84838 v2 NEGOTIATING WITH THE PNG MINING INDUSTRY FOR WOMEN’S ACCESS TO RESOURCES AND VOICE : The Ok Tedi Mine Life Extension Negotiations for Mine Benefit Packages Yasap Popoitai and Waafas Ofosu-Amaah Photo Credits Page 14: Yasap Popoitai Page 18: Yasap Popoital Page 27: Waafas Ofosu-Amaah Page 32: Yasap Popoitai Page 33: Yasap Popoitai Page 34: Yasap Popoitai Page 35: Yasap Popoitai Page 38: Yasap Popoitai Cover Design by Jihane El Khoury Roederer The report is posted on the Extractives Industries page of the World Bank’s Gender website (www.worldbank.org/gender). NEGOTIATING WITH THE PNG MINING INDUSTRY FOR WOMEN’S ACCESS TO RESOURCES AND VOICE : The Ok Tedi Mine Life Extension Negotiations for Mine Benefit Packages Yasap Popoitai and Waafas Ofosu-Amaah Table of Contents Abbreviations and Acronyms............................................................................................. IV Foreword............................................................................................................................ V Acknowledgments............................................................................................................. VI Executive Summary............................................................................................................ 1 I. The Ok Tedi Mine Life Extension Negotiations.......................................................5 A. BACKGROUND AND OBJECTIVES.......................................................................................................................... 5 1. Objective of the Report.........................................................................................................................6 2. Report Methodology.............................................................................................................................7 3. 2001-2012 CMCA Negotiations: Key Stakeholders and Chronology................................................7 B. HOW AND WHAT THE OK TEDI WOMEN NEGOTIATED...................................................................................... 10 1. Getting Women to the Negotiations Table........................................................................................10 2. Articulating and Prioritizing Women’s Needs.....................................................................................11 3. The 2012 Negotiations Proper.............................................................................................................13 C. IMPLEMENTING WHAT THE OK TEDI WOMEN NEGOTIATED............................................................................. 18 1. Accessing the Funds for Women and Children................................................................................. 18 2. Women’s Representation on the OTDF Board...................................................................................21 D. FINDINGS, CONCLUSIONS, AND RECOMMENDATIONS..................................................................................... 22 1. Findings and Conclusions.......................................................................................................................22 2. Recommendations................................................................................................................................23 II. Profiles of Selected Women Negotiators and Independent Facilitator................ 25 A. GETTING WOMEN TO THE NEGOTIATING TABLE – 2006/07 AND 2012........................................................... 25 B. INTERVIEW WITH UME WAINETTI: NEGOTIATOR IN THE 2006/07 NEGOTIATIONS........................................... 26 C. PROFILES: FIVE WOMEN NEGOTIATORS FROM THE 2012 NEGOTIATIONS..................................................... 31 Bala Tedumo, representing Lower Ok Tedi............................................................................................31 Noni Dukumun, representing Nupmo....................................................................................................32 Katherine Puse, representing Tutuwe.....................................................................................................33 Rebecca Marke, representing Dudi.........................................................................................................34 Alice Hmen, representing Tutuwe...........................................................................................................36 D. INTERVIEW WITH KORI MARAGA: FACILITATOR FOR THE 2007 AND 2012 REVIEWS.......................................... 37 Papua New Guinea III Abbreviations and Acronyms BNPP Bank-Netherlands Partnership Program CEO Chief Executive Officer CMCA Community Mine Continuation Agreement FRPG Fly River Provincial Government MLE Mine Life Extension MoA Memorandum of Agreement OTDF Ok Tedi Development Foundation OTFRDP Ok Tedi Fly River Development Program OTMIAA Ok Tedi Mine Impacted Area Association OTML Ok Tedi Mining Limited PGK PNG Kina PNG Papua New Guinea PNGSDP Papua New Guinea Sustainable Development Program PNGSDPL Papua New Guinea Sustainable Development Program Limited State Independent State of Papua New Guinea US$ United States Dollar VDF Village Development Fund VPC Village Planning Committee WIM Women in Mining WPPDTF Western Province People’s Dividend Trust Fund IV WOMEN’S ACCESS TO RESOURCES AND VOICE Foreword Natural resources should spur local- and country-level development but instead often lead to conflict, environmental degradation, and human rights abuses. In mining communities, women in particular often bear the negative consequences associated with mismanagement of extractive industries. Women need to be part of the processes and strategies aimed at transforming the negative aspects of the extractive industries into visible social and economic benefits in affected communities. For this to happen, women need access to rights and resources and to be given a voice through legislation, capacity development, and cultural transformation. The objective of the World Bank-Netherlands Partnership Program (BNPP) Trust Fund is to develop knowledge products and learning tools drawing on practical examples and lessons like the ones documented in this report to assist policy-makers and practitioners with addressing gender and women’s empowerment issues. In Papua New Guinea (PNG), the BNPP aims to tell the stories of women’s roles in the mining sector; their mobilizing and coalition-building strategies and approaches; their interactions with mining sector institutions; and their overall strategies for accessing resources, knowledge, finance, and capacity-building opportunities. The work builds on lessons from the Women in Mining (WIM) initiative and the analytical work on the special provisions of the Community Mine Continuation Agreement (CMCA) supporting women in the CMCA regions of Western Province. The WIM initiative, CMCA Women and Children’s Action Plans, and the CMCA negotiations provide examples of women-driven engagement with government and private sector actors aimed at improving the living conditions of their communities. With the permission of senior management of the Ok Tedi Mining company, a World Bank consultant was included in the final 5-week long Mine Life Extension (MLE) negotiations as an observer. The purpose was to observe women’s roles in the negotiations and, through interviews with the participants, document the women negotiators’ aspirations and expectations from the process. The ultimate goal is to provide a forward-looking assessment of the outcomes and draw lessons for analysis and program design not only in the CMCA regions but elsewhere in PNG resource areas. This report documents the experiences of the negotiations and draws conclusions about women’s inclusion in the negotiations, making comparisons between the first negotiations in 2006/07 and this second set in 2012. Bearing in mind the challenges that women face in bringing about development in their communities and the lessons from their participation in the negotiation process, the report proposes recommendations aimed at better positioning of women to take advantage of the proposed mine benefit streams that resulted from the negotiations. Laura Bailey Nigel Parker Country Manager CEO & Managing Director World Bank Country Office OK Tedi Mining Ltd (OTML) Papua New Guinea Papua New Guinea December 2013 Papua New Guinea V Acknowledgments This report, prepared under the World Bank Institute (WBI) project “Lessons on Gender Inclusion in Fragile and Conflict-Affected States – Women’s Access to Rights, Resources and Voice,” was researched and written by Yasap Popoitai (Consultant) and Waafas Ofosu-Amaah (Task Team Leader). The task team consisted of Lwanzo Amani, Lesley Bennet, Rea Abada Chiongson, and Camilla Gandini (Consultants). The team conveys special thanks to the following officials of the key stakeholder institutions for the support accorded to the consultant in undertaking and completing the extensive field work: Nigel Parker (CEO and Managing Director) and Musje Werror (General Manager) of Ok Tedi Mining Limited (OTML); and David Sode (Chief Executive Officer) and Pat Kila (Manager) of the Mine Impact Unit of PNG Sustainable Development Company (PNGSDP). The team also expresses appreciation to the following members of the OTML Community Relations team: Leonard Lagisa, Executive Manager; Kuam Sanewai, Manager; and Jane Wiyawa, Senior Social, Economic and Education Officer. Most importantly, the team acknowledges the individual women negotiators, and especially the women leaders who are profiled in this report, for their willingness to share their experiences. These women leaders are Ume Wainetti, National Program Coordinator, Family and Sexual Violence Action Committee; Bala Tedumo, Lower Ok Tedi and Women’s Representative on the Board of the Ok Tedi Development Foundation (OTDF); Noni Dukumun, Trustee of the Nupmo Trust and President of the Nupmo Women’s Association; Katherine Puse, President of the Tutuwe Women’s Association; Rebecca Marke, Women and Children’s Representative on the Dudi Trust; Alice Hmen, Women’s Representative on the Tutuwe Trust; and Kori Maraga, Facilitator. The team also gratefully acknowledges the following World Bank Group staff for their technical guidance and collaboration: Laura Bailey, Country Manager for PNG; Jeni Klugman, Director of Gender and Development; Christopher Sheldon (Sector Manager), Katherine Heller (Social Development Specialist), and Jennifer Scott (Consultant) of the Oil, Gas, and Mining team; Adriana Eftimie, Operations Officer, International Finance Corporation (IFC); Nicholas Menzies and Georgia Harley of the Justice for the Poor (J4P) team; Julie Babinard, Senior Transport Officer; Alys Willman, Social Development Specialist; Katrin Ivonne Greisberger of WBI’s Regional Coordination and Partnerships team; and all the staff of the PNG country office who provided valuable administrative, logistical, and production support. We especially acknowledge the assistance of the following staff in the Port Moresby office: Margaret Ali, Dodi Doiwa, Elly Karo, Joy Sagati, and Tasha Sinai. The Sustainable Minerals Institute at the University of Queensland, Australia, served as external peer reviewer for this study. The team appreciates the constructive comments received from Deanna Kemp, Deputy Director of the Institute, and Julia Keenan. The report was made possible by the generous support of the Government of the Netherlands, under the Bank- Netherlands Partnership Program (BNPP) Trust Fund. VI WOMEN’S ACCESS TO RESOURCES AND VOICE Executive Summary This report documents the unique and pioneering experience in Papua New Guinea (PNG) of women and their roles in negotiating mining operations’ benefit streams for local communities. The lessons it draws for development policy-making, planning, and program implementation are relevant both for PNG and for other countries in their attempts to make policy decisions about translating mineral wealth into inclusive and sustainable development for local communities. In 2006/07 women in the nine Community Mine Continuation Agreement (CMCA) regions of the Western Province of PNG achieved unprecedented success. During the negotiations for mine benefit streams for communities affected by the operations of Ok Tedi Mining Limited (OTML), women were represented at the negotiations table by one woman, who was appointed to play this role. The women were able to negotiate for 10 percent of funds from the mine operations to be dedicated to women and children’s programs. The essence of this agreement went beyond women’s access to resources from the mining operations; it also reinforced women’s access to rights of representation at the highest levels of decision-making on mine benefits for local communities. The Memorandum of Agreement (MoA) from this review specifically provided for recognition of women representatives on Village Planning Committees (VPC), the CMCA Association, and the Board of the Ok Tedi Development Foundation (OTDF). The 2006/7 agreement stipulated that the Memorandum of Agreement would be reviewed every five years. Five years later, in 2012, when the agreement came up for review, up to 30 women leaders participated in the negotiations process, yet another pioneering milestone. This time, they were able to negotiate set-asides for women and children ranging from 10 percent to 18.24 percent. (Table ES1) TABLE ES1.  CMCA WOMEN REPRESENTATION AND THE 2012 NEGOTIATED OUTCOMES FOR WOMEN AND CHILDREN’S FUND BY REGION Regional Trust Funds in Western Province Six Mine Category Lower Middle Nupmo Tutuwe Dudi Manawete Suki Fly Kiwaba Villages Ok Tedi Fly Gogo Total Number 23 21 21 32 18 23 19 16 24 of Negotiators Number of Women 3 3 3 3 3 3 3 3 6 Negotiators % Female 13 14 14 9 16 13 15 18 25 Representation Leader of Bala Kurina Noni Katherine Rebecca Narei Linda Alice Clara Women’s Tedumo Aioge Dukumun Puse Marke Namaro Mulake Kwause Fred Delegation % of Women and Children’s 15.0 12.0 10.0 18.0 18.24 14.0 10.0 12.5 15.0 Fund Source: MLE Regional Meeting No.4, Tabubil, December 2012. Papua New Guinea 1 Women representatives’ roles: What was different in 2012 and why were men convinced? Even though women were outnumbered by men at the 2006/07 negotiations, there is no evidence to indicate that women encountered the same level of initial resistance in 2012 or that women’s needs were jeopardized because of being outnumbered. CMCA men were more convinced of women’s representation in 2012 than they were five years earlier because, with the 10 percent negotiated in 2006/7, women had mobilized, planned, and worked hard to demonstrate some benefits (that had accrued to the community at large) from the training that they had received through the use of the allocated funds. The women were also explicit in their argument that they were not acting only on their own behalf but on behalf of their communities. Negotiating strategies It is clear that the women leaders used a strategy similar to that deployed by the sole women’s representative appointed to assist the women in 2006/7. In both instances, the women used examples and enthusiasm to persuade the male leadership that the funds set-aside for women was in the interest of the entire community. This strategy centered on demonstrating community-wide benefits of the Women and Children’s Funds and included: • Collaboration within and among all the negotiators. The entire team of men and women discussed their community needs and worked together. • Evidence. Women leaders had already done their negotiation through demonstrating the outputs of programs and projects at village and community levels. • Preparation. Through the evidence, men leaders’ support for the minimum of 10 percent had already been secured prior to the teams coming to the negotiations table. • Using male advocates. Men leaders were able to convince their fellow male negotiators to support the women’s call for an increase in the 10 percent, relying on the evidence that the women provided. Implementation challenges The 10 percent fund translated into PNG Kina (PGK) 101 million (about US$38 million). As to be expected, programming and disbursing such large sums of monetary flows present unique implementation challenges. To help translate this fund into development gains, the CMCA women’s leadership mobilized and planned, with technical assistance from a range of stakeholders, including the PNG Department of National Planning, OTML, the PNG Sustainable Development Program (PNGSDP), and the OTDF. The ordinary village women leaders — who had no prior exposure to planning — articulated and prioritized their needs and translated them into goals and objectives in 9 respective CMCA Women and Children Action Plans 2009–2019. However, as noted by the Lead Independent Local Facilitator, Kori Maraga, who played this role in 2006 as well as 2012: During the 2006/07 CMCA Review, the women were excited when the 10 percent women and children deal was secured; but even to this day as I have gone onto facilitating the Mine Life Extension consultation, women are still confused on how they would access their 10 percent or what it all means. Life goes on the same as 7 years ago since the securing of the deal. Impacts of the 10 percent funding is yet to be felt by women in general in the mine-impacted communities. I would be happy for women in the villages to be organized and empowered through information dissemination and increased decision-making powers. Kori Maraga’s statement summarizes the main challenges that women face in using such large amounts of funds for social and economic benefit. The challenges focus primarily on capacity deficits and gaps in knowledge, especially limited understanding about important issues such as the content of the Memorandum of Agreement; the sources of funding; the roles and responsibilities of the different entities charged with implementation (CMCA Trusts, PNGSDP, OTDF); and the rules and procedures for accessing the funds. As a result, there has been limited drawdown of the funds. Two additional challenges stand out: • There is limited evidence of tangible high-impact benefits. During the 2006/07 negotiations, the women pointed to examples such as training activities in cooking and sewing, computer skills such as 2 WOMEN’S ACCESS TO RESOURCES AND VOICE how to use PowerPoint presentations, and the purchase of the multi-purpose MV Fly Hope (a multi- purpose boat for river transport). Despite these examples, what is missing on a large-scale are some of the most critical enablers to effective service delivery (such as roads, jetties, and bridges; health centers and outposts; classrooms, libraries, and accommodations for teachers, nurses, and doctors) and the elements of sustainable livelihoods (such as agriculture and food production) that the women enumerated in their action plans. These benefits are yet to be fully realized. • Women’s representation on the OTDF Board has fallen short of expectations. Currently, there is only one woman on the OTDF Board. Aside from the fact that this is an unfulfilled legal requirement, the real issue is about improving OTDF’s performance and promoting equal opportunity for CMCA women. The business case for CMCA women on the OTDF Board is not just about women’s quotas. It is about promoting women’s voice and agency and ensuring that different perspectives are brought to the negotiating table and debated or considered in a holistic way. The women leaders represent the voices of the marginalized and underprivileged people back in the villages. The 7 women leaders interviewed for this report (Part II) spoke loudly and clearly about this need to increase women’s representation on the OTDF Board. What CMCA women leaders consider important to fully utilize the 10 percent funds and implement the Women and Children’s Action Plans The women leaders proposed the following suggestions: • Capacity development. Institutional capacity and human resource development as the primary means of ensuring that women are able to manage their Associations, take control of the Women and Children’s Funds, and manage them separately from the current Trust arrangement. • Stakeholder collaboration. Closer collaboration and partnership between all stakeholders (including OTDF and PNGSDP) in order to complement each other’s efforts in delivering credible projects. • Empowering Village Planning Committees with project management skills. Empowering Village Planning Committees to manage small village projects would ensure project ownership. Women leaders want OTML to start working first with those Village Planning Committees that have a proven track record of decision-making for village projects and are accountable and transparent in participation processes. • Ownership and sustainability. The negotiators would like women leadership to be consulted to ensure ownership and sustainability. Conclusions The overall conclusion is that significant strides have been made in securing women’s access to voice, representation, and rights of participation. This is attributable, in large part, to: • Higher levels of education attainment enhances women’s leadership role. Through the interviews, it became clear that those who spoke out were women leaders who have attained Grade 10 and above and had some technical training. • Level of preparedness and relationship building are conducive to effective negotiations. Most of the women leaders had continuously attended all regional MLE meetings over three years. They were familiar with the issues in addition to knowing the OTML Community Relations Officers through the prolonged periods of engagement. • Community interests (regional) often take precedence over local (village-level) positions. In general, women tend to identify specific needs more at their locality than at the regional level. However, during the negotiations, the community interests at the regional level took precedence over village-level interests. The challenge is how to translate the regional agreements into tangible benefits for everyone in the community. • Changes in attitudes and mindsets are happening, but the pace is not fast enough. Although there is some evidence that mindsets and attitudes are changing, such change is not happening fast enough in the communities that are impacted most by the OTML operations. Social and economic development is lagging and indicators of women’s overall empowerment on such issues as maternal mortality continue to be low, especially in the Middle and South Fly regions. Papua New Guinea 3 • Implementation of the 2006/07 CMCA remains a challenge. As the CMCA-negotiated funds have grown bigger, emphasis should now be placed on how and on what to wisely spend the negotiated funds. The CMCA Women’s and Children’s Action Plans 2009–2019 offer an opportunity to dictate and drive the Budget for Priority Expenditures identified by the CMCA women. Recommendations Based on the above findings, it is recommended that the government and industry stakeholders involved in the negotiations and decisions relating to communities affected by mining operations take the following actions: • Provide independent legal advice to the communities to enable the women leaders to weigh options and make informed decisions. • Provide development advice and build the capacity of women leaders to enable their associations to work effectively together to ensure that the development outcomes specified in their action plans are met. • Identify and implement strategies to make men better development partners, in concert with women, so that the men are able to play supportive roles in their villages or within their families and can engage in community development policy dialogues and programs. • Develop a CMCA expenditure strategy to guide OTDF about where and on what to spend the Women and Children’s and other funds. • Build further capacity to improve women’s ability in negotiations, focusing not only on the monetary aspects, but more importantly, how to make those monetary aspects impactful through proper planning and implementation. • Develop a communication and awareness-raising strategy to promote and inform the CMCA communities of the outcomes of the 2006/07 Review and the 2012 negotiations, and to communicate, educate and raise awareness about all the dimensions of these agreements. Access to the right type of information at the right time will empower the CMCA leadership to make informed decisions. 4 WOMEN’S ACCESS TO RESOURCES AND VOICE I. The Ok Tedi Mine Life Extension Negotiations A. BACKGROUND AND OBJECTIVES The mining and petroleum industry in Papua New Chamber of Mines and Petroleum, the mining and Guinea (PNG) is experiencing an unprecedented petroleum industry contributes over one-third of period of activity and growth.1 This growth is a result government tax revenue.3 Between 2005 and 2010, of efforts of industry and government in promoting the industry’s tax contribution totaled PGK 12.7 and nurturing the sector over the past 12 years. billion, an average of over PGK 2.1 billion per year. During this period, the mining and petroleum sector, Landowners and the four provincial governments comprising crude oil, gold, and copper, contributed hosting the larger, mature projects (Ok Tedi, Porgera, more than 55 percent to growth of the economy, far Lihir, and the oil fields) are the main beneficiaries. ahead of the agriculture and forestry sectors.2 The Currently there are four large-scale mines — Ok Tedi, benefits provided by mining and petroleum projects Porgera, Ramu, and Lihir — with Ok Tedi being the are diverse and substantial. According to the PNG largest (Figure 1). FIGURE 1.  MINING PROJECTS IN PAPUA NEW GUINEA Source: PNG Chamber of Mines and Petroleum, February 2013. 1  This rapid growth is now being impacted by a downturn in metal prices. 2  According to the World Bank PNG report on exports classified by commodity groups, Quarterly Economic Bulletin, 2012. 3  Mining and Petroleum Industry’s Contribution to Nation Building, 2012. Papua New Guinea 5 From commencement of the Ok Tedi mine in 1982 impacted, rural communities remains elusive. This until the end of 2011, the Fly River Provincial Govern- report demonstrates how the communities under the ment received PGK1.65 billion in benefits and the Ok Community Mine Continuation Agreement (CMCA), Tedi mine area landowners received PGK 1.22 bil- especially the women in those communities, moved lion (Figure 2).4 Although the mining projects bring from positions of “no voice” to “having a voice”, and huge revenues into the PNG economy, translating how informed decisions were made through broad the revenues into tangible outcomes for the mine- stakeholder engagement. FIGURE 2.  TOTAL BENEFIT STREAMS FROM OK TEDI (PGK BILLION) FRPG, Land Owners, 1.65 1.22 Former Shareholders, 2.39 National Govt, 13.9 PNGSDP, 5.08 Source: PNG Chamber of Mines & Petroleum, 2012. 1. Objective of the Report • Women’s roles in the 2006/07 CMCA Review involved two prominent Western Province The main focus of this report is on the unique and women leaders who represented the mine- pioneering experience of including up to 30 women impacted women and children from the leaders in the negotiation processes of the mine CMCA regions and villages, sitting around the benefits package under the current Community negotiating table with CMCA male leaders. Two Mine Continuation Agreement. The objective of the major milestones were achieved: (a) recognition report is to document this experience and to draw of women’s participation in the decision- lessons for development policymaking, planning, making process and governance structures and program implementation, both for PNG and for pertaining to the use of development funds other countries with extractives industries. It does and investments; and (b) successful negotiation so, first, by telling the experiences of women’s lead- of 10 percent for projects and investments ership roles in their communities; their interactions specifically for women and children. with mining sector institutions; and their overall strat- egies for accessing resources, knowledge, finance, • Women’s roles in the 2012 Mine Life Exten- and capacity to enable their communities to grow. sion (MLE) Negotiations involved 3 women Secondly, it compares the 2006/07 Review process representatives for each of the 8 Trust Regions with the 2012 process by documenting ways in which and 6 from the Six Mine Villages. During the women participated and found a voice (or not) at the final 5 weeks of meetings, the 30 women leaders negotiating table on those two occasions. who took their places at the negotiating table 4  Mining and Petroleum Industry’s Contribution to Nation Building, 2012. 6 WOMEN’S ACCESS TO RESOURCES AND VOICE FIGURE 3.  OK TEDI MINE PIT Source: OTML, February 2013. are solid evidence of positive change and in the negotiations and decisions relating to commu- women’s increasing representation at one of nities affected by the mine’s operations from 2001 the highest decision-making forums for negoti- to 2012. ating mining benefits. The CMCA male leaders recognized women’s important roles in com- (1) Ok Tedi Mining Limited (OTML). The Ok Tedi munities. Observing the negotiations provided copper and gold mine is situated in one of the an opportunity to document this unique, home- world’s most challenging locations, Mt. Fubilan in grown process and the complementary roles of the Star Mountains of PNG Western Province (Figure women and men leaders. 3). In 2001 the mine could have been closed on environmental grounds; however, the PNG Govern- 2. Report Methodology ment made an executive decision to keep the mine open so long as there was informed consent by the A combined methodology of descriptive, explana- affected communities near the mine and along the tory, and analytic research on the history and practice Ok Tedi and Fly River. The consent is embodied in of CMCA processes and Women in Mining (WIM) the CMCA 2001, which provides for compensation activities was used. The methodology involved to be paid by OTML to communities affected by the analysis of multiple data sources, including inter- operations. In January 2011, OTML became 100 per- views, observation of the 2012 MLE negotiations cent owned for the benefit of PNG. over a 5-week period, and review of the relevant lit- erature on gender issues in the PNG mining sector. (2) CMCA communities. These affected communi- Upon receiving authorization from Ok Tedi Mining ties in the Western Province provide their consent to Limited (OTML) officials, the report consultant OTML in order to continue its CMCA-based opera- observed the 2012 negotiations in Tabubil and con- tion. They consist of 9 regions and cover over 98,048 ducted interviews with the women leaders (Part II). square kilometers, with a combined population of The case studies were developed from these inter- over 100,000 people. As shown in Figure 4, the 9 views. The interview with Ume Wainetti took place in regions spread across the head of the Ok Tedi River Port Moresby. in the Star Mountains to the Fly River Delta in the South Fly. The CMCA communities differ by culture 3. 2001-2012 CMCA Negotiations: and level of development from the coast to the hin- Key Stakeholders and Chronology terland where the Ok Tedi mine is located. The fur- ther the communities are from the center of activi- Following are descriptions of the 7 key stakeholders ties, the lesser the development in terms of access to that represent the institutions with which the women basic services such as health, education, social pro- in the communities engage. Table 1 presents a chro- tection, and courts. The geographical terrain, topog- nology of events and the key stakeholders involved raphy, and climatic conditions across the main CMCA Papua New Guinea 7 regions in the North Fly, Middle Fly, and South Fly and development payments through 8 Trust Regions Districts of Western Province, coupled with lack of and the Six Mine Villages. The operation of CMCA infrastructure and implementation capacity, cultural Trusts and the powers and authorities of the CMCA attitudes, land ownership issues, and lack of govern- Trustees are governed by relevant Trust Deeds for ment capacity, pose implementation challenges in each of the 8 Trust Regions. To mobilize the Trusts, service delivery despite the ever-flowing resources OTML established Village Planning Committees in from CMCA funds and others, such as a Tax Credit each CMCA village and empowered them to identify Schemes and a Special Support Grant from National and prioritize sustainable development projects that Government for Western Province. most benefit their communities. The Board of Trusts is made up of representatives from the CMCA com- (3) Village Planning Committees (VPC) and CMCA munities, OTML, FRPG, National Government, and Trustees. The CMCA provides for OTML commit- the PNG Council of Churches. The Trusts meet every ment to (a) seek consent prior to making material quarter to review progress of approved projects and changes to its operations and (b) make investment to approve new projects submitted by the Village Planning Committees. FIGURE 4.  OTML FOOTPRINT - THE NINE CMCA TRUST REGIONS, WESTERN PROVINCE Source: OTML, 2010. (4) Ok Tedi Development Foundation (OTDF). The (4.1) Ok Tedi Fly River Development Program Ok Tedi Development Foundation was established (OTFRDP). A major outcome of the 2006/07 CMCA under Clause 6 of the Ok Tedi Mine Continuation Review was the creation of the OTFRDP. The 2006/07 (Ninth Supplemental) Agreement in 2001, and its tax- CMCA Review outcomes recommended a new entity free status is also enshrined in legislation. In 2001, to give communities a higher level of decision-mak- OTML registered OTDF as a non-profit organization. ing power over resources, programs, and projects. OTFRDP is mandated to mobilize and manage the 8 CMCA Trust Funds and the Six Mine Village Funds in a highly transparent governance structure and improve the livelihood of the mine-impacted com- 8 WOMEN’S ACCESS TO RESOURCES AND VOICE munities. This includes the Western Province Peo- the biggest development agency in PNG overseeing ple’s Dividend Trust Fund (WPPDTF) – CMCA Region a 63.4 percent shareholding in OTML. PNGSDP and the Women and Children’s Funds. This decision manages and invests about US$1.4 billion of funds was effected in 2008 when stakeholders agreed to held in trust to be used in Western Province at such continue with OTDF, given its mandate for CMCA time when the Ok Tedi mine closes. development and surety of OTML funding support, existing capacity, and experience. As OTDF was (6) Independent State of Papua New Guinea already incorporated, its re-establishment as a new (State). The State is not a party to the CMCA Ex- entity involved a number of changes, including (a) tension Agreement since the MLE Agreement is transfer of shares to reputable new owners, notably between the mine-impacted communities and OTML. PNG Sustainable Development Program (PNGSDP) However, the State is an important stakeholder by and the newly formed CMCA Association, known virtue of its 100 percent holding in the OTML mine as the Ok Tedi Mine Impacted Area Association since September 2013. Of this holding, 6.1 percent (OTMIAA) prior to or at mine closure; (b) enhanced (or PGK 325 million) is dedicated to CMCA. Thus, community ownership and participation in planning this holding makes the State the major contributor and implementation; and (c) securing the trading to CMCA compensation through the WPPDTF. The name OTFRDP to enhance the change image and State has always been part of all negotiations.5 ownership arrangements. (5) Papua New Guinea Sustainable Development Program (PNGSDP). The Papua New Guinea Sustainable Development Program was established in 2002 as an independent, not-for-profit, trustee company when Broken Hill Properties (BHP) Billiton divested its 52 percent shareholding in OTML, following concerns about the long-term environmental impact of the mine and the social and economic repercussions of this impact. The PNGSDP mandate is to apply the OTML dividends, which are assigned for PNG development with particular focus on the people of the Western Province. In 2007 PNGSDP became a party to the CMCA Memorandum of Agreement. Key features of the 2007 Memorandum of Agreement are that PNGSDP’s commitment runs to June 2013 (original date for completion of the current mine plan) and the money be used for development projects chosen by the communities and implemented by OTFRDP consistent with the outcome of the 2007 Memorandum of Agreement. In July 2012, PNGSDP signed a Memorandum of Understanding between OTDF for greater co-operation as a joint vehicle for delivery of village-level projects. With OTDF being the implementer, both CMCA Trusts and PNGSDP co-fund CMCA projects. PNGSDP will continue its commitment to improving livelihood of the CMCA communities. Until September 2013, PNGSDP was 5  During the 2012 MLE, the State was represented by: The Attorney General; Mineral Resources Authority; Environment and Conservation; Treasury; National Planning; Prime Minister and National Executive Council; Western Provincial Administration. Papua New Guinea 9 TABLE 1.  SUMMARY CHRONOLOGY OF EVENTS, 2001-2012 Year Events and Key Stakeholders 2001 Ok Tedi Mining Limited, OTML (1) entered into CMCA under the Mining Ok Tedi Mine Continuation (Ninth Supplemental Agreement) Act with 156 villages affected by its operations, known as the CMCA Communities (2). The Agreement commits OTML to (a) seek informed consent prior to making material changes to its operations and (b) make cash, investment and development payments through 8 Trusts and Six Mine Villages. To mobilize the Trust, OTML established Village Planning Committees, VPC (3) in each CMCA village and empowered them to identify and prioritize sustainable development projects that they felt would be of most benefit to their communities. 2002 OTML registered the Ok Tedi Development Foundation Limited, OTDF (4) as a not-for-profit organization. OTDF was established under the Mining Ok Tedi Mine Continuation (Ninth Supplemental Agreement) Act. A transition team comprising OTML, PNGSDP, CMCA leaders, and FRPG was established after the signing of the 2007 MOA and tasked with creating the CMCA entity that would serve as the development vehicle. The team agreed that OTDF was the best vehicle since it was already established under the Ninth Supplemental Agreement Act and had tax advantages. The team also agreed that OTDF should trade as “Ok Tedi Fly River Development Program” (OTFRDP). For governance purposes the board is referred to as the OTDF Board. PNG Sustainable Development Program, PNGSDP (5) was established as an independent, not-for-profit, trustee company when Broken Hill Properties (BHP) Billiton divested its 52 percent shareholding in OTML following concerns over the long-term, environmental impact of the mine, and the social and economic repercussions of this impact. PNGSDP is responsible for applying the funds coming from OTML, which are assigned for PNG development, in particular for the people of the Western Province. 2006- The CMCA was reviewed over a period of 18 months, which involved extensive and widely dispersed 2007 consultations by an independent facilitator, independent observers, and civil society. Inclusion of the State of Papua New Guinea (6) as a party to the 2007 MoA, committing 6.1 percent WPPDTF to the CMCAs. Inclusion of PNGSDP as a party to the 2007 MoA, committing PGK 21.5 million or 2.5 percent of PNGSDP dividends from OTML per year (whichever is greater in a given year) were to be used for development projects chosen by the communities and implemented by Ok Tedi Fly River Development Program (OTFRDP) consistent with outcome of 2007 CMCA Memorandum of Agreement. This agreement ran to June 2013 (original date for completion of current mine plan). A revised Memorandum of Agreement between OTML, PNGSDP, the PNG State, and CMCA communities was reached requiring the creation of an independent entity to manage the Trusts Funds. The CMCA male leadership agreed to allow women to join them at the mine benefits package negotiation table. This led to the successful negotiating of the 10 percent fund for women and children. Women held side meetings to strategize and approach the negotiations tactfully and with culturally sensitive awareness that in “a man’s world” to sit at the negotiation table was “breaking new ground.” 2008 Ok Tedi Fly River Development Program, OTFRDP (4.1) established and registered as a trade name to operate independently from OTML, while OTFRDP is mandated to mobilize the 8 CMCA Trusts and Six Mine Villages and improve the livelihood of the mine-impacted communities. 2009 The OTML Board approved the transfer of one share in OTDF to PNGSDP. OTML is legally obliged to transfer the remaining 3 shares to other reputable development organizations prior to or at the time of mine closure. 2012 The final round of MLE negotiations coincided with the review of the 2007 MoA. All 9 CMCA regions consented to CMCA Extension Agreement under the MLE. Memorandum of Understanding between PNGSDP and OTDF is signed (July 9, 2012) for greater co- operation as a joint vehicle for delivery of village-level projects. OTDF and PNGSDP will co-fund CMCA projects; PNGSDP will continue its commitment to improving livelihood of the CMCA communities as part of its overall mandate; 10 percent of the money is reserved for Women and Children’s Fund. Source: OTML Annual Review, 2011 and authors’ personal notes. 10 WOMEN’S ACCESS TO RESOURCES AND VOICE B. HOW AND WHAT THE OK TEDI WOMEN The 2006/07 negotiations involved just two female NEGOTIATED leaders, Ms. Ume Wainetti and Reverend Anna Bisai, who represented women and children. Although This section examines how women came to sit at the challenging, the 2006/07 CMCA negotiations table for one of the highest decision-making forums achieved two significant “firsts” as far as women’s in negotiating mining benefits and what impact this representation is concerned: 1) women’s participa- higher level of representation had on the overall out- tion in decision-making process pertaining to the comes for women. use of development funds and investments; and 2) CMCA women’s right to be represented on Village 1. Getting Women to the Negotiations Table Planning Committees (VPC), the CMCA Association, and the OTDF Board. The 2006/07 CMCA negotia- Prior to the 2006/07 CMCA negotiations, decisions tions was a small initial step that ultimately took the were purely made by male leaders without any input people of the CMCA communities to the wider level from the female population or their representatives. of representation in 2012 (Box 1). Box 1. “We Want What the Ok Tedi Women Have!”: Women’s Engagement in the 2006/07 Negotiations The 2006/07 negotiations involved an 18-month process that cost PGK 7 million (US$3.4 million) and utilized independent facilitators and advisers to establish trust and address power asymmetries among stakeholders. Women were only invited to participate midway through the negotiation process when it became apparent that their views and concerns were not being raised. Ok Tedi and independent facilitators were critical in persuading the State and male beneficiaries to include women. Mrs. Ume Wainetti was the sole representative for women and children at the 2006/07 negotiations. A caucus of 20 women helped develop negotiating positions. Independent facilitators worked with the mine’s gender desk to consult women in affected villages, and brought in experience from the Women in Mining project. The rights secured for women included: • Women and Children’s Fund. An allocation of 10 percent of all compensation. • Scholarships. 50 percent of educational scholarships for women and girls. • Family bank accounts. Payments to be made into family bank accounts, not clan accounts. • Representation in governing bodies. This included village planning committees, the 8 regional trusts, and the Board of OTDF. Source: “We Want What the Ok Tedi Women Have!” Guidance from Papua New Guinea on Women’s Engagement in Mining Deals, by Nicholas Menzies and Georgia Harley (J4P Briefing Note, September 2012). How did up to 30 women get to the negotiation example: Women leaders will be represented at all table? One of the outcomes of the 2006/07 Review regions at the Board, Trust, and Village Planning Com- is that the Memorandum of Agreement provided for mittee levels. 3 women representatives from each region: one from the Trust, one from the Village Planning Committee, Between November and December 2012, the final and one regional representative. Clause 5.7 Section regional meetings of the Mine Life Extension were 5.7.3 (b) of the 2006/07 CMCA Memorandum of conducted over five weeks. It involved community Agreement (page 11) stipulates that: leaders who negotiated on behalf of their commu- nities and external observers who were responsible Partnerships between men and women in decision- for reporting on the conduct of the consultation making about the future of the Mine Affected Area, process. The community leaders included 3 women particularly regarding the future development. For representatives per each of the 8 Trust Regions and Papua New Guinea 11 one each for the Six Mine Villages. In essence, the women negotiators secured between 10 to 18.24 final consultation allowed for 9 smaller negotiation percent set-asides for the Women and Children’s teams. This enabled up to 30 CMCA women leaders Fund for their respective region (Table 2). They were to sit at the negotiations table alongside the male supported by independent facilitators and carefully leaders and, most importantly, to fully participate – a watched by independent observers. sharp contrast from the 2006/07 Review. These 30 TABLE 2.  CMCA WOMEN REPRESENTATION AND NEGOTIATED OUTCOMES FOR WOMEN AND CHILDREN’S FUND BY REGION Regional Trust Funds Six Category Lower Middle Nupmo Tutuwe Dudi Manawete Suki Fly Kiwaba Mine Villages Ok Tedi Fly Gogo Total Number 23 21 21 32 18 23 19 16 24 of Negotiators Number of Women 3 3 3 3 3 3 3 3 6 Negotiators % Female 13 14 14 9 16 13 15 18 25 Representation Leader of Bala Kurina Noni Katherine Rebecca Narei Linda Alice Clara Women’s Tedumo Aioge Dukumun Puse Marke Namaro Mulake Kwause Fred Delegation % of Women and Children’s 15.0 12.0 10.0 18.0 18.24 14.0 10.0 12.5 15.0 Fund Source: MLE Regional Meeting No.4, Tabubil, December 2012. How were the women chosen and how represen- negotiators were leaders in their own right and some tative were they? The selection of women leaders to were married to influential male leaders, there was the Mine Life Extension negotiation is based on out- no evidence of elitism. come of the 2006/7 CMCA negotiations described earlier. Current women leaders who were part of 2. Articulating and Prioritizing Women’s Trusts, Village Planning Committees, and the OTDF Needs Board automatically qualified to participate in the MLE negotiations. Women leaders who represented The needs of CMCA women have always equated their regions were presidents and vice presidents with community needs identified by the women of regional women’s associations, and women’s themselves. These wide-ranging needs, documented regional representatives to the Regional Trusts. The in 9 regional action plans, include general education only difference between the 8 Trust Regions and the and literacy; improved education and health facili- Six Mine Villages is that the Six Mine Villages do not ties; increased knowledge and awareness on gender have a “Trust.” As such, one woman represented issues; existence of a resource center in each region; each of the Six Mine Villages bringing the total figure connection by roads, jetties, water transport, and of women negotiators to 30. The Six Mine Villages communication; access to market facilities; access operate under the Star Mountain Women’s Associa- to micro-finance, management, and business skills; tion led by Clara Fred who herself was not present awareness of HIV/AIDS; safe and secure homes during the final MLE meeting. While all the women and communities; self-sufficiency; safe drinking and cooking water; and food security. 12 WOMEN’S ACCESS TO RESOURCES AND VOICE What types of capacity building helped to pre- ming were empowered through their direct partici- pare women to be able to participate? Since the pation in the Women in Mining (WIM) initiative and 2006/07 CMCA negotiations, women have been CMCA Action Plans’ formulation process (Box 2). The participating and benefitting from capacity-building CMCA women leaders sacrificed time with families initiatives. To ensure sustainable and effective utiliza- to actively participate in this process. They brought tion of the Women and Children’s Fund (10 percent a wealth of local knowledge to the forefront of criti- or PGK 101 million), CMCA women leadership mobi- cal discussions, and the needs of their respective lized and began the planning process and documen- communities, which are translated into goals and tation with technical assistance from the Department objectives and are in the 9 respective regional plans of National Planning supported by PNGSDP, OTML, a fulfillment of the 2006/07 CMCA Memorandum and OTDF. Ordinary village women leaders who had of Agreement. had no prior exposure to planning and program- Box 2. The Women in Mining (WIM) Initiative and CMCA Action Plans A parallel and complementary process or preparation was the WIM and CMCA Women and Children’s Action Plans. The strategy employed to address the impacts of mining on communities was developed through the Women in Mining (WIM) Initiative. Prior to the 2003 and 2005 WIM Conferences, most communities impacted by terrestrial mining activities had no voice. Immediately after the 2005 WIM Conference, an inter-agency committee was formed and, with funding support from the World Bank, developed the WIM National Action Plan 2007–2012. This was followed by the development of 9 CMCA Women and Children’s Action Plans 2009–2019. With no prior experience in planning and programming, women leaders from the CMCA regions were active in development of the action plans. Because of their direct participation in the plan formulation process, the women became empowered. The knowledge gained became the building blocks for their effective participation in the decision-making process in their communities. The scheduled periodic reviews of the CMCA (in 2006/07 and the final MLE negotiations in 2012) involved extensive and wide consultations that provided additional opportunities for women to negotiate for resource allocations, which could enable them to fund their development action plans. Source: Authors’ review of documents. The broad yet competing needs identified by the These needs remain valid to date. They were women required prioritizing and sequencing to repeatedly echoed throughout the five weeks of deliver optimal outcomes. Taking into account the negotiations and captured in the record of the 2012 needs of future generations through wise use of negotiations. resources, the women identified five high-impact pri- ority expenditure areas for project design and imple- In addition to the planning and programming mentation: experiences, gaining basic life skills such as computer literacy, typing, and public speaking also empowered 1) Capacity building and institutional strengthening; the women to be more effective negotiators. 2) Infrastructure (feeder roads, water transport, They demonstrated impressive presentation and electricity, and communication); leadership skills in the group discussions. The Dudi 3) Sustainable livelihoods and food security; women, for example, documented their position in a 4) Education and adult literacy; and PowerPoint presentation and were in control of the 5) Health (water and sanitation). discussion as they captured the attention of male leaders. Similarly, women from the Six Mine Villages demonstrated impressive background preparation (such as a thorough review of women’s programs) Papua New Guinea 13 and a great sense of passion in their presentation. The bid for the Women and Children’s Fund for the They contributed positively to the group discussion Dudi region was made at 20 percent, although it was and delivered a very convincing presentation on eventually settled at 15.5 percent. behalf of the Six Mine Villages. Male leaders were very attentive to their presentation. The women leaders demonstrated the following traits of good negotiators: • Confidence, in preparing and making their case, • Respect, which the male leadership reciprocated, • Articulation, resulting from strategizing and practicing what they were going to say, and • Boldness, as the CMCA women were not afraid of taking risks. They weighed their options and they knew that the payoff was worth taking a chance. 3. The 2012 Negotiations Proper It is clear that the women used well-crafted strategies Bala Tedumo (Lower Ok Tedi) making a point. during the 2012 negotiations. Collaboration. The Lower Ok Tedi group, for exam- ple, needed to agree initially on three positions as Preparation. The results of successful projects at the the basis for their group discussions. One of the village and community level spoke for themselves. male leaders was the lead discussant, and everyone The women leaders used these examples to secure was encouraged to contribute their views. Although the men leaders’ support prior to coming to the male leaders dominated the discussions, all were negotiations table. very attentive when the women leaders spoke. Every male leader respected the women leaders and noted Using male advocates. The decision to support an the views of the three women leaders. The women’s increase from 10 percent for women’s and children’s leader, Ms. Bala Tedumo, led the negotiation, using issues at the negotiations table depended on the PowerPoint slides and presented all justifications support of the men who filled the majority of seats for seeking an increase from the OTML offer to an around the table. The negotiations did require some increased 20 percent. The women leaders were men leaders to convince their male colleagues to firm on what they wanted and presented their case support the women’s call for an increase. Male advo- in such a way that the men leaders supported and cacy is a key role in seeking and soliciting support endorsed their request for an increase. Negotiations for the advancement of women and children at the for the Women and Children’s Fund for the Lower Ok community or village level; this role can be secured Tedi Region went into round two. The parties even- by the men becoming sensitized through personal tually agreed to maintain the amount at 15 percent. experiences with regard to tangible project out- comes and impacts (Box 3). Evidence. The women leaders demonstrated that the outputs of their programs and projects were their What barriers did women face while negotiating? strongest evidence. In this sense, they saw no need Even though in 2012 the men still outnumbered to be overly aggressive at the negotiations table in the women at the negotiations table, there is no seeking an increase of the 10 percent because the evidence to indicate that the women encountered programs and projects currently funded and imple- the same level of initial resistance in 2006/07 as Ms. mented have had a positive impact at the village and Wainetti described in Box 4. The barriers women community levels. The Dudi women’s representative, leaders faced while negotiating were more about for example, using a PowerPoint presentation, dem- personalities or character than anything else. This onstrated the achievements of the projects targeted in turn affected the decision on the increase the toward the benefit of the Dudi community at large. women would receive. However, it is important to 14 WOMEN’S ACCESS TO RESOURCES AND VOICE Box 3. Katherine Puse’s Strategy of Effective Engagement with Village Men Katherine Puse, President for Kiunga Rural Local-Level Government Women’s Association and President for Tutuwe Women’s Association, came to the MLE Meeting No. 4 in December 2012 being well prepared to negotiate a better package for the women and children of her region. She was convinced that her women had done their homework in the past years through the various women’s and children’s programs that were implemented with technical assistance from OTDF. Her strategy applied was effective engagement of the village men, especially through displaying the products of the new ways of cooking, baking, or sewing. Such skills are new in the communities, and for many men it is a joy to experience change. Katherine felt confident and comfortable that she would negotiate for an increase from 10 to 20 percent. However, rather than doing the talking she and her two women colleagues agreed to allow the male leaders to do the negotiating on their behalf. In other words, Katherine and her colleague women leaders formed an alliance with strategic male leaders who did the negotiation on their behalf. Source: Authors’ elaboration based on case studies. point out that the leaders used a strategy similar vocal about women’s and children’s issues and drew to Ms. Wainetti’s (i.e., trying to persuade the male support from them. The Tutuwe leaders negotiated leadership that the set-aside for women was in the long and hard and actually went through five rounds interest of all concerned). Therefore, while the male of negotiation to finally agree on the total package, leaders dominated all the negotiations, that did not which included 18 percent for women and children. necessarily mean that women’s wishes were jeopar- Male leaders from other regions also expressed sup- dized or negated. port for women’s positions, for example: During the 2012 negotiations by the Tutuwe delega- Men leaders decided that women and children were tion, for example, only two women leaders were able important and therefore increased the women and chil- to contribute at the negotiations table. The entire dren’s proportion from 10 percent to 15 percent (James discussion was conducted in the local language. Assan, Lower Ok Tedi Trust Chairman). Apart from verbal communication, there were also a Women in our community play a vital role in develop- lot of hand gestures, heads nodding or shaking, and ment. The funds that will come through the Women and facial expressions and hissing sounds of disagree- Children’s Fund under the MLE will benefit the whole ment. The first round of negotiations began with a community; men, women, boys, and girls will bene- PowerPoint presentation by a male leader who pro- fit. This is the reason why men leaders are supporting vided their counter offer with all the justifications. Women and Children’s Fund increase in their original 10 Women leaders aligned with male leaders who were percent to 20 percent (Kime Sumai Dudi Trust Chairman). Nupmo women’s capacity building programs and outputs. Photograph: Courtesy of OTDF, December 2012. Papua New Guinea 15 Why were the men leaders more convinced in the funds are earmarked for development programs 2012 than in 2006/07? CMCA men were more aimed at building the capacity and skills of women convinced in 2012 than 2006/07 because women through various capacity-building activities, which had mobilized, planned, and prioritized how the are targeted at the community level and mostly money should be utilized in the communities. The conducted onsite within the communities. Women best evidence lies in the 9 Regional Action Plans. demonstrated to the men at the negotiations table Furthermore, while the vast majority of the money the positive impact of such training, which was made (80 percent) is set aside for investment, 20 percent of possible through the funds allocated to them. Box 4. Ume Wainetti’s Experience as a Negotiator in the 2006/07 Negotiations For the groundbreaking 2006/07 negotiations, Mrs. Ume Wainetti credits her effectiveness to a number of factors: education (she had been to school with several of the chief negotiators), national stature (as Chairperson of the National Council of Women) through which she demonstrated substantial leadership and negotiation skills, and local status. In the excerpts below, Mrs. Wainetti’s own words describe how her local status got a seat at the table, how she reached her negotiating position, how women leaders were perceived, and the role that men played. Securing trust. “There was a lot of mistrust at the beginning about my motives and role because I live in Port Moresby. The independent negotiators insisted on having a woman not just from Western Province to participate in the negotiations but a woman from the impacted area. I was able to establish that I am a woman from Dudi Trust area because my mother was from that region.” Advocacy for both men and women in Western Province. “I demonstrated during discussions that I had extensively traveled in Western Province and really wanted to not just advocate for women and children but for the people in general. I also know from experience that if you just push for women’s rights in PNG you will not get support. I also knew that I needed the men’s help to assist the women’s cause.. I did not always advocate only on behalf of women. Most times, the arguments I made were for the community as a whole, and the men recognized that.” How women leaders were prepared. “Thanks to Keystone, Tanorama, and Ok-Tedi, a workshop was organized for consultation with the women leaders, which happened just before the next CMCA meeting. This was the only time women leaders were brought into Tabubil [the township at the base of the mine] for consultation. The women leaders came from all the trust areas plus the Western Provincial Women’s Officer. The workshop went well and we developed a way forward and put together the proposal for me to present to the CMCA team. While we were together, we committed a lot of time praying for the Higher Intervention on our behalf. The women leaders from the various trust areas stayed on to witness the presentation requesting the 10 percent.” How the 10 percent came about. “I do not know why 10 percent in particular was chosen. I knew from the beginning of the workshop that I had to ask for an allocation for women and children to control. I thought of asking for 20 percent but I felt that if I asked for more than 10 percent, the men may not agree. I knew that I had to ask for a portion of the CMCA agreement that the men would find acceptable.” How cultural attitudes helped to convince men. “I used our culture to also influence the decisions. For instance, we have a culture where as woman I can go back to my family to be cared for if my marriage has not worked or – if something goes wrong or someone does something bad to me, I would go back to my brother and appeal for protection and care. When I presented the women’s proposal, I appealed to the men asking on behalf of their mother, wives, sisters, daughters, granddaughters to help us. It was shifting the decision to them, making them responsible to protect our interest and to care for us their women and children. That 10% agreement would not have happened if those men around the table did not agree to it.” Source: Authors’ interview with Ume Wainetti, 2012. 16 WOMEN’S ACCESS TO RESOURCES AND VOICE The women leaders, who were interviewed for the deavored to show that they were not acting only on case studies (Part II), exemplify a multiplicity of lead- their own behalf but on behalf of their communities. ership roles and represent the bold efforts taken And beyond that, they argued that this was impor- during the negotiations to speak directly to the male tant for the men as well – it was in the male leader- leaders about the benefits of having women repre- ship’s self-interest to support the women’s participa- sentatives at these negotiations, such as Rebecca tion and increases in the 10 percent set-asides. Marke from Dudi Trust (Box 5). These women en- Box 5. Rebecca Marke – Dudi Trust Representative In 2011, Rebecca Marke, the Women and Children’s representative on Dudi Trust, participated as a Women and Children’s representative on MLE. She collaborated with women leaders in Dudi to work in partnership with OTDF to ensure that women from her region participated and benefited from the first phase livelihood skill training in sewing. During this training, communities and institutions benefited in terms of payment made for accommodation and training venue. In Rebecca’s view what matters most is that women took back to their respective communities the skills and knowledge to sustain their living; some are now sewing and selling regularly for an income. In 2012 Rebecca, in close partnership with other women leaders from her region, worked in collaboration with OTDF to establish the Dudi Women’s Association and most recently had the Association registered as a non-profit organization. Apart from this, Rebecca was also responsible for mobilizing the people from her region to build a Community Learning Centre in each village. So far, three villages took the initiative to build their Learning Centres out of traditional materials. During the same year, Rebecca played the lead role by working closely with OTDF in organizing the first-ever leadership training conducted for selected leaders throughout the Dudi region. During the MLE negotiations, Rebecca demonstrated the inherent characteristics of a good negotiator through well-presented arguments on behalf of the women and children. For example, she stated: Cash comes and goes. Development and investment continues. The Women and Children’s Plan is for our communities. Women planned for all of you, your wives, your children, your sisters, and your mothers. The total cost of implementing the Plan is far greater than the 10 percent so please come and help us to implement this Plan. When the negotiations became difficult, Rebecca took a bolder stance and tried to get just a little bit more in the increase by presenting a new logic: “You have removed 0.5 percent from development fund and gave to cash payout, so please we would like you to consider removing the 0.5 percent from investment fund and give to us.” The male leadership had no problem in granting her request. As such, the Women and Children’s Fund is 15.5 percent for Dudi region during the MLE-planned period. Source: Authors’ elaboration based on information in the case studies. What is the impact of having up to 30 women across the mine-impacted areas equal numbers of participate in the negotiations? It can be argued women represented women and children, except for that the differences in the numbers (24 women nego- the Six Mine Villages that had one woman leader rep- tiators from the 8 Trust Regions and one each from resenting each village. While the number of women the Six Mine Villages) and the preparatory work that remains constant, the negotiations outcome varies had been done in anticipation of these negotiations across the regions in which only 2 regions did not would have had some impact. There is no clear link- get an increase from the 10 percent. In general, the age between numbers and outcomes (Table 2). All increase in the number of women participating in the Papua New Guinea 17 2012 negotiations led to far better outcomes than at the regional levels, it became obvious that they 2006/07. However, it is important to note that secur- had earned considerable respect from all the stake- ing the regional increase in the women and children’s holders: the community leaders, OTML, PNGSDP, share meant that negotiating women sometimes had and the State. By the time the final negotiations to trade their personal and community interest for came around, the issues had been viewed from all regional positions. directions and exposed often enough due to the thorough consultative work done by the national What additional measures were taken to enhance facilitators. women’s effective participation? The 2012 nego- tiations were enhanced by the addition of indepen- dent national facilitators and nationally recognized independent external observers. Independent national facilitators. Tanorama, a nationally owned consulting company, was engaged to facilitate the MLE negotiations process. The four- person team was led by Ms. Kori Maraga, who visited all 9 CMCA regions over three years, culminating in the final meeting in 2012. Among the 4 facilitators, Ms. Maraga was the most experienced. She was very conversant with the 2007 CMCA Memoran- dum of Agreement since she was the counterpart to the international female consultant in the 2006/07 CMCA Review. During the final 2012 MLE meeting, there were instances when, based on what the facili- Kori Maraga and two women leaders. tators observed, they would diplomatically urge the women to speak up; for example, Ms. Maraga made the following statement during the negotiations: Nationally recognized external observers. As in- MLE process started in 2009. Everyone sitting around dependent and nationally recognized professionals, the table is of equal status (referring to the men and Dr. Beno Boeha and Sir Paul Songo6 added value women leaders). You are here as a leader representing and credibility to the negotiations. They attended your village or community. Speak out and seek under- all the meetings over the preparatory period. They standing on substantive matters. Seek clarifications if also served as witnesses at the signing of the 2012 you are not sure so that you fully understand the infor- CMCA Memorandum of Agreement. Their task was mation that is being disseminated. to ensure that the entire MLE process was conducted according to nine established guiding principles.7 Ms. Maraga moved around the negotiations table They encouraged every leader, including the women and got every individual leader to say “yes” or “no” leaders, to speak freely as everyone in that meeting to whatever proposal was being put on the table for room was a leader representing their people. Sir Paul discussion or decision. In this way, women were able always reminded the leaders of an important direc- to speak their minds. It was also observed that the tive: “You must know where you want to go before CMCA women easily identified with the two women you can decide how to get there.” (PNG Vision 2050) facilitators. The facilitators mingled with the lead- ers during the breaks. This helped to share ideas and issues so as to provide meaningful solutions or alternatives. Being mindful that these facilitators had been on a three-year journey with the leaders 6  Sir Paul Songo had replaced a previous independent observer, Grand Chief Ila Geno in early 2012. 7  Integrity, Respect, Transparency, Responsiveness, Equity, Adequacy of Information, Fairness, Participation, Timeliness. 18 WOMEN’S ACCESS TO RESOURCES AND VOICE C. IMPLEMENTING WHAT THE OK TEDI WOMEN 1. Accessing the funds for women and NEGOTIATED children During the 2006/07 CMCA Review the women were Kori Maraga’s statement summarizes the main chal- excited when the 10 percent Women and Children’s lenges that women face in using the MLE set-aside deal was secured; but even to this day as I have gone for social and economic benefit. It also summarizes onto facilitating the Mine Life Extension consultation, the challenges that women anticipate in accessing women are still confused on how they would access the different income streams, which are substantial their 10 percent or what it all means. Life goes on the (Table 3). It also echoes the findings on significant same as seven years ago since the securing of the deal. implementation gaps that were documented in the Impacts of the 10 percent funding is yet to be felt by research conducted by Menzies and Harley (Box 6). women in general in the mine-impacted communities. During the 2012 negotiations, women leaders were I would be happy for women in the villages to be interviewed with a view to assessing and under- organized and empowered through information standing the sources and causes of this implementa- dissemination and increased decision-making powers. tion gap (interviews and case studies can be found in Part II). Kori Maraga, lead facilitator, MLE negotiations, December 2012. TABLE 3.  OUTCOME OF MLE NEGOTIATION ON BENEFITS PACKAGE FOR WOMEN AND CHILDREN’S FUND Regional Trust Funds Six Mine Category Lower Middle Nupmo Tutuwe Dudi Manawete Suki Fly Kiwaba Villages Ok Tedi Fly Gogo Total Regional Package 108.859 119.427 42.328 58.743 38.762 37.466,609 38.341 37.466 62.684 (PGK millions) Community 55% 84% 60% 47% 77.06% 86% 80% 85% 26% Cash Women & Children’s 15% 12% 10% 18% 18.24% 14% 10% 12.5% 15% Fund Investment 11% 2% 15% 6% 2.35% - 5% 2.5% - Fund Development 19% 2% 15% 29% 2.35% - 5% - 59% Fund Source: MLE Regional Meeting No.4 Facilitator Report; Signed MLE Regional Agreements, Tabubil, December 2012. Content of the 2006/07 CMCA Memorandum of dedicated to projects and investment for women and Agreement. The CMCA women leaders are very children; (c) funds from each of these three sources conversant with the contents of the 2006/07 Memo- will be spent for the purposes of creating a better randum of Agreement pertaining to the 10 percent life for women and children of the impact area; (d) in for the Women and Children’s Fund, which stipulates the first 5 years, the vast majority of the funds will be that (a) funds will come from three different sources used to invest and grow; and (e) there will be total (CMCA Trust, PNGSDP, and the State); (b) from each transparency in how the funds are programmed. of these sources, a minimum of 10 percent will be Papua New Guinea 19 Box 6. “We Want What the Ok Tedi Women Have!”: Women’s Engagement in the 2007 CMCA What was the impact of these gains on CMCA Implementation? There are few visible impacts of CMCA implementation. Village women report minor changes to their own material circumstances. There are no indications of increased entrepreneurship, enhanced participation, or greater bargaining power for women. Research was also unable to identify a cadre of women demonstrating leadership in CMCA implementation, in the same manner as during the negotiation process. While the deal was impressive, implementation has been mixed: • Women and Children’s Fund. From 2007 to 2010, PGK 69.8 million (US$34 million) was set aside, but there is lack of understanding about this fund, what projects have been approved, or the application process. As a result, little has been spent. However, male residents did not express resentment about this fund other than to say that women are not using it. • Scholarships. Fewer than 50 percent of women and girls apply. This is likely due to general factors impeding girls’ education such as cultural norms, long distances, safety concerns, and others. • Family bank accounts. Most men and women reported that women are co-signatories. Women were able to access these accounts better than clan accounts. However, because of high transaction costs to access and manage these accounts, it does not appear to increase family savings. • Representation in governing bodies. Village planning committees only included one woman, rather than two or three as mandated. No women were appointed to the board of OTDF. Source: “We Want What the Ok Tedi Women Have!” Guidance from Papua New Guinea on Women’s Engagement in Mining Deals, by Nicholas Menzies and Georgia Harley (J4P Briefing Note, September 2012). Monetary impact of the MLE. The CMCA women by specific rules applying to those funds. To be able leaders are happy that the MLE provides great to access funds from the CMCA Trust, women and opportunities for continuing flow of funds into their children submit project plans through the Village respective regions. All CMCA women leaders are Planning Committee. If VPC grants approval, the fully aware that their regions will benefit from the project goes to the Trust for funding decision. In State and PNGSDP MLE benefit packages through general, most of the women and children programs development projects that will be delivered with are conducted using money paid into the Trust by funding through the State and PNGSDP. OTML. The CMCA women leaders also understand that to be able to access funds from the State, OTDF Sources of funding: Similarly, with regard to the is the primary organization in charge of setting devel- State funds, CMCA women would use the same pro- opment project priorities to draw down funds from cess that OTDF uses to access the WPPDTF. Money the State on behalf of the CMCA people. from the PNGSDP contribution is held by PNGSDP and spent in consultation with the communities Experience with accessing funds. So far there has through OTFRDP. The women leaders are aware that not been a specific submission for CMCA women. accessing these funds requires OTFRDP to work in The only general submission for seven high-impact close collaboration with PNGSDP to draw down on projects was made by OTDF to WPPDTF on behalf the funds for project implementation on behalf of of the communities that CMCA women are part of. the CMCA women. The seven projects were extracted from Women and Children’s Action Plans 2009-2019 and were Rules and procedures for accessing funds. The endorsed by the OTDF Advisory Committee and women leaders interviewed understand that access funds were released for feasibility studies. These to money from each of the funding sources is guided projects are Nupmo Foot Bridge at Ningerum, Pam- 20 WOMEN’S ACCESS TO RESOURCES AND VOICE penai Access Road, Aiambak to Lake Murray Road, cater for all programs and projects identified in the Kassa Feeder Road, Middle Fly and South Fly Health, Action Plans 2009-2019. They maintained that “The South Fly Relocation, and M.V. Fly Hope (a passen- Women and Children’s Action Plan will benefit the ger vessel). The CMCA women leaders stated that whole region and the children of tomorrow.” Despite the process involved in drawing down funds from examples like the MV Fly Hope (Box 7), many women the CMCA Trust is user friendly, but they state that say that up until now they have not seen tangible accounting for the funds is very challenging. They benefits from the use of their funds because women feel that the 10 percent dedicated to women and and children are still living in the same condition children is insufficient to date because it does not as before. Box 7. MV Fly Hope The MV Fly Hope is a purpose-built vessel designed, constructed, and delivered to the community. The boat operates along the Fly River. It is the output of Goal No.9 in the CMCA Women and Children’s Action Plans 2009– 2019 which states: “Goal: To ensure sustainable infrastructure development to improve the status of women and children; Objective: To increase accessibility to basic services through appropriate infrastructure development; Target: A brand new passenger and cargo river going ferry purchased by 2013.” Photograph: Courtesy of OTDF, December 2012. Remaining challenges. The CMCA women leaders I want change in my village. I can sign the MLE. I would identify the main challenge as that of ensuring the like to see development in my village and Western compensation funds secured under the MLE nego- Province. Please, Ok Tedi, you hear my cry, so that you tiations are properly used to put in place the social win and I also win. But you must do the job first and do and economic infrastructures such as roads, jetties, it properly. We will sign the Agreement. bridges, health centers, health outpost, classrooms, libraries, teacher’s houses, nurse’s houses, and doc- The challenges persist. In her women’s leadership tor’s houses. Their view is that these are critical role, Bala Tedumo recognizes the further steps enablers to effective service delivery. Other com- needed to fully reach the potential of women and munity needs for support are the growing of cash children’s projects (Box 8). The women leaders pro- crops such as rubber and eagle wood; and food posed the following suggestions for a more succes- production such as vegetables, fish, and poultry, sful implementation: which are essential elements to sustaining liveli- hoods. The CMCA women would like to see that all • Capacity development. Institutional capacity these are implemented in an integrated approach to and human resource development are the pri- ensure ownership, continuity, and sustainability. They mary means to ensuring that women are able to believe that it is important for the money to be used manage their associations, take control of the wisely to improve the lives of the CMCA people and Women and Children’s Fund, and manage them to help these people to achieve health and happi- separately from the current Trust arrangement. ness and to sustain their living eventually without • Stakeholder collaboration. Closer collabora- OTML. The CMCA women leaders echoed similar tion and partnership between all stakeholders sentiments to those shared during the MLE negotia- (including OTDF and PNGSDP) would comple- tions by a Tutuwe male leader: ment each other’s efforts in delivering credible projects. Papua New Guinea 21 • Empowering Village Planning Committees that have a proven track record with decision- with project management skills. Empowering making for village projects and are accountable Village Planning Committees to manage small and transparent in participation processes. village projects would ensure project owner- • Ownership and sustainability. The negotiators ship. Women leaders want OTML to start work- would like women’s leadership to be consulted ing first with the Village Planning Committees to ensure ownership and sustainability. Box 8. What Bala Tedumo considers important to fully implement the women’s fund Bala Tedumo, the current CMCA women’s representative on OTDF Board, echoed some of the sentiments that were shared during the MLE negotiations by leaders who desire to work in order to see development in their villages and Western Province. They signed the MLE Agreement so that there is a win-win situation. However, Bala thinks that there is an un-met need in the area of project identification, project documentation, and how to access funding from the three different sources of funds. Coupled with these, she realized that many of the male leaders do not know about the Women and Children’s Action Plans. She says that there is a need to mobilize all the male CMCA leadership and conduct awareness on the Plans and how to translate or extract projects ideas from the Plans and document them as project submissions for funding. She believes that this is critical to ensure that the women and children’s portion of the funds are fully used to implement the Action Plans. Source: Authors’ elaboration based on information in the case studies. 2. Women’s Representation on the While the OTDF Board is the ultimate body to OTDF Board approve and endorse project submissions for the benefit of the communities, the project submissions The legal infrastructure for women’s representation that come up to the OTDF Board would have already on the OTDF Board was set in place in the 2006/07 been approved by the OTDF Advisory Committee CMCA Memorandum of Agreement. In addition to which has representatives from the 9 CMCA regions, representation on governing bodies, a major out- including four women representing the Six Mine come from the 2006/07 Review was that: “OTML, Villages, North Fly, Middle Fly, and South Fly. The with the support of the State and PNGSDP and the OTDF Board will not approve any projects that have Transition Group, will help the communities to set up not been endorsed by the OTDF Advisory Commit- a new entity to give communities within the CMCA tee; hence the Advisory Committee plays a signifi- regions a high level of ownership and decision- cant role and the main forum for the women leaders making power over resources, projects.”8 The new to ensure that their concerns are being addressed. entity referred to above is OTDF trading as the The four Associate Directors are supposed to make OTFRDP. The OTDF, incorporated in April 2002, sure that projects endorsed by the Advisory Com- has four Directors, reflecting current shareholdings. mittee are tabled at the Board meeting for approval. Two Directors representing OTML’s shareholding are employees of OTML, including the Chairman; a third The Advisory Committee is a second tier of gover- representing OTML’s shareholding is from Depart- nance for OTDF that allows for broad community ment of Mineral Policy & Geo-hazard Management; participation. It comprises representation drawn and the fourth is from PNGSDP. Four Associate Direc- from all the geographical areas: 16 members repre- tors nominated by the Advisory Committee sit on the sent the 8 Trust Regions (2 from each region), the Board as non-voting observers. PNG Council of Churches, and the Fly River Pro- vincial Government. The Advisory Committee 8  Section 3.1, Sub-section 3.1.1 of the 2007 CMCA Memorandum of Agreement, p.6. 22 WOMEN’S ACCESS TO RESOURCES AND VOICE nominated 4 of its members (associate directors) of a group of people — men and women with dif- to shadow the 4 formally appointed Board Direc- ferent skills sets and perspectives, different experi- tors to ensure that the decisions taken or voted on ences and backgrounds, and even different lifestyles are in accordance with the wishes of the Advisory — when brought together can produce a conducive Committee. The 16-member Trust representation environment where important issues can be debated is drawn from the OTMIAA. The Trusts have agreed or considered in a holistic way: that OTMIAA, when incorporated and having dem- onstrated the capability as a “reputable develop- Women should be more explicit in making the business ment organization,” should take up a shareholding case for their involvement.9 in OTDF. To date, OTMIAA has yet to take up share- holding in OTDF. The ongoing challenge is that this The addition of more women on the OTDF Board provision has not been implemented as evidenced can offer a different approach than a male-only by the current representation on the OTDF Board. Board. Over the five weeks of the MLE negotiations, Secondly, the non-implementation brings into ques- several CMCA women (including the 30 women tion the original intent of establishing OTDF, since leaders) were interviewed and asked the question, the ownership and decision-making power is still in “Are you content with having just one woman rep- the hands of OTML, PNGSDP, and the State. resentative on the OTDF Board?” All 30 women leaders answered, “No.” They want to increase the The real issue is about improving OTDF performance number to 2 or 3 women representatives. The 30 and promoting equal opportunity for CMCA women. women leaders represent the voices of the major- The strong business case for CMCA women on the ity, the marginalized and underprivileged back in the OTDF Board goes beyond gender quotas. More villages. They spoke loudly and clearly about this importantly, it is about the richness of the OTDF need to increase women’s representation on the Board as a whole, where the combined contribution OTDF Board. Food crops and eagle wood seedlings. Photograph: Courtesy of OTDF, December 2012. 9  “We Want What the Ok Tedi Women Have!” Guidance from Papua New Guinea on Women’s Engagement in Mining Deals, by Nicholas Menzies and Georgia Harley (J4P Briefing Note, September 2012). Papua New Guinea 23 D. FINDINGS, CONCLUSIONS, AND Changes in attitudes and mindsets are happening, RECOMMENDATIONS but the pace is not fast enough. Although there is some evidence that mindsets and attitudes are The entire 2012 MLE negotiations process provided changing, such change is happening more in the insights into the role women played and the determi- communities that are impacted most by the OTML nant factors for success (or lack thereof). The overall operations. Other regions such as the South Fly are conclusion is that significant strides have been made still challenged in terms of achieving acceptable in securing women’s access to voice, representation, basic minimum standards of living such as proper and rights of participation, attributable in large part housing, fresh and safe water, food, education, and to the following intervening changes. health. The true desire for change will surface only when CMCA leadership acknowledge that in 2013 1. Findings and Conclusions and into the future it is not acceptable for a woman to die from pregnancy-related complications or for a Higher level of education attainment enhances 10–15 year old child not to be in school. women’s leadership role. Throughout the entire negotiations period, many women leaders spoke Implementation of the 2007 CMCA provisions eloquently on development issues affecting women, remains a challenge. The implementation of the children, or the region as a whole. There were also 2007 CMCA provisions remains a major challenge for many women who knew the issues but remained several reasons, including lack of awareness about silent or spoke through their regional women’s rep- the contents of the plans, lack of institutional and resentatives. Through the interviews, it became clear human resource capacity, lack of political will and that those who spoke out were women leaders who support, and the difficulties of physical and geo- have attained Grade 10 and above and had some graphical access to some of the communities.10 A technical training. major finding from the interviews conducted during the 2012 negotiations was that a majority of the Level of preparedness and relationship building women leaders were not fully aware of the total con- are conducive to effective negotiations. Quality tents of the 2007 CMCA, except for the section that time was not invested in planning and preparing the speaks of the Women and Children’s Fund. Further- women at large for the negotiations. However, most more, an ongoing challenge that has grown bigger of the women leaders had continuously attended is how and on what to wisely spend the money. The all the regional MLE meetings over the three years, CMCA Women and Children’s Plan 2009-19 offers a and therefore were familiar with the issues in addi- window of opportunity to allow the Plan to dictate tion to knowing the OTML community relations offi- and drive the budget for the priority expenditure cers through these prolonged periods of engage- areas as identified by the CMCA women. ment. This made the environment conducive for the women leaders to participate actively. 2. Recommendations Community interests (regional) often take prece- Based on the above findings, it is recommended that dence over local (village-level) position. In gen- the government and industry stakeholders involved eral, women tend to identify specific needs more in the negotiations and decisions relating to commu- at their locality than at the regional level. However, nities affected by mining operations take the follow- the community interests at the regional level take ing actions: precedence over village-level interests because the benefits offered by OTML are for the region as a Provide independent legal advice to the commu- whole, not just the community. The regional benefits nities. Although OTML provided CMCA community become much smaller at the community level. The leaders with what they considered the best envi- challenge is translating the rewards into tangible ronment-related advice, independent legal advice benefits for everyone in the community. The women was absent. The lawyers represented the State and worked hard to make these connections. 10 “We Want What the Ok Tedi Women Have!” Guidance from Papua New Guinea on Women’s Engagement in Mining Deals, by Nicholas Menzies and Georgia Harley (J4P Briefing Note, September 2012). 24 WOMEN’S ACCESS TO RESOURCES AND VOICE OTML interests. At one point, there was an appeal a special feature of the CMCA Women Leaders from male leadership from the Middle Fly Region: Workshop on designing their Capacity-Building Proj- “Could one of the two Independent Observers con- ect conducted in Kiunga in June 2011. There were sider removing the ‘hat’ of Independent Observer 6 chairmen and 2 vice chairmen, positions held by and put on the ‘hat’ of Advisor to us?” The response men, from 8 Trusts in attendance. The men fully par- from Dr. Beno Boeha: “It is not in our Terms of Refer- ticipated in the discussions. Their presence boosted ence” — implying that they could not switch “hats.” the morale of the women leaders. Involving men The exchange raises the issue of responsibility for leaders should be encouraged to promote a sense of providing independent legal advice. Was it OTML’s community-wide ownership and shared goals among corporate responsibility to advise the CMCA com- men and women. munity leaders to engage an independent legal advisor? Did the State fail the leaders? Or was it Develop a CMCA expenditure strategy. A CMCA the responsibility of the CMCA leadership to work it expenditure strategy should be developed to guide out independently? In general, while there is no evi- OTDF on where to spend CMCA, Women and Chil- dence that the absence of independent legal advice dren’s, and other funds. An expenditure strategy affected the leaders’ determination to secure a good could pinpoint the size of the overall resource enve- bargain for their communities, it is an oversight that lope; the share allocated to different priorities; and needs to be addressed in the future. the allocations within each sector (health, education, infrastructure, re-settlement, food security, agricul- Provide development advice and build the capac- ture, etc.) and across CMCA regions. ity of women leaders to enable their associations to work effectively together to ensure that the devel- Build further capacity for future negotiations. In opment outcomes specified in their action plans are preparation for meaningful participation in future met. Efforts should focus on education, including reviews of the 2006/07 CMCA negotiations, the adult literacy and continued education for girls and community leadership should be trained on the fun- women. In the future, special attention should be damentals of effective negotiating. Building nego- given to continuity in attending lead-up meetings and tiating skills takes time, effort, and energy. After the knowledge sharing prior to the official negotiations. experiences of the 2006/07 CMCA and the 2012 MLE Memorandum of Agreement negotiations, it is Identify and implement strategies to make men critical to help CMCA leadership, particularly women better development partners. There is evidence of leadership, to improve their ability to be more effec- some positive change taking place at the regional tive in negotiations, focusing not only on the mon- level, but little appears to be happening in villages etary aspects but more importantly on how to make or within families, as echoed by CMCA women lead- those monetary aspects impactful through proper ers during the meetings and the interviews. There planning and implementation. is no evidence that women’s empowerment at the regional level is translating into supportive roles for Develop a communication and awareness-raising them in their home villages or within their families. strategy. A communication strategy should be More needs to be done to help with this transition developed as a component of the future 2006/07 so that men can become better development part- CMCA Review process so that it promotes and ners. A necessary long-term agenda should focus on informs the CMCA communities. The strategy should equality, autonomy, and respect, addressing the per- enhance the opportunity to identify the outcomes ceptions of ‘mothers as caregivers’ and ‘fathers as of the 2006/07 CMCA that have not been imple- income earners,’ and the shared roles and responsi- mented and what can be done to ensure they are bilities of men and women in family life. Such efforts implemented. Access to pertinent information at the should be mindful that such an approach may also appropriate time would empower CMCA leadership pose challenges to traditional notions of “father- to make informed decisions. The contents of the hood.” Another strategy to help men become better 2007 CMCA are not fully understood by the CMCA development partners is to engage them in policy women leadership. The same is likely to be the case dialogues and programs that particularly affect with the 2012 outcomes unless a concerted effort is women. This recommendation is not as far-fetched made to communicate, educate, and raise aware- as it seems. Such an engagement took place during ness about all the dimensions of these agreements. Papua New Guinea 25 II. Profiles of Selected Women Negotiators and Independent Facilitator After the first day’s meeting discussions, I was Ume Wainetti was suggested with other women approached by my Dudi Trust representatives and from Western Province to be approached to other trust members expressing their appreciation of come in as advisors on the issues of women and my presence and my contributions to the discussions. children. Ume was a staff member of the Institute of I believe they did not mind me taking the lead in National Affairs/Consultative and Implementation discussions for several reasons, because I had proven Monitoring Council (INA/CIMC) and the National myself to them because of my work with women on the Program Coordinator for the Family and Sexual national and provincial scene. I had been to school with Violence Action Committee. She also came from the some of them and they had respect for me as being impacted area. Once her experience and education competent. And I demonstrated during discussions were recognized as assets, she was no longer just that I had had extensively traveled in Western Province an advisor but a participant and negotiator, charged and really wanted to not just advocate for women and with helping to bring women’s voices to the table. children but for the people in general. Ume Wainetti discusses her role, in her own words, in an interview that follows in this section. Ume Wainetti, 2007 Negotiator. As discussed, by the time of the 2012 CMCA negotiations, there were up to 30 women leaders sitting at the negotiation table alongside men. A. GETTING WOMEN TO THE NEGOTIATING Following the 2006/07 negotiation, more women TABLE – 2006/07 AND 2012 became involved. In particular, 5 women, who served as representatives of different trusts and were among Two milestones were achieved in the 2006/07 CMCA the 24 negotiators from the 8 Trust Regions, are Review. First, women participation was recognized profiled in individual case studies in this section; they in the decision-making process pertaining to the use are Bala Tedumo, Noni Dukumun, Katherine Puse, of development funds and investments. Second, a Rebecca Marke, and Alice Hmen. minimum of 10 percent was dedicated to projects and investment for women and children. During the In addition to the women negotiators, two women 2012 negotiations, the set-asides for women ranged served as facilitators during the negotiations. Kori from 10 to 18.24 percent. This section features Maraga was engaged by Tanorama Consultancy in profiles and interviews 7 women who played key February 2006 to be an independent facilitator in the roles in these achievements during the 2007 and CMCA Review. She joined a team of 6 independent 2012 negotiations. facilitators (5 males and 1 female), who worked in partnership with an independent international Prior to the 2007 CMCA negotiations, decisions organization, The Keystone Centre, USA. [The were purely made by male leaders without any input other female facilitator was Ms. Janice Brewer from from the female population or their representatives. Keystone Centre.] Since then, Kori has been involved At the outset of the negotiations, apart from the in project work while working as a lecturer with the Reverend Anna Bisai, there were no women among PNG Education Institute with the Asian Development the negotiation team. Reverend Anna was involved Bank’s Employment-Oriented Skills Development in her capacity as a representative for the Dudi Trust. Project (EOSDP) from 2000 to 2004. An interview There was no representative for women or children. with Kori Maraga also follows in this section. The independent consultants (Tanorama) wanted to make sure that women and children’s views were represented, which resulted in one additional woman being added – Ume Wainetti. 26 WOMEN’S ACCESS TO RESOURCES AND VOICE B. INTERVIEW WITH UME WAINETTI: for several reasons, because I had proven myself NEGOTIATOR IN THE 2006/07 NEGOTIATIONS to them because of my work with women on the national and provincial scene. I had been to school Ume Wainetti was the General Secretary to the PNG with some of them and they had respect for me as National Council of Women for 6 years, during which being competent. And I demonstrated during dis- time she developed negotiation and lobbying skills. cussions that I had had extensively traveled in West- She was instrumental in the inclusion of women as ern province and really wanted to not just advocate nominated members in the Organic Law on Provin- for women and children but for the people in gen- cial Governments – which included a provision for eral. I also know from experience that if you just push women representatives to be appointed to provin- for women’s rights in PNG you will not get support. cial assemblies, local-level governments, ward com- I also knew that I needed the men’s help to assist mittees, and district budget priorities committees. the women cause. Even when Tanorama went out to It was through this negotiation experience that she inform the communities on the progress of the nego- negotiated the groundbreaking 10 percent set aside tiations and gauge their views, the women asked for women. In her own words, this is her story. that I should come out to the trust areas and meet with them. Unfortunately, I had a job also so I could 1. Garnering trust – as a woman from not give my full attention to this.” Western Province 2. Laying the groundwork – consultation “There was a lot of mistrust at the beginning about with women my motives and role because I live in Port Moresby. The independent negotiators insisted on having a “The theme of the negotiations was Ok Tedi - Our woman not just from Western Province to participate Problem Our Solution. The nation needed Ok Tedi in the negotiations but a woman from the impacted at that time because it was then the largest contribu- area. I was able to establish that I am a woman from tor to the economy and the government needed it Dudi Trust area because my mother was from that because it was the peak of the Bougainville crisis. So region. The chairman of the Dudi Trust at that time the government did not apply its negotiations stance was my uncle (my mother’s cousin). Now I do not as it did for Bougainville. This agreement was cru- hold a PhD or a Master’s degree, just a simple BA in cial for the nation’s economic survival, and we were Social Work from University of Papua New Guinea conscious of that while we were doing the negotia- (UPNG). Even then comparing my experiences and tion. The theme was structured in a way that helps exposure in comparison to those men seated at the me to not blame as it was too late but to look for negotiation table was more than they had. After the solutions for women and children. The first two days first day’s meeting discussions, I was approached by of the meeting I realized from talking to the men that my Dudi Trust representatives and other trust mem- they would use violence to get what they wanted if bers expressing their appreciation of my presence PNGSDP, Ok Tedi, and national government did not and my contributions to the discussions. I believe comply. Threats were issued to the company during they did not mind me taking the lead in discussions the discussions. I did not feel comfortable, but four things I realized though: (a) Ok Tedi and PNGSDP knew who were the individuals that they needed to treat with care to control the outcome of the nego- tiations; (b) PNG Government, PNGSDP, and Ok Tedi were very transparent with information to help us reach a decision; (c) there was genuine concern about plight of women and children; and (d) the men present were ignorant of the gender issues. I took advantage of these observations to lobby the same landowners that the PNGSDP and Ok Tedi used and the sympathetic independent advisors to help me push women and children’s agenda. Women from Tabubil in the upper Ok Tedi Trust area working for Ume Wainetti OTDF fed me with information about their needs and aspirations and warned me about men in the Papua New Guinea 27 negotiations who may oppose me. The Ok Tedi staff Women (NCW), I had travelled extensively to meet (both men and women I went to college with and had with women leaders, all this helped me to compare worked with) provided information. Local women I impacts of Ok Tedi tailings on the environment, which met in markets, streets and shops provided me infor- directly impacted the lives of the people, especially mation when they realized that I was very concerned the women who use the environment to feed their for the welfare of the women and children. Upon a families. My current job as the National Program request from women, I went up the river, accompa- Coordinator for the Family and Sexual Violence Pro- nying the independent scientist visiting villages and grams made me realize too how women and girl chil- talking to women’s groups.” dren are abused because they need to put food on the table for their families because of influx of men 3. Drawing on professional and language and cash readily available. Being an advocate for skills women in my role at the NCW helped me to interact with the women. Then my educational background “I was not an unknown entity. My previous work with and facility with the English language also helped in the Office of the Village Development in the mid- two ways. First, I understood the basics of what was 1970s took me to the remotest areas of the Western being negotiated, because all the negotiations and Province and later with the PNG National Council of discussions were in English. Second, because I was Box 9. Ume Wainetti shares a lesson from her mother: “Education is the best gift” Why was I convinced about the need to fight for those rights for women and children and why including the children with women? We were informed then that the Fly River is dead for 500 years, which is a lifetime for many of us and will not be able to see the majestic beauty of the Fly River for hundreds of years. Mothers and children go together, if you want to help the children you have to help the mothers first. We acknowledge that life is not the same for us in the Fly River and that we needed to look for solutions that will enable us to survive. We had discussions about lack of health and education services, why aid posts have been closed when women and children are dying, why our children are not making it to colleges and tertiary institutions. Why, with so much money, women are still dying at childbirth without a trained health worker present. I saw education as the solution for our survival in the Fly River. We needed to not just educate our children but they need to make grades to get them to colleges and higher institutions. There is need to have an attitude change [with more] focus on human development... My mother once explained to me and my brothers and sisters that we did not have land to inherit like other children and therefore education was her gift to us. I come from a family where my father comes from matrilineal society and my mother is from patrilineal. From my father’s side, I could only inherit from my mother, and from my mother’s side I could only inherit from my father. So, I was left with nothing. Therefore, my mother was very clear to all of us, that education was the best gift she could give us. We could not survive without education that would enable us to be employed or go into businesses. I shared this at the negotiations, encouraging leaders to invest in their children’s education, both boys and girls. But the desire for education, although strong, is not often realized because the educational system is not supportive in the CMCA region. on the intellectual par with the males (the Ok Tedi 4. Advocacy for both men and women in officials as well as the male representatives). This Western Province enabled me to interpret what was being said, the nuances and inconsistencies. For example, there was “And I did not always advocate only on behalf of one time when a very senior official mentioned that women. Most times, the arguments I made were for Ok Tedi was not in control of what was being said by the community as a whole, and the men recognized government, but then he went on to say that he had that. Here are three examples. edited letters from the Minister.” 28 WOMEN’S ACCESS TO RESOURCES AND VOICE people, because they could not live in the Fly River to see the reaction of some men against some of anymore, especially in the South Fly impacted areas. the women who were present. They said the women And that PNGSDP buy land and relocate these present were not recognized women leaders in their people with economic activities. This matter was Trust areas. I believe this was because of the lim- brought to the attention of the PNGSDP Board and ited time, not all women present were recognized the decision was made that PNGSDP would engage women leaders who came. Those rejected, I invited someone to conduct a survey to establish if the the women to sit with me and insisted that the meet- flooding in the South Fly was a direct result of the Ok ing recognize them as women invited to sit in by Tedi tailings or because of the rising sea level.” the women and children’s representative. Men did not see them as women leaders because it all goes “Two, the Minister for Mines came to speak at the back to who is a ‘good woman’. We ignored them. negotiations and presented the package proposed I made it clear to the men that they were not intimi- for the CMCA. The package included a portion of dating me.” land that Ok Tedi was using to stockpile tailings, they wanted the CMCA team to agree for Ok Tedi 6. How the 10 percent came about to continue to use this land and recommend that the CMCA endorse that agreement. I spoke up against “I do not know why 10 percent in particular was it, suggesting that Ok Tedi negotiated that with the chosen. I knew from the beginning of the workshop specific landowners, because the current mandate that I had to ask for an allocation for women and for negotiations did not include that land. Instead children to control. I thought of asking for 20 per- of the men arguing with me for interfering on some- cent but I felt that if I asked for more, the men may thing that was not a woman’s issue, they realized that not agree. I knew that I had to ask for a portion of I was working with them.” the CMCA that the men would find acceptable. Ten percent was to be given from all trusts and PNGSDP “Three, I tried to gender sensitize the men, using from the monies held in trust for Western Province by human rights approach and drawing on examples the PNG Government. But the details made sure this of the lives of women evident in prostitution, poor was very inclusive: health, uneducated; we did not have to look far to see examples. In doing this advocacy, I was draw- • Include villages (women and children) that did ing on my skills from past experiences where I had not participate in the CMCA. worked for women; I was deeply convinced that we • Bank accounts to be opened for women, where had to protect the rights of women and children.” their funds would be deposited so men do not misuse them. 5. Initial hostility toward women leaders • Include the displaced women and children on Daru Island. “Thanks to Keystone, Tanorama, and Ok Tedi, a • That PNGSDP conducted a survey on silting workshop was organized for consultation with the in the South Fly and if Ok Tedi is responsible women leaders which happened just before the next for the flooding, etc. PNGSDP would secure CMCA meeting.11 This was the only time women land and resettle the people with economic leaders were brought into Tabubil for consultation. activities. The women leaders came from all the Trust areas • Three women to sit on boards of the trusts. including the Western Provincial Women’s Officer. Other women can also be appointed beside The workshop went well and we developed a way these three reserve positions. But that is not forward and put together the proposal for me to happening on a widespread basis. present to the CMCA team. While we were together • Women to be included in any future CMCA we committed a lot of time praying for the Higher negotiations and in the Board of Trustees.” Intervention on our behalf. The women leaders from the various trust areas stayed on to witness the pre- sentation requesting the 10 percent. I was shocked 11 Keystone, Tanorama and the international and local independent facilitators. Papua New Guinea 29 7. How cultural attitudes helped (but also 9. Lessons from the experience hindered) • Resources. “I am not sure that the lessons “I used our culture to also influence the decisions. For from Ok Tedi are being applied. Every road in instance, we have a culture where as woman I can go this country is being built to bring in the LNG back to my family to be cared for if my marriage has resources. But no feeder roads are being built not worked; or if something goes wrong or someone to help the people. Every ship along the Fly does something bad to me, I would go back to my River is bringing in resources for Ok Tedi and brother and appeal for protection and care. When I brings out copper. But no ships on the river for presented the women’s proposal, I appealed to the people. At least the women bought a boat men asking on behalf of their mother, wives, sisters, with some of the proceeds of their 10 percent. daughters, and granddaughters to help us. It was The large amounts of money which our men are shifting the decision to them, making them respon- earning they seem to use to traffic in women sible to protect our interest and to care for us, their and acquire more wives and diseases.” women and children. That 10 percent agreement • Lack of focus on youth. “We have a very big would not have happened if those men around the young adult population in the province. Ado- table did not agree to it. Drawing on this culture, I lescent girls are the most vulnerable. A very appeal to them and engage their support – saying, large percentage of young people, ages 0 to this is what I need for women and children, and I 21; and girls now tend to start having babies need your support.” as early as 13 or 14 which is now adding to the problem. Programs for youth are important. 8. Implementation has fallen short of But I believe that our approach should be to expectations start controlling our population growth before it gets out of hand. Community Development, “PNGSDP agreed to resettle these displaced people the responsible PNG government department with economic activity, following a study that had for youth, and we have a PNG Youth Commis- been done to show that the cause of regular flooding sion, but there are no programs developed in the area was from the mine. Unfortunately, this has apart from sports for the young people. Gen- not happened yet. No one holds PNGSDP account- erally speaking, there is no funding for youth able. Everyone is concentrating on the financial programs.” side of the agreement, the money, but others are • Environmental protection. “Studies showed not being implemented. The Women and Children’s that the Fly River is dead for the next 500 years. proposal requested that a strategy be developed to I asked why a tailings dam cannot be built so guide development for women and children and that dumping into the Fly River would stop. I was the first phase would be to mobilize the women – given an excuse of shifting soil, unstable under- this included developing their literacy capacity, orga- ground soil that makes it impossible to build nizing them into groups, etc. and providing trainings such a dam, yet I did wonder with all the latest that would enable women to make informed deci- engineering knowledge why a solution cannot sions. We requested that while this was happening be found. The population of the Island was the 10 percent should be invested to multiply so originally 500, and has now mushroomed to that we have continuous cash support. The govern- between 12,000 and 15,000. TB and HIV and ment officer from National Planning and Monitor- other diseases are rampant. Fishing is the only ing was engaged to develop individual trust plans economic activity, but fish stocks have declined – 9 individual trusts, instead of one comprehensive sharply. Barramundy needs to go up the Fly development strategy. The individual agreement River to breed. Efforts at fish farming failed mis- was what Ok Tedi was doing before, and I suppose erably. Sago, the stable crop is not safe to eat that was the easiest thing to do. Instead of meetings in some areas anymore and in some areas the with women in the province, the women representa- production has been reduced. All other tribu- tives are often required to come to Port Moresby for taries are connected to the Fly River and once meetings. These meetings are organized by OTDF a month a tidal wave (ibuwo) goes up the Fly and PNGSDP. Women still ask what is happening since many have not seen the benefits.” 30 WOMEN’S ACCESS TO RESOURCES AND VOICE River, which takes fish, etc. for breeding in the 10. Looking ahead – good agreement – need Fly River; so the impacts from the Ok Tedi tail- to avoid bad implementation ings do affect the whole province. I understand that studies were done before the mine was “The 10 percent is a good thing because it gives open but many of us have not seen the studies us the opportunity to see how women can develop and I do not understand why these studies have themselves. It is a way to legally put them in charge. not been utilized to help the people.” It puts them in a situation where no government • Government policies. “The biggest problem is authority can say or tell them, ‘Sorry, there is no that the government is not making decisions in money for your project’. It gives them a positive support of the people. Everything is just being feeling. And they have done some good things taken out. Everything is being extracted. Noth- to help the community – they have bought a boat, ing concrete is put back in. The question that providing much needed transportation, trade stores, needs to be asked is, with the latest technology etc. Women have their own accounts. They have and the latest engineering, why is government control of their own resources. For the first time in not asking SDP, who owns the mine, not to put the Manawete area, women have their own resource the tailings elsewhere? What is the excuse for centre.” still dumping the tailings into the river? I worked for the village development committee after “But now we need to go back to the basics, of how graduating and I travelled a lot to the region. women can organize themselves. How can they I saw huge lakes which do not exist anymore. think and plan for the possibility of girls’ high schools People wake up with nothing to eat. We are in the province? Higher education for girls? How can getting to a point where even the money that we use these settlements to bring about a change in is being given to help women and children will attitude? A move away from the village attitude and not help, because of the severe environmental grab the opportunity to use royalties for community degradation.” development? To ensure that this does not happen • Leadership. “This was the origin of the prob- again, we need to: (a) deliver capacity for women; lem. When local leaders were pushing for the (b) listen to what the women say; (c) design pro- mine to be closed, government officers went grams with/for them. We have to move away from from village to village and collected signatures the ‘know what women want – for their families and in support of continuation. It did not matter children’ – but really listen and understand and, with who signed – women, children – as long as they their cooperation, develop programs and projects. could prove they were members of the village. The 10 percent was initially negotiated for women That is what brought about the need to renego- to use as their contribution to improve the lives and tiate. We need strong women leaders as well in well-being of women and children. The approach the province who can advocate.” should remain, but it should be looked at in a more • Human rights. “When government does these holistic way. There should be one comprehensive negotiations, human rights are not taken into strategy for all the Trusts for scholarships for girls, consideration. Right from the negotiation hospitals and clinics, research on women’s and com- stage, before any major projects are carried munity issues, and services for the community and out, women must be involved and consulted.” food security. Having separate plans for each Trust • NGOs. “In Western Province, there is a lack of complicates implementation.” NGOs who could be activists on these issues.” “In other words, it should be used, not as an end itself or as a cap, but as funding that can leverage additional funding and resources and in-kind contri- butions to address the needs of women and children in a way that benefits the entire community. And men should be heavily involved in this process.” Papua New Guinea 31 C. PROFILES: FIVE WOMEN NEGOTIATORS FROM THE 2012 NEGOTIATIONS Bala Tedumo, representing Lower Ok Tedi Marital Status Married. One child Highest Education Level 10th Grade; Diploma in Human Resource Management Work Experience OTML 7 years; currently Community Relations Officer OTDF Current Leadership Role CMCA Women’s representative on OTDF Board Leadership Training Received OTDF leadership training and basic computer skills Bala’s role and how she became recognized as a Bala’s expectations from the Agreement. Bala leader. Bala was instrumental in establishing the opposes Ok Tedi MLE because the environmental Lower Ok Tedi Nima Ara Women’s Association, which impact will be additional to what her people are cur- was registered in 2007. In 2008, she was elected rently experiencing. She says that the biggest chal- President of the Association, a position she held for lenge facing her community in the next 5 to 10 years 3 years. During her term as President, her submission is mitigating the environmental impact and translat- for a Resource Centre for Lower Ok Tedi Women was ing the compensation funds into meaningful impact approved by the Trust and she ensured that a proper projects for the benefit of the entire community. Bala office was set up with an Association logo, letter- came to the MLE Meeting No. 4 well prepared and head, and common seal. Bala continues to work with confident, having been a member of the women’s the current Association leadership as a mentor and caucus in the 2006/07 CMCA, apart from being in advisor. When asked what her views are regarding the OTDF and CMCA Leadership. Bala considered the 2007 CMCA, particularly women’s representation that the biggest challenge facing CMCA women in on the OTDF Board, she said that she is not content the MLE negotiation was the fact that there are less with having just one representative. She believes or no tangible benefits accruing to the CMCA com- there is a need for women to be better represented munities at the village level. Hence, it was a difficult where their voices are heard at the highest level. task to convince male leadership to agree to increase the 10 percent funding. What Bala considers important to fully imple- ment the women’s fund. Bala echoed some of the shared sentiments regarding development in other villages and the Western Province. Bala thinks that there is an unmet need in the area of project identification and documentation and how to access funding from the three different sources of funds. Coupled with these, she realizes that many of the male leaders do not know about the Women and Children’s Action Plans. She says that there is a need to mobilize the CMCA male leadership and con- duct awareness on the Plans and how to translate or extract project ideas from the Plans as project sub- Bala signing the Agreement. missions for funding. She believes that this is critical to ensure that the Women and Children’s Funds are fully used to implement the Action Plans. 32 Noni Dukumun, representing Nupmo Marital Status Married. Four Children Highest Education Level 6th Grade Work Experience Nursing at Catholic Mission Health Center Trustee, Nupmo Trust; President, Nupmo Women’s Association; Current Leadership Role Women’s Representative, Star Mountains Local Government Leadership Training Received OTDF leadership training and basic computer skills Noni’s role and how she became recognized being).” However, in addressing the real challenge as a leader. Noni was part of the group of women of translating compensation funds into meaningful leaders who developed the CMCA Women and Chil- impact projects for the benefit of the entire commu- dren’s Action Plans. She was instrumental in estab- nity, Noni says: “The biggest challenge for my com- lishing the Nupmo Women’s Association in 2008, and munity in the next five to ten years is mother and served as interim president for almost 4 years until children well-being, good education, good health 2012, when new elections were called and she was care, and good business opportunity.” When asked elected president. She worked closely with OTDF in about her aspirations in 10 to 20 years from now, facilitating skills training in sewing and cooking for Noni replied: “My children to excel in education and women of her region. The Nupmo Women’s Asso- go into doing business.” ciation is now a registered non-profit organization. Although Noni played a critical role during the 2012 negotiations, the women and children of her region did not get an increase in the mine benefit package. Noni’s view is that the minimum of 10 percent is insufficient to implement the Women and Children’s Action Plans. However, they have seen some tangi- ble benefits, such as basic sewing, cooking, registra- tion of the Women’s Association, and purchase of a computer for their office and a bus for transportation. During the MLE Meeting No.4, Noni spoke directly to the chief executive officer (CEO) for OTDF: “Under the 2007 MoA Clause 5.7, Women and Chil- dren’s 10 percent also comes from the State. That Noni signing the Agreement. means from the K 325 million, K 32.5 million is for women and children. Now, show us or tell us where this money is or how have you (OTDF) used this money.” The response from OTDF CEO was, “Your money is What Noni considers important to fully imple- safe.” When asked about her views regarding women’s ment the women’s fund. Noni came to the MLE representation on the OTDF Board she said: “We must Meeting No. 4 not very well prepared to negotiate. have two representatives. I am not comfortable with She says there was no training on how to negoti- having just one women representative. We need to ate and she wished she was better prepared. She increase the number so that our voices are heard by says that she was selected to attend the MLE meet- people who make decisions.” ing because she is currently a recognized women’s leader. Noni considered that the biggest challenge Noni’s expectations from the Agreement. facing CMCA women in the MLE negotiation was the Noni is in favor of the Ok Tedi MLE because of the uncertainty of male leadership support. monetary opportunities. She says: “I favor MLE because I will receive more benefits in future like school fees, and kisim gutpla sindaun (improve well- Papua New Guinea 33 Katherine Puse, representing Tutuwe Marital Status Widowed. One child Highest Education Level 6th Grade; Technical training as a nurse Department of Health (10 yrs.); Australian Aid Program – Basic Education Work Experience Development Program – North Fly District (5 yrs.) President, Kiunga Rural Local Level Government Women’s Association (25 yrs.); Current Leadership Role President, Tutuwe Women’s Association since 2008 Leadership Training Received OTDF leadership training and basic computer skills Katherine’s role and how she became recognized Plans, which she sees as “the life for everyone.” She as a leader. Katherine was instrumental in establish- has not seen many tangible benefits from the funds ing the Tutuwe Women’s Association, registered in because women and children are still living as before. 2012 as a non-profit organization. During her first Katherine’s views regarding women’s representation term as president, she worked closely with OTDF are that, “We need at least two women representa- in facilitating skills training in sewing, cooking, and tives on the OTDF Board to support each other and basic computer training. The evidence of her leader- ensure that our voices are heard. They can also influ- ship role was manifested in the outcome for Tutuwe – ence decisions that impact our lives for the better.” the male leadership agreed to increase the women’s fund from 10 to 15 percent because they had seen Katherine’s expectations from the Agreement. the output of the women’s programs. Katherine is in favor of Ok Tedi MLE because she is convinced that it presents an opportunity to improve women’s status in terms of strengthening their capac- ities to sustain themselves beyond mine closure. She says: “We women want to be development partners in our own communities.” She acknowledges that the biggest challenge facing her community in the next five to ten years is mitigating environmental impacts and translating compensation funds into meaningful impact projects for the community. Katherine came to the MLE Meeting No. 4 well prepared to negoti- ate a better package for women and children. She was convinced that women had done their home- work through the various programs that were imple- mented with technical assistance from OTDF. Their strategy was effective engagement of village men, Katherine Puse especially through displaying the products of the new ways of cooking, baking, or sewing. Such skills are new in the communities and, for many men, rep- resent a positive experience toward change. Kath- Katherine’s knowledge about the 2007 CMCA. erine felt confident and comfortable that she would Katherine understands the five main points of the negotiate for an increase from 10 to 20 percent. 2007 CMCA.12 She has very strong views about the However, rather than doing the talking, she and the minimum of 10 percent for women and children; that two other women leaders agreed to allow the male proportion is insufficient to cater for all programs/ leaders to negotiate on their behalf. In other words, projects stated in the Women and Children’s Action they formed a strategic alliance with male leaders. 12 Funds will come from three different sources: CMCA Trust, PNGSDP, and the State. From each of these sources, a minimum of 10 percent will be dedicated to projects and investment for women and children. All funds from each of these three sources will be spent for the pur- pose of creating a better life for women and children in the impact area. In the first 5 years , the vast majority of the funds will be used to invest and grow. There will be total transparency in how the funds are used and invested. 34 WOMEN’S ACCESS TO RESOURCES AND VOICE Rebecca Marke, representing Dudi Marital Status Married. Five children Highest Education Level 10th Grade; Certificate in Office Management and Procedures Work Experience Fly River Provincial Gov’t as Executive Secretary; Project Assistant, OTDF Chairwoman ECPNG 6 Years; Women & Children’s Representative on Dudi Trust; Current Leadership Role Women & Children’s Representative on MLE Leadership Training Received OTDF leadership training and basic computer skills Rebecca’s role and how she became recognized as a leader. In 2011, Rebecca collaborated with women leaders in Dudi to work with OTDF to ensure that women from her region participated and ben- efited from the first-phase livelihood skills training in sewing. During this training, communities and institutions benefited in terms of payment made for accommodation and training venue. In Rebecca’s view, what matters most is that women returned to their communities with the skills and knowledge to sustain their living; some are now sewing and sell- ing regularly for income. In 2012, Rebecca and other women leaders from her region worked in collabo- ration with OTDF to establish the Dudi Women’s Association, now registered as a non-profit organi- zation. Rebecca was also responsible for mobilizing Rebecca making a point during the MLE Negotiation. the people from her region to build a Community Learning Centre in each village. So far, three villages took the initiative to build their Learning Centres out of traditional materials. During the same year, The total cost of implementing the Plan is far greater Rebecca played the lead role by working closely with than the 10 percent, so please come and help us to OTDF in organizing the first-ever leadership training implement this Plan. conducted for selected leaders throughout the Dudi region. Dudi region is accessible by water trans- When the negotiation became difficult, Rebecca was port. To ensure that women leaders have the means not afraid to venture outside of the box and ask for to move around the region for outreach programs an increase. She said: “You have removed 0.5 percent and also to assist those in need for medical services, from Development Fund and gave to Cash Payout, Rebecca again mobilized support for the women to so please we would like you to consider removing purchase water and sea transport. These boats are the 0.5 percent from Investment Fund and give to currently being used for development and outreach us.” Her request was granted. The male leadership work within the Dudi region. had no problem with this request. The Women and Children’s Fund is 15.5 percent for Dudi region. During the MLE negotiations, Rebecca demon- Rebecca’s views regarding women’s representation strated characteristics of a good negotiator through under the 2007 CMCA Agreement are that: “We well-presented arguments. For example, she stated: have 3 regions: North Fly, Middle Fly, and South Fly; we should have 3 women representatives on the Cash comes and goes. Development and investment OTFRDP Board to support each other and ensure continues. The Women and Children’s Plan is for our that our voices are heard.” communities. Women planned for all of you, your wives, your children, your sisters, and your mothers. Papua New Guinea 35 Rebecca’s expectations from the Agreement. • Improved standard housing, rural water, and Rebecca is in favor of Ok Tedi MLE for the same rea- electricity supply for Dudi communities. sons as several other women leaders – the opportu- • Long-term business spinoff. Investment oppor- nity to improve women’s status in terms of building tunities in housing estates (i.e., office complex and strengthening their capacities to sustain them- and housing units for lease in Daru and Kiunga). selves beyond mine closure. Since 2008, Rebecca • Establishment of Dudi Association (Dudi Hold- has been part of the Women Leadership that devel- ing Ltd). oped the Dudi Women and Children’s Action Plans • OTFRDP Medium-Term Development Plan 2009-2019 and also the CMCA Women’s Capacity needs to reflect Dudi region’s priorities. Building Project in 2011. Rebecca expects to see the • Long-term development strategy for the future following development taking place: that reaches beyond MLE. • Human resource development. Training, trade Looking forward 10 to 20 years’ time, Rebecca says: traineeship skills, computer literacy, and man- “My aspiration is to fully implement all that is con- agement capacity by OTML while other stake- tained in the Women and Children’s Action Plans holders support. 2009-2019. I believe that we are progressing slowly • Economic development for Dudi communi- but surely towards realizing our Vision of ‘Harmoni- ties in terms of agriculture (high breed rubber, ous and Prosperous Living in Communities’.” eaglewood) and livestock (fish farming, croco- dile farming, deer farming, and poultry). Rural water supply and housing. Photograph: Courtesy of OTDF, December 2012. 36 WOMEN’S ACCESS TO RESOURCES AND VOICE Alice Hmen, representing Tutuwe Marital Status Married. Four children Highest Education Level 10th Grade Work Experience Nursing at Catholic Mission Health Center Women’s Representative on Tutuwe Trust; Vice President Tutuwe Women’s Current Leadership Role Association Leadership Training Received OTDF leadership training and basic computer skills Alice’s role and how she became recognized as a leader. Alice has participated in major Planning Work- shops for the development of the CMCA Women and Children’s Action Plans, in addition to attend- ing two major Women in Mining Conferences in PNG. The experiences and exposure gained through these workshops, meetings, and conferences have enriched her role as a women’s leader. Alice lives in her community and is engaged in subsistence farm- ing to sustain her family. For the past eleven years, she has been self-employed in income-generating activities — growing and tapping rubber and sewing clothes to sell — earning between PGK 400–500 on a fortnightly basis. With such income, Alice is able to purchase some brown and white goods to improve her life in the village. She owns her house, which is a combination of traditional and permanent material Alice Hmen making a point during the MLE Negotiation. and is built on her husband’s land. Her major asset is Photograph: Courtesy of OTDF, December 2012. a sewing machine. Alice has been actively involved in serving her people since 2008 and has been part of the team that developed the CMCA Women and Children’s Action Plans 2009-2019. supportive and a community leader. Alice says: “My husband supports me in the work I do for our women Alice’s expectations from the Agreement. Alice and children, because he believes that the outcomes worked very closely with women leaders from her of our initiatives brings change to the lives of our region to ensure that Tutuwe women received ordinary people. We both support one another in training and awareness programs. Types of train- serving our people and community.” ing programs, which OTDF facilitated, include skills training in sewing and cooking and basic computer literacy. Like the other women leaders who partici- pated in the negotiations, Alice believes there is a need to increase women’s representation on the OTDF Board. Under the MLE, Alice expects to see women progressing with help from Village Planning Committees and Trusts by approving more tangible and viable projects for her region. She also expects to see change in terms of increase in the number of women representation on the OTDF Board from the current one woman representative on the Advisory Committee. Alice has been a successful women leader because her husband Kerry Krori was very Papua New Guinea 37 D. INTERVIEW WITH KORI MARAGA: FACILITATOR FOR THE 2007 AND 2012 REVIEWS In Kori Maraga’s current positions as woman leader, 1. Learning on the job consultant, and technical officer, she is very knowl- edgeable on the 2007 CMCA. She considers that “When I joined Tanorama for the CMCA Review in the CMCA women have achieved three major mile- 2006, I had no idea what it was all about. The CMCA stones since the signing of the Agreement in 2007: Review and all that I was involved in became a mis- (a) participating in discussions and decision-making; sion for me. I knew God played a big part in directing (b) participating in planning and implementation of me to Tanorama. To hear and see the lives of people community projects; and (c) exposing women to the being impacted by the OTML and to try to imag- corporate world outside of their communities: ine myself in their shoes, to see women and children who had to struggle to live each day in the environ- I have been fortunate to have worked with men who ment they once enjoyed, changed my whole outlook have accepted me and valued my contributions and on life. I thanked God for all that. When I joined the respected me for who I am – a woman and a partner CMCA Review in 2006, I saw it as another opportu- in making decisions and implementing those decisions. nity to be involved in another project. I had no idea More importantly, God plays a big part in my life and I was getting into a very unique and heart-changing my biggest challenge has been trying to get people experience. I had no idea of what I would find or to see that life is not about getting what you want but see in the mine-impacted regions. I never thought giving in return for what you expect from others. I would be traveling the length of the Fly River, but the project provided me that opportunity to do that. In the following interview, she describes her expe- It’s an experience I will always treasure in my heart. riences, assesses the outcomes of the two negotia- It changed my life, it blessed me, and it enriched tions, and offers her views on the challenges facing me and empowered me as a woman. I was a woman women in the communities. In her own words, she going into a society where I had no knowledge of shares some of the pertinent issues affecting the their culture and customs. I was initially assigned CMCA communities and workable strategies. to facilitate the review meetings in the Middle Fly Region, Suki Fly Gogo, and the Six Mine Villages. I saw that at the Regional Meetings, it was an all-male dominated gathering. In respect of male status in the communities, we carefully reminded the male repre- sentatives to ensure they represented the views of everyone, including women and children.” 2. What motivates and drives Kori “God. I see my job as God’s mission for me. My mis- sion is to give, to bless others from how God blesses me. At the end of the day, I feel that in whatever way I have given of myself will one day bring about a positive change in the lives of people for the better. It is not about material wealth but the quality of life.” Kori Maraga 3. First impressions “My first impression, in the very first village meet- ing I conducted in Pukaduka in the Suki Fly Gogo Region, was that women were almost too frightened to venture close to the meeting area. They sat under the houses and were happy to be observers from a distance. This shocked me and saddened me. Here I was, a woman facilitating a village meeting where 38 WOMEN’S ACCESS TO RESOURCES AND VOICE only men were going to discuss very important issues 4. Impacts of the 10 percent funds are yet affecting women and children. In that first meeting I to be felt asked if the women could come close to me as I felt nervous standing in front of all the men. That for me “During the 2006/2007 CMCA Review, the women was a break through. The men (I think out of respect were excited when the 10 percent Women and Chil- for a woman from another place) started urging the dren’s Fund was secured; but even to this day, as I women to come forward and join the meeting. I have gone onto facilitating the Mine Life Extension have never forgotten that moment. In the successive consultation, women are still confused how they meetings, I would ask women to come sit near me would access their 10 percent or what it all means. before starting the meetings. Later on we were able Life goes on the same as seven years ago since the to convince the men to allow women to sit in the securing of the 10 percent Fund. Impacts of the 10 regional meetings as observers and later asked ques- percent funding is yet to be felt by women in gen- tions. Midway into negotiations, women’s delegation eral in the mine-impacted communities. I would be was established. This was a victory for women.” happy for women in the villages to be organized and empowered through information dissemination and increased decision-making powers. As one woman delegate in the very recent negotiations for MLE expressed: ‘What is there for me (women and chil- dren) if the mine should close? I did not come to this meeting to be a loser. Ok Tedi is a winner and I too must be a winner.’ Yes, they deserve to be winners!” 5. It is not how much is set aside for women, it is how effectively it is managed Kori considers that the biggest challenge facing the CMCA communities in the next five to ten years, assuming that Ok Tedi is granted Mine Life Exten- sion, would be that the CMCA communities are able to live independently of OTML: Seriously recreate self-reliance and go into sustain- Kori Maraga facilitating a male leader responding to issues able community-based projects for their livelihood raised. Photograph: Courtesy of OTML, December 2012. and eventually do away with depending on OTML for everything. Stand up and take ownership of their prob- lems and situations. Leaders need to be more assertive and move away from ‘me’ to ‘we’. With regard to the “My heart ached to see the hardships the women and 2007 MoA Outcomes of the CMCA Review, where a children faced. The long hours women fished in the minimum of 10 percent was dedicated to projects and rivers, the lengthy paddling to their gardens to find investment for women and children, the issue is not sago in the scorching sun and wind and rain. Every- how much, but rather how effectively and efficiently it where we went I always saw their daily struggles and can be managed so that it benefits the target groups, I could never accept that these people were living in who are the women, children, and families in the com- an environment where the giant Ok Tedi mine was. munities. As an Independent Facilitator I had to remain neutral and tough outside; but as a woman, as a mother, and 6. Limited level of preparedness of the CMCA grandmother, I would cry inside. I tried to put myself communities in terms of negotiating a better in their shoes (bare feet). I wrote poems as a way of package for women and children expressing what I thought the people felt about their environment and their lives. To them their environ- “Women in CMCA communities and the mine vil- ment is gone and what they will get will never fairly lages in general, are confused about what and how and justly compensate them for the impacts.” their funds are being used. Women leaders and representatives would need to communicate more Papua New Guinea 39 about how the funds are being used and how it is to be filled. While the CMCA Women and Children’s benefitting them. At the moment, an information Action Plans display many major impact projects, gap exists. Women can still negotiate a better pack- what would benefit the woman with simple needs in age because it is needed as per their Action Plans; the community are basic life skills programs, such as hopefully they would have learnt a lot of lessons health and hygiene, cooking and sewing, food secu- from what has been. Communities have appreciated rity and food preservation, and animal husbandry. and acknowledged CMCA women’s achievement in To the best of my knowledge, there are commit- securing the 10 percent Women and Children’s Fund ments in the current 2007 MoA which have not been in 2007. However, the biggest challenge for the implemented, such as food security projects and women is how changes in the family life can be made housing, which are components of the compensa- from the programs that the Women and Children’s tion package. The most ideal strategy, that could be Fund brings about. If the changes in basic life skills applied to ensure these unmet need commitments become evident in the lives of families in the com- are factored into the new 2012/13 MoA, would be to munities – that would be seen by men as a change implement these projects since funds have already coming from the Women and Children’s Fund.” been committed for these projects under the Village Development Funds.” 7. Expectations as Lead Facilitator during the 2012 Review 10. Decision-making roles that CMCA women play, especially on Trust Boards “It has been 5 to 6 years since the 2006/07 CMCA Review and my expectation is that people from the “These vary from region to region. Some regions are CMCA communities will have the wisdom now from ahead of others as far as project implementation is the experiences and the challenges to assess whether concerned. Secondly, the support women receive they have benefited through sustainable, tangible from their male counterparts also varies. For exam- projects or not and go into negotiations wiser and ple, the northern regions accept women’s roles and being more assertive and be more positive.” see them as equal partners with men in making deci- sions. This is not the same in the southern region and 8. Need to engage women and youth is a major challenge for women leadership.” “While the CMCA women leadership is continuously 11. Unrecognized vision of the CMCA involved in the development process within the women and children for a Harmonious and CMCA region, youth are left out. Section 5.8, Sub- Prosperous Living in the Communities section 5.8.8 of the 2007 CMCA MoA states: ‘The consultation arrangements for the Ok Tedi Fly River “Unfortunately there is not yet any. It is still a long Foundation will specifically recognize the need to way to go. Maybe in another decade I would answer engage women and youth in planning, decision-mak- ‘Yes’. People at the project management level must ing, and implementation of projects.’ Youth in some see the important and crucial role women can play communities have expressed their need to be rep- in community development as a powerful decision- resented at the Regional and Delegates meetings. making force. Women must be involved from the Youth need to be engaged at these meetings just planning to the implementation of their projects. like the women, so that their needs are addressed Though they may be illiterate, not highly educated, specifically. Youth can be involved in integral com- or may not have had the outside exposure, women munity development, food security, and spiritual have through the ages made decisions; they are a development inside their individual communities.” powerful force in community development. 9. What is needed to make the Women 12. Looking Ahead and Children’s Funds work for women and children in the communities? Kori elaborated on the opportunities for the future: “Two things must happen: (a) fresh election of women • CMCA women still have a significant role in leaders for each Regional Women’s Association; and making household decisions. CMCA women (b) community relations positions with OTDF need make many of the decisions that determine a 40 WOMEN’S ACCESS TO RESOURCES AND VOICE household’s participation in the community, including healthcare, educational, and cultural decisions. • As a powerful decision-making force, CMCA women are often well acquainted with the pros and cons of their community, and may be in a good position to analyze how best to improve society. • As members of community development orga- nizations, such as outreach programs, church ministries, or cultural societies, CMCA women can use the knowledge they acquire from household decisions to make a contribution to the future of their regions. • The way CMCA women process information, prioritize, and plan may be highly beneficial to community development. CMCA women work better as collaborators and teammates, making them ideal candidates for community organiza- tions in which decisions must be made together. CMCA women have a holistic view of commu- nity development and can be the key to reduc- ing gender inequality, providing for the needs of women and families. Their CMCA Women and Children’s Action Plans affirm this view. “OTDF in partnership with PNGSDP and the FRPG [Fly River Provincial Government] talk about inno- vative and inspiring plans for development for the impacted communities. I am excited and expectant. I hope that if I should have the opportunity to visit the CMCA communities in 10 years’ time I will see the fruits of all these plans. Only time will tell and only God knows. I feel so blessed that God gave me the opportunity to have been a part of a very unique and life-changing mission.” Papua New Guinea 41 The World Bank 1818 H Street, NW Washington, DC 20433 USA www.worldbank.org www.worldbank.org/wbi