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Reports & Statements | Working Groups | Photos from the Halifax Conference | Schedule | Participants 53rd Pugwash Conference on Science and World
Affairs
From Beijing to
Kyoto:
Gendering the International Climate Change Negotiation Process By Christie E. Dennison
Despite the overt United Nations commitment requiring all UN processes to abide by the principles for mainstreaming a gender perspective, the international climate change negotiation process has remained in contravention of these principles by assuming gender-neutrality and by failing to engage in required gender-analysis. I will argue that this failure has not only resulted in the process coming up short on gender equity principles, but also that this has had, and will continue to have, injurious effects on the process in terms of efficiency and effectiveness1. The international climate change process will be unable to achieve truly global legitimacy or relevance until it adopts the principles of gender equity at all stages of the process, from scientific research, through analysis, agenda formation, negotiation and decision-making, regime implementation, and finally in further development and evaluation. Setting the boundaries through definitionIn order to effectively
engage in this debate, it will be useful to clarify a few concepts
at the outset. First of all, 'gender' is a concept, distinct from
'sex', that "refers to the way in which, in any particular society,
individuals are socially constructed to behave and experience themselves
as 'female' or 'male'" (Jacobson 2002). This is changeable over
time and there are wide variations of gender experiences within and
between cultures, which depend on factors such as age, class, and
ethnicity (Mertus 2000, 18). Furthermore, "gender always carries
with it some form of relational content", which contributes to
a person's gendered identity (Jacobson 2002). Thus, the use of a gender
perspective in the analysis of any issue "recognizes, understands,
and utilizes the knowledge of gender differences in planning, implementing
and evaluating programs and working relationships" (Hanley, quoted
in Mertus 2000, 15). According to the UN's
Beijing Declaration and the Platform for Action, there is a
stated need to mainstream a gender perspective throughout all UN activity
areas (UN 1996). Furthermore, the UN has acknowledged that women's
right to participate in decision-making constitutes their basic human
right as well as their right and responsibility as citizens (Gierycz
in Skjelsbaek & Smith 2001, 18-19). In July 1997, the Economic
and Social Council (ECOSOC) defined the mainstreaming of a gender
perspective as:
These principles collectively
challenge the assumption of gender-neutrality, rendering this assumption
illegitimate and ignorant not only of accepted UN policy but also
blatantly ignorant of concern for gender equity. Let us now also open up
some of the conceptual definitions surrounding climate change and
allow the clarification of what I refer to as the "international
climate change negotiation process". While it is not practical
in this context to engage in a lengthy scientific explanation of the
processes that cause and result in climate change, it is feasible
to begin by acknowledging that:
If it may be agreed that
this is more or less the scientific process causing climate change,
then the human process of international meetings and negotiation to
obtain agreement on how to slow or alter this process, or at least
to mitigate its effects, can be referred to as the international climate
change negotiation process. The general objectives of this process were summed up in the UN Framework Convention on Climate Change (UN FCCC). Article 2 (Objective) states:
The UN FCCC remained the
focal point of the international climate change negotiation process
throughout the 1990s and has now survived into the 2000s, with the
most current major development in the process being the agreement
in 1997, and ongoing ratification, of the Kyoto Protocol (Grubb et
al 2001, 36-37). Very briefly, the Kyoto
Protocol, which is the culminating product of the Kyoto conference,
i.e. "the biggest and most high-profile event on the international
environment since the Rio Earth Summit", sets out legally binding
(pending ratification) commitments by industrialised countries to
limit their greenhouse gas emissions (Grubb et al 2001, 61).
The commitments were made according to agreed implementation time
scales in conjunction with "a complex package" of "global
'soft' commitments, related processes on technology transfer and financial
mechanisms, policies and measures, minimization of adverse impacts,
sinks, and compliance mechanisms…designed to gain and sustain global
participation" (Grubb 2001, xli). In short, Kyoto is the
world's comprehensive-albeit imperfect-agreement guiding international
policy and practice on the control and mitigation of climate change. Given this definitional introduction to two seemingly distinct "issue areas", it will now be useful to draw some links between gender issues and climate change, and to establish the foundation for a gender-based critique of the international climate change negotiation process. Foundations for fair criticism As I have begun to show,
the formal principles guiding international action on both climate
change and gender equity are grounded in development initiatives of
the United Nations. The UN FCCC is actually one of several agreements
emerging from the UN Conference on Environment and Development (UNCED),
which itself was the product of a long preparatory history of meetings
and discussions2.
Similarly, much of the formal international work on gender equity
has taken shape in the UN, beginning with the creation of the UN Commission
on the Status of Women (CSW) in 1947, further taking shape through
UNIFEM and the UN Conferences on Women in Copenhagen 1980, Nairobi
1985, Beijing 1995, Windhoek 2000, and also with Security Council
Resolution 1325 (Gierycz in Skjelsbaek & Smith 2001, 15). Underpinning
both of these development initiatives are concerns for achieving greater
global equity and efficiency in development, in the interests
of women and men, and the common future they share on Earth. As such,
progress in the areas of both gender and environmental issues was
intended to crosscut all issue areas of the UN, and to avoid becoming
mainstreamed as an afterthought to other processes (Gierycz in Skjelsbaek
& Smith 2001, 19; Greene 2001, 390). Given these parallel beginnings,
it is increasingly evident that gender, environmental, and development
concerns should be considered in concert with one another, as complementarities,
and certainly not as competing interests. Moreover, based on the common
goals of achieving efficiency and equity, it would appear that the
two issue areas stand to gain from being mutually supportive, and
contrastingly, that it would be of lesser value to consider one to
the exclusion of the other. Ironically, while the formal UN-based
women's movement has developed and maintained an interest in the inclusion
of environmental issues throughout its development3,
the UN-based environmental movement, and specifically the international
climate change negotiation process, has essentially ignored gender
issues by assuming gender-neutrality4. Before moving on to a discussion of how this exclusion came to be, and how the process may be redeemed, allow me first to explain briefly why gender issues should indeed be made central to the development of the international climate change negotiation process. Making the case for gender inclusivenessClimate change is often viewed as a scientific process, making it difficult to understand and often even more difficult to explain to the wider public (Villagrasa 2002, 41). This is further confounded by the belief that most of the effects of climate change will occur only in the future, complicating the generation of immediate public concern (Villagrasa 2002, 41). Fortunately, however, the very real, very human aspects of climate change, including its anthropogenic causes and the severe effects it will likely have on human life are increasingly being acknowledged5. Consequently, there is also growing awareness of the differential ways in which women and men are slated to experience climate change. These differences occur principally in the areas of responsibility, vulnerability, adaptability, and mitigation (Skutsch 2002)6. ResponsibilityEvidently, both sexes are implicated in the human responsibility for climate change based on their participation in the global economy (Skutsch 2002, 32). However, women's and men's participation in the global economy, defined in this case as their use of products and services owing to the emission of greenhouse gases, is neither the same, nor equivalent, on a global scale (Skutsch 2002, 33). For example, if we consider car use and ownership, although the sexual division has become less extreme in the past few decades in the Western world, "it is evident that cars are still more used by men than by women, with the side-effect that women are often disproportionately dependent on public transport" (Skutsch 2002, 33). This is only one of thousands of examples of women's and men's differential involvement in the global economy contributing to climate change. The point here is not to accrue blame on one sex or the other, but rather to emphasize the fact that since women and men have differential responsibilities for contributing to climate change, it is thus only logical to incorporate a gender perspective when conducting research on human responsibility for climate change7. VulnerabilityIt is with regard to vulnerability that the majority of women's research on gender differences and climate change has been conducted. This is because it is relatively frequently acknowledged that "the effects of climate change are very likely to be gendered…because of the strong relationship between poverty and vulnerability to environmental change, and the stark fact that women as a group are poorer and less powerful than men" (Nelson et al 2002, 51). While a statement as broad as this should not be accepted without qualification and acknowledgement of the significant gains women have made to challenge their assumed vulnerability8, it is clear that climate change will have the most dramatic and likely detrimental effects on the most vulnerable segments of society (IPCC 2001), and this does, for a variety of reasons9, often include women (Nelson et al 2002, 52). Adaptability and Mitigation Regarding adaptability
and mitigation, women have been shown to be both capable of, and especially
adept at, adapting to climate change (Masika 2002, 6), as well as
being willing to play a key role in developing and implementing mitigation
strategies (Skutsch 2002, 35). However, in both cases, women are much
more likely to achieve this if granted the opportunity and agency
necessary to become involved in the process (Skutsch 2002, 35). This
would, however, involve the granting of space for the voices of women
to speak on behalf of women. This issue brings us neatly back to the
lack of gender analysis and gender perspective in the international
climate change negotiation process. Based on the evidence
presented in the preceding paragraphs, it is irresponsible to deny
that climate change is a gendered concept. After all, under the assumption
of the gender neutrality of both the problem and the process, it is
not that the above issues disappear, but rather that they remain suppressed
and ignored. It would seem logical, therefore, if our goal is to achieve
maximal efficiency, for our response to climate change to aptly emerge
from a gender analysis and incorporate a gender perspective at all
stages of the process, from scientific research, through regime formation
and mitigation-strategy implementation. Yet the international climate
change negotiation process fails to incorporate a gender perspective
in an integrated and meaningful way. I maintain that the consequence
of this neglect is a lack of efficiency and equity in the process,
given that a gender-neutral process and gender-neutral mitigation
strategies will fail to address the differentiated concerns and needs
of half of the human population. I will now turn my attention to an examination of the development of the process, in order to illustrate how it evolved to the exclusion of women, before proceeding to recommendations on how the process might be reorganised in such a way as to include a gender perspective. How the process proceeded to exclusionAs I have noted, the international
climate change negotiation process has its roots in UN initiatives,
not the least of which was the formation of the Intergovernmental
Panel on Climate Change (IPCC) in 1988, under the auspices of the
UN Environment Program (UNEP) and the World Meteorological Organisation
(WMO) (Grubb et al 2001, 4). The IPCC provides "authoritative
assessments to governments of the state of knowledge concerning climate
change" and it is these reports that provide the "scientific
underpinning for the diplomatic processes of the UN FCCC" (Grubb
et al 2001, 4). The IPCC has evolved into "what is probably
the most extensive and carefully constructed intergovernmental advisory
process ever known in international relations" (Grubb et al
2001, 4). Its first assessment report jump-started the UN FCCC and
its second assessment report "marked a crucial stage in the progress
of global action to combat climate change…set[ting] the context for
the negotiation of the Kyoto Protocol" (Grubb et al 2001,
4). And yet, this most influential UN-based body has taken an almost
exclusively gender-neutral stance in its research and reports. Hence,
the international climate change negotiation process, in its assumption
of gender-neutrality, started on the course of regime formation as
a process exclusive of gender concerns, and continued in that vein
despite strong statements from the UN requiring mainstreaming of a
gender-perspective. Still, the process cannot
be let off the hook quite so easily. There were intervening moments
and factors throughout the process that should have reeled it back
into the realm of gender equality. The first of these was Agenda
21, the 'comprehensive' international programme of action for
achieving sustainable development in the 21st Century (Grubb et
al 1993, 97). Section III, Chapter 24 of Agenda 21 emphasises
the need for the active involvement of women in decision-making and
plainly acknowledges the need to forcibly eliminate gender discrimination
(UNCED 1992). Secondly there was the Beijing Platform for Action
emerging from the UN Conference on Women in 1995, which propounded
in no uncertain terms the continuing efforts to eliminate gender discrimination
and further entrenched efforts to adopt a gender perspective cognisant
of women's identity and agency across all UN activity (United Nations
1996). However, notwithstanding
these intervening and purportedly vital documents, and despite a strong
move by women away from viewing women as the vulnerable victims of
this global phenomenon, neither the UN FCCC nor the Kyoto Protocol
make any mention of gender or women's issues relative to global environmental
change (Skutsch 2001, 30). Equipped with all the necessary bases for
designing a gender-inclusive process of international negotiation
on climate change, the agents of this process still failed to do so10.
Getting back on track:
mechanisms to promote gender inclusiveness
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