Repiiblika ng Pilipinas

Komisyon n g Karapatang Pantao ng Pilipinas

(Commission on Human Rights of the Philippines)

G E N D E R OMBUD ADVISORY

COMMENTS O F T H E COMMISSION ON HUMAN

RIGHTS TO T H E CEDAW COMMITTEE DRAFT ON
G E N E R A L R E C O M M E N D A T I O N 19 (1992): Accelerating
elimination o f gender-based violence against w o m e n

CHRA2016-005

Background

The Commission o n H u m a n Rights o fthe Phihppines (CHRP), as a n

"A" Status National H u m a n Rights Institution ( N H R I ) and as Gender and
Development O m b u d under the M a g n a Carta of W o m e n ( R A 9710) submits
i t s c o m m e n t t o t h e C o m m i t t e e o n t h e d r a f t G R 19. T h i s s u b m i s s i o n is l i k e w i s e
pursuant t o t h eA m m a n Programme o fAction o f 2012 i n which N H R I ' s
commit, among others, t o encourage a n d a i d i n t h e compilation o f a n
evidencee base o n t h e n a t u r e , extent, causes a n d effects o f all f o r m s o f
gender-based violence, a n d o nthe effectiveness o f measures t o prevent a n d
address gender-based violences

T h e Commission's c o m m e n t to the draft draws f r o m its experience a n d

challenges i n addressing gender-based violence i n the Philippines including
its independent submission t o t h e C o m m i t t e e d u r i n g t h e 6 4 t h C E D A W
session 2, i t s N a t i o n a l I n q u i r y o n Reproductive H e a l t h a n d Rights, t h e
Concluding Observations of the C o m m i t t e e for the Philippines for its 7 t h a n d
8 t h r e p o r t s a n d t h e r e c e n t l y h e l d C o n s u l t a t i o n o n C E D A W G R 194. T h i s
c o m m e n t reiterates t h e C o m m i t t e e ' s concluding observations o n t h e State's
obligaiton t o f u r t h e r "accelerate i t s achievement o f substantive gender
equality a n d t h e full realization o f women's h u m a n rights;" calling f o r
"gender-sensitive approach t o development" a n d " w i t h special attention t o
w o m e n facing multiple a n d intersecting f o r m s o f discrimination" a n d
" w o m e n ' s participation." W i t h these, t h e C H R P focuses i t s c o m m e n t s o n
t h r e e p o i n t s ; (1) p r o v i d i n g u p d a t e d g u i d a n c e t o S t a t e s i n a d d r e s s i n g n e e d s o f
w o m e n facing intersecting f o r m s o f discrimination, addressing t h e

' Amman Programme of Action (2012), par. 15

^ http://tbintemet.ohchr.org/_layouts/treatybodyextemal/SessionD
^ http://tbintemet.ohchr.org/_layouts/treatybodyextemal/SessionDe
" The CHRP conducted a Consultation on GR 19 with Women's Legal a
September 2016. Representatives came from various CSOs working w
Karapatang Pantao: Likas sa Atin, Tungkul
Commomvealth Avenue, U.P. Complex, Diliman 1101 Quezon
Tel. Nos. 927-0172 • 928-2018 • 928-5655
i n v i s i b i l i t y o f v i o l e n c e as e x p e r i e n c e d b y w o m e n w i t h d i v e r s e S O G I , w o m e n
w i t h disabilities, persons living w i t h H I V , rural, m i g r a n t a n d indigenous
w o m e n ; (2) a focus o n situations w h i c h exacerbate and aggravate women's
risk t o gender-based violence, a n d the need for guided state interventions i n
prevention and redress and protection, and (3) strengthening and updating
guidance i n addressing t h e c o n t i n u u m o f violence t h r o u g h reiterating State's
obligation to c o n d e m n all f o r m s of violence, including f o r m s not explicitly
m e n t i o n e d i n the G R or m a y be emerging and addressing impunity.

P a r Q: G B V i n c o n t e x t o f a r m e d c o n f l i c t a n d e m e r g e n c y

F o r par. 9, i t is r e c o m m e n d e d t h a t a n o t h e r sentence be a d d e d t o h i g h l i g h t
heightened risks of gender-based violence, and of the exacerbation of existing
forms of G B V i n certain situations:

Basis:

I t is i m p o r t a n t t o r e i t e r a t e t h e o b l i g a t i o n s o f S t a t e s u n d e r G R 2 8 as i t
relates t o addressing violence i n cases o f states o f e m e r g e n c y a n d a r m e d
conflict. T h e C o m m i t t e e has previously stated t h a t such situations have a
"deep impact o n and broad consequences for the equal enjoyment and
exercise b y w o m e n o f t h e i r f u n d a m e n t a l rights.s" D r a w i n g attention to such
heightened risks t o G B V obligates States t o "adopt strategies a n d take
measures addressed to the particular needs of w o m e n ^ " i n such contexts. I n
t h e submissions o f t h e C H R P d u r i n g t h e 6 4 * session, t h e C H R P has raised
the "multiple and intersecting f o r m s of discrimination experienced by
indigenous and M o r o w o m e n i n the context of displacement, development
ggression, and/or conflict7." T h e C o m m i t t e e i n the concluding observations
has reiterated G R 3 0 (2013) o n w o m e n i n prevention, conflict a n d post-
conflict situations, a n d o f t h e State's o b l i g a t i o n t o apply zero tolerance t o
fight i m p u n i t y , a n d p r o v i d e n e c e s s a r y s u p p o r t t o w o m e n a n d g i r l s w h o a r e a t
r i s k o f o r v i c t i m s o f s u c h v i o l e n c e as w e l l as i n t i m e s o f a r m e d conflict^.

P a r . 11: G B V a n d i n t e r s e c t i n g f o r m s o f d i s c r i m i n a t i o n

F o r P a r . 11, i t i s r e c o m m e n d e d t h a t t h e G R i n c o r p o r a t e i n i t s d i s c u s s i o n o f
i n t e r s e c t i o n a l i t y o f d i s c r i m i n a t i o n , t h e " c o m p o u n d e d effects o f m o r e t h a n
one f o r m o fdiscrimination a n d t h e "need for solutions that respond t o the
aggravated f o r m s o f discrimination9." I t is proposed t o read:

G e n e r a l R e c o m m e n d a t i o n .^.^ o n w o m e n ' s access to

j u s t i c e highlights that intersecting o r c o m p o u n d e d
d i s c r i m i n a t i o n m a y i n c l u d e ethnicity/race, indigenous
or m i n o r i t y status, colour, socio e c o n o m i c status
a n d / o r caste, language, religion o r belief, political
o p i n i o n , n a t i o n a l origin, m a r i t a l o r m a t e r n a l status.
age, u r b a n / r u r a l location, h e a l t h status, disability,
property o w n e r s h i p a n d identity a s l e s b i a n , bisexual,
t r a n s g e n d e r w o m a n o r intersex person^". A c c o r d i n g l y , t h e
C o m m i t t e e acknowledges t h a t gender-based violence m a y affect
s o m e w o m e n t o different degrees, o r i n different ways, t h a n other
w o m e n because they experience varying a n d intersecting forms
of discrimination.

's.

Basis:

The w o r k o f the Committee haslong incorporated the framework o f

intersecting, multiple a n d compounded forms o f discrimination experienced
b y w o m e n . T h e p r o p o s a l seeks t o e c h o t h e e n u m e r a t i o n o f G R 3 3 o n access
to justice i n full, as i trecognizes h o w intersecting factors o f discrimination
affect w o m e n ' s access t o justice.

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G e n e r a l Obligations o f State parties

Responsibility for Acts or omissions of State Actors

P a r i.q a (i) (ii)

It i s r e c o m m e n d e d t h a t P a r . 14 o n t h e scope o f State ObUgation b e

strengthened b y emphasizing t h a t State obhgation requires n o t only legal a n d
policy measures t o p r e v e n t acts a n d o m i s s i o n b u t also t h e accountability f o r
violations and combatting impunity

i ,States parties m u s t h a v e a n effective legal a n d services

f r a m e w o r k i n place t o address a l l f o r m s o fgender-based violence
against w o m e n , i n c l u d i n g t h a t c o m m i t t e d b y State agents. The
Committee h a s also e m p h a s i z e d that h a v i n g a system i n place
to a d d r e s s a p r o b l e m is insufficient; it m u s t be put into effect
by State A c t o r s w h o u n d e r s t a n d a n d a d h e r e to the obligation
of due diligence.^4 States a r e p a r t i c u l a r l y u r g e d to l a u n c h a
zero-tolerance c a m p a i g n o n violence against women^s. w i t h
the objective o f r a i s i n g a w a r e n e s s s o f the p r o b l e m a n d to
m a k e it ^socially a n d morally" unacceptable^^.
ii. State parties are responsible f o r p r e v e n t i n g these acts o f o m i s s i o n s -
including through training a n dadoption, implementationa n d
m o n i t o r i n g o f legal provisions, administrative regulations a n d codes o f
conduct a n d t o investigate, prosecute a n d apply appropriate legal o r
d i s c i p l i n a r y sanctions i n a l l cases o f gender-based violence against
w o m e n , including those constituting international crimes, as well as i n
cases o f f a i l u r e , neghgence, o r o m i s s i o n o n t h e p a r t o f p u b h c
authorities.

• 14. (c)

(b) A t the Executive level

Fatma yildirim v. Austria para 12.1.2; Sahide Goeke v. Austria ,

CEDAW, A Commentary (2013). P. 466
1= Eg. CO Iraq, A/55/38,23''' Session (2000) para 190; CO Republi
cited in Chinkin. Violence against Women. CEDAW, A Commentary (2
CO Romania, A/55/38/, 23'^'' Session (2000), para 307, cited in
Commentary (2013). P. 467
Chinkin. Violence against Women. CEDAW, A Commentary (2013). P.
1^ CO Mozambique, CEDAW/C/MOZ/CO/2/ (2007) pars. 24 cited in Chin
Commentary (2013). P. 469
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 Appropriate measures t o m o d i f y o r eradicate customs a n d practices
that constitute discrimination against w o m e n , including those that
justify o r p r o m o t e gender-based violence against w o m e n , m u s t also b e
t a k e n a t this level.

(c) A t t h e J u d i c i a l level

...According t o articles 2 ( d ) , ( f ) a n d 5 (a), a l l judicial bodies a r e

required t o refrain f r o m engaging i n a n y a c t o r practice o f
d i s c r i m i n a t i o n o r gender based violence against w o m e n , a n d a l l legal
procedures i n cases i n v o l v i n g allegations o f c r i m e s o f gender-based
violence against w o m e n m u s t b e i m p a r t i a l a n d fair, a n d unaffected b y
gender stereotypes.

Recommendation:

Prevention. Protection and Redress:

F o r t h e r e c o m m e n d a t i o n s cutting across Prevention, Protection a n d Redress,

t h e C o m m i t t e e m i g h t consider p r o v i d i n g specific g u i d a n c e t o States i n
recognizing, addressing, a n d providing differentiated response t o gender-
b a s e d v i o l e n c e a s e x p e r i e n c e d b y specific groups o f w^omen f a c i n g
intersecting a n d m u l t i p l e f o r m s o f d i s c r i m i n a t i o n , specifically t h e f o l l o w i n g :

W o m e n a n d G i r l s w i t h disability: W o m e n a n d g i r l s w i t h d i s a b i l i t y
experience institutional a n d systemic violence f r o m t h e family, t h e
c o m m u n i t y , a n d b y State a n d non-State institutions. Gender-based violence
against w o m e n w i t h disabilities, w h i l e serious, are often invisible a n d m a r k e d
w i t h impunity^o. W o m e n a n d children w i t h disabilities are at heightened risk
to experience sexual o r domestic violence for various reasons, including their
l o w status i n c o m m u n i t i e s , t h e i r social isolation, t h e i r dependence o n others
a n d lack o f knowledge about their rights^i.There is little i n f o r m a t i o n available
a b o u t t h e v i o l e n c e t h e y e x p e r i e n c e a n d i t s e x t e n t ^2. M e a s u r e s t o e n s u r e
accessibility has been largely absent, a n d a t m o s t uneven, w i t h m a n y w o m e n
a n d girls w i t h disability unable t o report G B V . F u r t h e r relevant t o this
p r o p o s e d section w o u l d b e t h e v i e w s o f t h e C o m m i t t e e i n t h e case o f R vs. t h e

15 Mexico Inquiry, par. 274; CO India, CEDAW/IND/CO/SP. 1 (2010)

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Philippines as i t articulates State Obligation i naddressing G B V against
w o m e n a n d g i r l c h i l d r e n w i t h disability. I n said case, t h e C o m m i t t e e
r e m i n d e d States t o ensure t h e free a n d adequate assistance o finterpreters a t
all stages o f legal proceedings, w h e n e v e r needed a n d t o ensure a l l
proceedings involving rape a n dother sexual offences a r e conducted
impartially a n d fairly a n d free f r o m prejudices a n d stereotypes related t o
gender, ageand disability's.

W o m e n w i t h diverse S O G I E : W o m e n o f d i v e r s e s e x u a l o r i e n t a t i o n a n d
gender identity a n d expression ("SOGIE") a r e subjected t o gender-based
violence f r o m t h e family, t h e c o m m u n i t y , a n d f r o m State institutions. T h e
s t i g m a t h a t w o m e n w i t h diverse S O G I face i n p r i m a r i l y h e t e r o n o r m a t i v e a n d
p a t r i a r c h a l societies expose t h e m t o different a n d o f t e n e x t r e m e f o r m s o f
d i s c r i m i n a t i o n a n d gender-based violence. W h i l e states have acknowledge
the different forms o f violence based o n SOGI, there remains t o b e a lacuna
o n data a n d m o n i t o r i n g f r o m States a n d t h e responses have n o t been as
directed i n i m p l e m e n t i n g effective legislative a n d o t h e r preventive a n d
protective measures that address these f o r m s of violence.

Rural Women: W o m e n a n d girls f r o m r u r a l c o m m u n i t i e s a n d located i n

geographically isolated a n d disadvantaged areas face heightened risks t o
gender-based violence a n da r e faced w i t h greater barriers i n accessing
justice. D u r i n g consultations, accessibility o fm e c h a n i s m s a n d processes, the
intersecting factors o f poverty a n d heightened traditional a n d patriarchal
values i n rural areas have been raised w h i c h contribute t o G B V o f rural
w o m e n . Invisibility a n d n o nreporting o f G B V is common, particularly i n
geographically inaccessible a n d disadvantaged areas. I n t i m e s o f disaster a n d
a r m e d conflict, r u r a l w o m e n a r e faced w i t h even greater r i s k t o G B V w i t h
scant a n d l i m i t e d g o v e n m e n t i n t e r v e n t i o n s , m e c h a n i s m s , a n d support. G R 19
r e c o m m e n d a t i o n s o f prevention, strengthened protection a n d redress f o r
rural w o m e n is recommended.

Migrant Women: B y t h e n a t u r e o f t h e i r w o r k , m i g r a n t w o m e n a r e l a r g e l y
recognized as being exposed t o greater risk o f violence w i t h very l i m i t e d
access t o justice i n t h e c o u n t r y o f d e s t i n a t i o n , as w e l l a s countries o f o r i g i n .
The kinds a n d nature o f employment, t h ecountry o f destination a n d t h e
status o fthe migrant contribute t o the vulnerability and risks t o violence for
m i g r a n t w o r k e r s . I n t h e case o f d o m e s t i c w o r k e r s w h o s e n a t u r e o f w o r k i s
largely i n t h e private sphere, violence i s p r i m a r i l y invisible t h e
interverventions o f b o t h o r i g i n a n d destination States largely absent. F o r
undocumented m i g r a n t workers, increased vulnerability to violence is linked
to the existing laws i n destination countries that bar undocumented migrants
w o m e n f r o m accessing State authorities. I n the report o f the S R V A W , there
are also laws excluding u n d o c u m e n t e d i m m i g r a n t w o m e n f r o m accessing

'D/34/2011, Views adopted by the Committee at its fifty-s

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State shelters f o r domestic violence exposing t h e m t o arrest, a n d further
vulnerable to a range o f violations24. (p. 27)

W o m e n living w i t h H I V s : W o m e n l i v i n g w i t h H I V s f a c e n o t o n l y t h e
stigma b o r n e b y the v i r u s b u t also various f o r m s o f G B V w h i c h a r e often
invisible a n d unaddressed i n the policies a n d measures o f the State. T h e
S R V A W i n its report has w o r k e d o n this a n d has previously l i n k e d gender
inequality a n d t h e additional a n d specific f o r m s o f stigma b o r n e b y w o m e n
u p o n contracting the virus's. T h e S R V A W h a s cited, for instance, h o w i t
increases t h e experience o f stigma a n d results i n desertion a n d
i m p o v e r i s h m e n t w i t h i n t h e f a m i l y a n d t h e c o m m u n i t y , i n t e r m s o f social
ostracism, w i t h d r a w a l o f f a m i l y / c o m m u n i t y care, disentitlement f r o m
s u c c e s s i o n a n d p r o p e r t y r i g h t s , a n d , i n m a n y cases, violence, m o r e o v e r ,
H I V / A I D S f u r t h e r i m p e d e s w o m e n ' s access t o h e a l t h care a n d justice'^. W i t h
this, t h e C H R P r e c o m m e n d s t h a t G R 19 provide specific gudiance t o State
actors i n addressing a n d countering stigma a n d for enhanced measures for
p r e v e n t i o n policies to combat the enhanced d i s c r i m i n a t i o n a n d violence t h a t
H I V - p o s i t i v e w o m e n experience.27

I P a n d M u s l i m W o m e n : A s observed b y the Committee, M u s l i m ,

indigenous a n dother w o m e n living i n rural areas i n t h e Philippines a r e
subjected t o forced evictions a n d relocations a n d various f o r m s o f gender
based violence a s a result o f a r m e d conflict, n a t u r a l disasters a n d
displacement development projects a n d extractive industries. T h e
C o m m i t t e e also recognized t h a t this specific contexts expose I P a n d M u s l i m
w o m e n t o greater risk o f violence i nthe f a m i l y a n d i ntheir communities.
T a k i n g i n t o account personal a n d collective violence faced b y these w o m e n ,
a n d as t h e y intersect w i t h t h e r e l i g i o n a n d c u l t u r a l a n d t r a d i t i o n a l practices,
the Committee m a y provide guidance i n t h e prevention, protection a n d
redress of G B V i n this areas a n d contexts.

Additional Comments:

T h e C H R P likewise recommends that the c o n t i n u u m o fviolence and

i m p u n i t y o f violence b e strengthened i n t h e prevention, protection, a n d
edress section b y p r o v i d i n g specific sections addressing the following, a n d
providing guidance for State actions and interventions:

A d d r e s s i n g a l l f o r m s of violence w h e r e v e r they occur:

M a n y forms o f violence shared b y CSOs a n d partners during t h e

consultation o n G R 19 a n d w h i c h m a y require articulation i n the current draft
G R 19, specifically:

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 a) Violence committed by and through the digital space/ through ICT -
P a r t o f t h e c o n t i n u u m o f G B V is t h e p e r p e t r a t i o n o f G B V t h r o u g h digital
spaces. I n t h e P h i l i p p i n e s , gender-based violence p e r p e t u a t e d t h r o u g h
I C T intersect w i t h cases o f p r o s t i t u t i o n , t r a f f i c k i n g o f w o m e n a n d girls,
and sexual harassment, and violence i n intimate relationships, a m o n g
others. I n addition to the recognition of these f o r m s o f G B V i n the draft
G R 19, a n d i n recognition o f the a n o n y m i t y and often i m p u n i t y
involved i n these kinds o f violations. State obligation i n providing
redress m e c h a n i s m s a n d e n s u r i n g access t o j u s t i c e i n s u c h cases i s
r e c o m m e n d e d . A s t e c h n o l o g y a n d I C T a r e likewise sites o f
e m p o w e r m e n t for w o m e n a n d girls, i n the areas o f prevention, the use
of digital spaces a n d I C T t o c o m b a t a n d prevent G B V , a n d i n changing
stereotypes a n d attitudes m a y be developed.

b ) Violence in the form of misogyny and the proliferation of 'hate

speech'/ targeting of women- W h i l e t h e w o r k o f t h e C o m m i t t e e
addressed t h e l i n k s o f gender stereotypes a n d traditional practices w i t h
gender based violence, there has been lack of guidance for States o n the
links of violence against w o m e n , misogyny a n d the perpetuation of rape
culture i n relation to the right to freedom of expression. D u r i n g our
consultation, hate speech against w o m e n has been raised asf o r m s o f
GBV, aspart of the c o n t i n u u m of violence and h o w it contributes to
extreme f o r m s of G B V . Concerns were likewise raised w h e n hate speech
a n d d i s c r i m i n a t o r y acts are c o m m i t t e d b y State actors a n d institution,
including t h e highest officials o f t h e land.

c) Violence connected to wider struggles of Indigenous women and

struggles against development frameworks which exacerbate GBV
and risks of GBV: T h e w o r k o f b o t h t h e C o m m i t t e e a n d t h e S R V A W
h a s c o v e r e d v i o l e n c e against I P s a n d a g a i n s t g r o u p s asserting self-
determination. Violence for these groups o f w o m e n are b o t h personal
a n d collective. I nthe Philippines, I P s a n d M o r o w o m e n struggle
against G B V i n the f a m i l y a n d i nthe c o m m u n i t y as they likewise
s t r u g g l e c o l l e c t i v e l y as a g r o u p f o r s e l f - d e t e r m i n a t i o n .

d ) F/Aonomic Violence - I n t h e w o r k o f S R V A W , t w o m a n d a t e h o l d e r s h a v e
x a m i n e d t h e impact o fsocial a n d economic policies as w e l l as the
relationship o f political economy to w o m e n ' s h u m a n rights'^. I n this
sense connections have been m a d e o n macroeconomics w i t h violence
against w o m e n . However, consultations of the C H R P raised once again
issues o f economic violence i n the family, including i n abandoned
families. Poverty and its link w i t h gender based violence have been
discussed i n relation to rural a n d indigenous w o m e n , particularly those
i n the context o f development aggression. W i t h this, measures o f

2^ 15 years of the UN SRVAW, Its Causes and Consequences, P. 28

http://www.ohchr.org/Documents/Issues/Women/15YearReviewofVAWMand
8
 p r e v e n t i o n , p r o t e c t i o n a n d redress i n cases o f e c o n o m i c v i o l e n c e a n d
economic policies i m p a c t i n g o n G B V are r e c o m m e n d e d .

Strengthening guidance for prevention, protection a n d r e d r e s s

T h e S R V A W has previously articulated that a tthe core of the violence

against w o m e n p a n d e m i c lies u n e q u a l p o w e r gender relations, patriarchy,
h o m o p h o b i a , sexism a n d other h a r m f u l d i s c r i m i n a t o r y beliefs a n d
practices'^. I t i s r e c o m m e n d e d t h a t m e a s u r e s f o r p r e v e n t i o n s h o u l d i n c l u d e
recognition o f these causes a n d identification o fmeasures t o address t h e m ,
espousing a holistic approach w i t h i n t e r v e n t i o n s a t various levels: t h e
legislative, executive, the judiciary a n d t o include N a t i o n a l H u m a n Rights
Institutions ( N H R I ) . I t is f u r t h e r r e c o m m e n d e d t h a t t h e draft G R 19 include
sections emphasizing participation o f w o m e n - s u r v i v o r s o f violence a n d
women's organizations and CSO's i n the programming, implementation and
monitoring of measures o n GBV.

Issued this 19* day o f December 2016, Quezon City, Philippines.

A/HRC/32/42/Add.2, p. 3