barriers that women may encounter during mediation processes. Women from marginalised backgrounds, such as those living in poverty or belonging to minority groups, may face additional hurdles to their participation in and influence over decisionmaking. Therefore, adopting inclusive approaches that consider the diverse needs and perspectives of all women is of utmost importance.

 It is also essential to recognise that women are not a homogeneous group: their needs and priorities may differ based on factors such as age, disability, ethnicity and socioeconomic status. Hence, gender-inclusive mediation must embrace an intersectional lens and ensure that the voices of marginalised women are neither disregarded nor silenced.

 Gender-inclusive mediation should be viewed as an ongoing process rather than a one-time effort. Continuous learning and adaptation are needed to meet the evolving needs of individuals and communities affected by conflict. This entails investing in capacity-building and training for all stakeholders involved in mediation, including women and marginalised groups.

 Alongside promoting women’s participation in peace negotiations, it is crucial to address the underlying societal issues that contribute to their exclusion. This necessitates addressing gender inequality and discrimination, improving access to education and healthcare for women and supporting economic empowerment initiatives.

 There is a pressing need for extensive research and data collection on the impact of women’s involvement in mediation efforts. This can further emphasise the significance and effectiveness of their participation and inform future policies and decision-making.

 There should be a strong focus on capacity-building for women in conflict resolution and mediation skills. This can be achieved through comprehensive training programmes, mentorship opportunities and networking initiatives that support women in developing these essential skills.

 For women to genuinely have a seat at the table in mediation processes, it is essential for them to have equal representation and decision-making power. This entails not only increasing the number of women involved but also ensuring their voices are heard but also valued throughout the decision-making process.

 Maintaining a gender-sensitive approach throughout all phases of peace negotiations, from pre-negotiation preparations to postagreement implementation, is crucial. This entails considering

the specific needs and experiences of women and incorporating them into the negotiation agenda and outcomes.

 Involving women’s CSOs and grassroots movements in mediation processes can play a pivotal role in promoting gender equality and women’s participation. These organisations often possess a profound understanding of the needs and concerns of local communities, particularly women, and can bring invaluable perspectives to the table.

In conclusion, gender-inclusive mediation is not solely about the involvement of women or meeting quotas; rather, it is a fundamental aspect in achieving sustainable and inclusive peace. Women’s perspectives and experiences are vital to addressing the root causes of conflict and building lasting peace in the region. It is crucial to understand that genderinclusive mediation goes beyond mere representation; it encompasses the creation of a safe and inclusive space for dialogue. This entails addressing power imbalances, promoting respectful communication and safeguarding against any forms of discrimination or violence. Attaining effective gender-inclusive mediation requires a profound understanding of gender dynamics and intersectionality by all stakeholders involved, including providing training for mediators and ensuring diverse representation throughout the mediation process.

Women’s perspectives and experiences are vital to addressing the root causes of conflict and building lasting peace in the region. It is crucial to understand that genderinclusive mediation goes beyond mere representation...

Best Practices of Regional and National Networks of Women Groups in Conflict Prevention and Mediation in West Africa

Although women are largely marginalised or excluded from conflict prevention and mediation process, across West Africa they have continually showed leadership by actively engaging at the grassroots level, including by forming intercommunity coalitions and taking up the position of role models and mediators in their own communities.43

Interventions by women’s groups and the positive impacts these efforts have had on conflict prevention and mediation processes

Name of organisation

South West/North West Women’s Task Force (SWNOT)

Grupo de Mulheres Facilitatoras (Group of Women Facilitators, GMF), now reorganised as the Guinean Council of Women Facilitators for Dialogue (CMGFD)

Comité régional de solidarité des femmes pour la paix en Casamance (Regional Committee for Solidarity between Women for Peace in Casamance, CRSFPC)/Usoforal

Plateforme des femmes pour la paix en Casamance (Platform of Women for Peace in Casamance, PFPC)

Geographic location/country

Intervention

Cameroon SWNOT advocated through it’s Back to School campaign, peaceful protest and petition to end the separatists’ ban on education.

Guinea-Bissau

CMGFD promoted dialogue among the key stakeholders in the Conakry Agreement impasse.

Senegal CRSFPC/Usoforal organised the 2011 Vigil for Peace, which convened thousands of women in protest decrying the killing of women in the conflict.

Senegal The coalition works towards the restoration of peace in the region.

Key achievements/outcomes

Successfully negotiated the end of the three-year ban on education by non-state armed groups in the North-West and South-West regions of Cameroon in 2019.44

Effectively restored communication channels to promote dialogue among stakeholders, thereby reducing tensions related to the impasse.45

Facilitated the adoption of the 2018 gender quota law in Guinea-Bissau.

Successfully resolved in-community and intra-village conflicts.

Launched peace culture programmes by training students as mediators and establishing mediation committees, contributing to a reduction in violence and fostering conflict resolution.46

Name of organisation

Mano River Union Women’s Peace Network (MARWOPNET) Guinea – Liberia – Sierra Leone –

Côte d’Ivoire

MARWOPNET pushed for roundtable negotiation between the leaders of Guinea, Liberia and Sierra Leone.

Key achievements/outcomes

Actively engaged in peace processes during the Liberian civil war. Successfully facilitated a regional peace summit among the Guinean, Liberian and Sierra Leonean presidents in 2001, which eventually contributed to the end of the Liberian civil war in 2003 through the Women of Liberia Mass Action for Peace Movement.47

Awarded the UN Prize for Human Rights by the UN General Assembly in 2003 for outstanding achievement in promoting human rights and peace.48

Women in Peacebuilding Network (WIPNET) of the West African Network for Peacebuilding (WANEP)

West Africa This is the largest peacebuilding network in West Africa, with a membership of over 500 CSOs focusing on strengthening women’s participation in peacebuilding, peace justice and conflict prevention programmes.

Cameroon Women’s Peace Movement Cameroon

This is a coalition of CSOs fostering peace in Cameroon.

Spearheaded the Liberian Women Mass Action for Peace initiated by Liberian Women in 2003.49

Contributed to the development of the ECOWAS Warning and Response Network (ECOWARN).

Network of West African Women in Conflict Prevention and Mediation (FemWise-Africa)

Source: Make Every Woman Count (2024)

Africa – West Africa

The Network provides a platform for strategic advocacy, capacity-building and networking in order to strengthen the role of women in conflict prevention and mediation in West Africa and Africa at large.

Launched the localisation of the Women and Youth Peace and Security Agendas to Sustain Peace and Empower Women and Youth in Cameroon project.

Initiated the First National Women’s Convention for Peace in Cameroon in July 2021.50

Deployed its members to support conflict prevention, mediation and peace processes in Sudan, South Sudan, Chad and Madagascar/ Comoros, as well as electoral processes on the continent.

Regional and national networks of women groups in conflict prevention and mediation

Name of group

Nigerian Women Mediators Collaborative Initiative

South West/North West Women’s Task Force (SWNOT)

Cameroon Women’s Peace Movement (CAWOPEM)

Mano River Women’s Peace Network (MARWOPNET)

Women in Peacebuilding Network (WIPNET) of West Africa Network for Peacebuilding (WANEP)

Comité régional de solidarité des femmes pour la paix en Casamance (CRSFPC)/Usoforal

Plateforme des femmes pour la paix en Casamance (PFPC)

Network of West African Women in Conflict Prevention and Mediation (FemWise-West Africa)

Network on Peace and Security for Women in the ECOWAS Region (NOPSWECO)

Women Mediator Network of Guinea-Bissau (REMUME)

Guinean Council of Women Facilitators for Dialogue (CMGFD)

Coordination des ONG, associations des femmes du Burkina (Coalition of Non-Governmental Organisations and Women’s Associations of Burkina Faso, COA/FEB)

Platform for Women Leaders

Network for Nigerian Facilitators

Working Group on Women, Youth Peace and Security in West Africa and the Sahel

Source: Make Every Woman Count (2024)

Geographic area (regional or national)

Nigeria

Cameroon

Cameroon

Guinea – Liberia – Sierra Leone –Côte d’Ivoire

West Africa

Senegal

Senegal

West Africa

West Africa

Guinea-Bissau

Guinea-Bissau

Burkina Faso

Mali

Nigeria

West Africa

References

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4 Tarif, K. (2022) “Climate change and violent conflict in West Africa: Assessing the evidence”, Sipri Insights on Peace and Security, 22-03, February. www.sipri.org/ sites/default/files/2022-02/sipriinsight2203_ccr_west_africa_0.pdf

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7 Uppsala Conflict Data Program (UCDP_, Department of Peace and Conflict Research (2023) (Retrieved January 2024) Data manually extracted from country profiles: Benin, Burkina Faso, Cape Verde, Gambia, Ghana, Guinea, Guinea-Bissau, Ivory Coast, Liberia, Mali, Niger, Nigeria, Senegal, Sierra Leone & Togo. https:// ucdp.uu.se/exploratory

8 Hayner, P. (2007) Negotiating peace in Liberia: Preserving the possibility for justice. Geneva: ICTJ.

9 Council of Foreign Relations (2024) “Explore the data: Ivory Coast”. www.cfr.org/ womens-participation-in-peace-processes/explore-the-data

10 Council of Foreign Relations (2024) “Explore the data: Liberia”. www.cfr.org/womens-participation-in-peace-processes/explore-the-data

11 PAX Peace Agreements Database (manually calculated from listed parties). www. peaceagreements.org/view/1921/

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13 VOA (2022) “Senegal peace deal ‘important step’ – mediator”. 5 August. www. voaafrica.com/a/senegal-peace-deal-important-step---mediator/6688492.html

14 Big News Network (2018) “Gambia launches truth commission into ex-dictator’s abuse”. www.bignewsnetwork.com/news/258131639/gambia-launches-truth-commission-into-ex-dictators-abuse

15 Republic of Ghana National Peace Council (2023) “Board members”. www.peacecouncil.gov.gh/boardmembers/

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18 Aning, K., in ECOWAS and WANEP (2015) “15 years of implementing 1325 in West Africa: Looking back and looking forward”; Adeyemi-Suenu, A. (2014) “Women combatants in West Africa, recruitment and dimensions: A theoretical analysis”, International Letters of Social and Humanistic Sciences 25: 1–6.

19 Adebajo, A.A. (2021) Women and Peace Processes in Africa. In: Yacob-Haliso, O., Falola, T. (eds) The Palgrave Handbook of African Women’s Studies. Palgrave Macmillan, Cham; Potter, A. (2005) ‘We the Women: Why conflict mediation is not just a job for men’; and Tarnaala, E. (2015) ‘Getting the past right in West Africa and beyond: Challenging structures through addressing gender-based violence in mediation’.

20 O’Reilly, M. (2015) Why women? Inclusive security and peaceful societies. Inclusive Security.

21 O’Reilly (2015).

22 Research from the Broadening Participation Project led by Thania Paffenholz. See O’Reilly, M., Ó Súilleabháin, A. and Paffenholz, T. (2015) Reimagining peacemaking: Women’s roles in peace processes. New York: International Peace Institute.

Pioneers of Peace: The Crucial Role of Women Mediators in Peace Processes in West Africa

23 Statistical analysis by Laurel Stone, as featured in O’Reilly et al. (2015).

24 Demeritt, J. and Nichols, A. (2014) “Female participation and civil war relapse,” Civil Wars 16(3): 346–368.

25 Caprioli, M. and Boyer, M. (2001) “Gender, violence, and international crisis”, The Journal of Conflict Resolution 45(4): 503–518.

26 O’Reilly (2015), page 4.

27 Charlesworth, H. (2008) “Are women peaceful? Reflections on the role of women in peace-building”, Feminist Legal Studies 16: 347–361; El-Bushra, J. (2007) “Feminism, gender and women’s peace activism”, Development and Change 38(1): 131–147; Kraus, J., Kraus, W. and Bränfors, P. (2018) “Women’s participation in peace negotiations and the durability of peace”, International Interactions 44(6): 985–1016; and Haastrup, T. (2018) “Creating Cinderella: The unintended consequences of the Women, Peace and Security agenda for EU’s mediation architecture”, International Negotiation, 25 April.

28 Turner, C. (2020) “Soft ways of doing hard things: Women mediators and the question of gender in mediation”, Peacebuilding 8(4): 383–401.

29 Hudson, V., Bailiff-Spanvill, B., Caprioli, M. and Emmet, C. (2014) Sex and world peace. New York: Columbia University Press.

30 ECOWAS (2021) “ECOWAS Commission launches guidelines on Women, Peace and Security”. 21 April. www.ecowas.int/ecowas-commission-launches-guidelines-on-women-peace-and-security/

31 ECOWAS Gender Development Centre (nd) “ECOWAS Gender Development Centre (EGDC)”. https://www.ecowas.int/special_agency/ecowas-gender-development-centre-egdc/

32 ECOWAS (2015) “Supplementary Act Relating to Equality of Rights between Women and Men for Sustainable Development in the ECOWAS Region”. https:// ccdg.ecowas.int/wp-content/uploads/Supplementary-Act-on-Gender-Equality.pdf

33 ECOWAS (2015), Article 3.

34 Ibid.

35 ECOWAS (2017) “Roadmap of Supplementary Act”, pages 6–17 https://ccdg. ecowas.int/wp-content/uploads/Roadmap-Supplementary-Act-on-Gender-Equality_Final.pdf

36 ECOWAS (2001) “Protocol A/SP1/12/01 on Democracy and Good Governance Supplementary to the Protocol relating to the Mechanism for Conflict Prevention, Management, Resolution, Peacekeeping and Security”, Article 40. www.eisa.org/ pdf/ecowas2001protocol.pdf

37 ECOWAS (2008) “Regulation Msc/Reg.1/01/08. The ECOWA conflict prevention framework”, pages 41–42. https://au.int/sites/default/files/documents/39184-doc-140._the_ecowas_conflict_prevention_framework.pdf

38 ECOWAS Commission (2020) “Guidelines on Women, Peace and Security”, page 21. https://1325naps.peacewomen.org/wp-content/uploads/2021/08/PAPS-Guidelines-on-Women_-Peace-and-Security-ENG1.pdf

39 ECOWAS Commission (2017) “ECOWAS gender and election strategic framework”, pages 24–34. https://ecpf.ecowas.int/wp-content/uploads/2016/01/ECOWAS-GENDER-AND-ELECTION-STRATEGIC-FRAMEWORK.pdf

40 ECOWAS Commission (2020), pages 10–11.

41 ECOWAS Parliament, Parliament CEDEAO (2013) “Gender strategy-ECOWAS Parliament 2010-2020”, p. age 18. www.womencount4peace.org/fr/bibliographies/ publications/gender_strategy_-_ecowas_parliament_2010_-_2020 http://www. womencount4peace.org/fr/bibliographies/publications/gender_strategy_-_ecowas_parliament_2010_-_2020

42 ECOWAS Commission (2020), page 29.

43 Famoofo, N. (2023) “How Nigerian women build peace through grassroots initiatives”. Peace Direct, 28 March. www.peaceinsight.org/en/articles/how-nigerian-women-build-peace-through-grassroots-initiatives/?location=nigeria&theme=women-peace-security

44 Mellows, L. (2021) “‘Let us go where the guns are loud.’ How Esther Omam builds peace in Cameroon”. ICAN, 27 January. https://icanpeacework.org/2021/01/howesther-omam-builds-peace-in-cameroon/

45 Erthal Abdenur, A. (2018) “Gender and mediation in Guinea-Bissau: the Group of Women Facilitators”. Igarapé Institute. https://igarape.org.br/wp-content/uploads/2018/04/Policy-Brief-Gender-and-Mediation-in-Guinea-Bissau-The-Group-of-Women-Facilitators.pdf

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47 Fleshman, M. (2003) “African women struggle for a seat at the peace table”. Africa Renewal, February www.un.org/africarenewal/magazine/february-2003/african-women-struggle-seat-peace-table

48 Government of Liberia (2012) “President Sirleaf discusses Liberian women’s involvement in peacemaking and peacebuilding”. 27 September. https://reliefweb. int/report/liberia/president-sirleaf-discusses-liberian-women%E2%80%99s-involvement-peacemaking-and

49 Parajon, C. (2007) “Women’s role in Liberia’s reconstruction”. USIP, 1 May. www. usip.org/publications/2007/05/womens-role-liberias-reconstruction

50 Fransen, R. (2022) “Courage in the crosshairs: Women in Cameroonian peace and conflict networks”. ICAN. https://icanpeacework.org/wp-content/uploads/2022/09/Cameroon-Gender-and-Identity-Extremisms.pdf

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52 Aljazeera (2023) “Mapping Africa’s coups d’état across the years”. 30 August. www. aljazeera.com/news/2023/8/30/mapping-africas-coups-detat-across-the-years

53 Women’s International League of Peace & Freedom (WILPF) (July 2023) (Accessed January 2024) ‘National Action Plans by Region’ (Africa). http://1325naps.peacewomen.org/index.php/nap-overview/