Good Practice Notes Issue no. 22 February 2012 PAPUA NEW GUINEA The Many Benefits of Building Self-Reliance Among Women in Mining and Petroleum Regions P apua New Guinea (PNG) is composed of many socially and culturally distinct tribal groups whose kinship ties are mainly patriarchical. Despite the existence of some matrilineal cultures, in practice, women are afforded far fewer opportunities than men. Out of the 136 countries listed in the UNDP’s gender development index, PNG ranks 124th, placing it in the bottom 10% of countries worldwide. Violence against women is rife, as national statistics demonstrate: two out of three women have experienced domestic violence and 50% have experienced forced sex. The rapid development of extractive industries in PNG has highlighted the inequalities suffered Photo: Sewing training in Tolukuma by women in remote and rural areas. Global The Project The vision of the JSDF evidence suggests that Self-reliance Program for the mining sector is The World Bank Women in Mining (WIM) Women in Mining and gender biased, both in Initiative was launched in 2003 and was Petroleum Areas: terms of the opportunities developed during the implementation of the and the risks it introduces first Mining Sector Technical Assistance Project. “A future of peace and to communities living Several characteristics were noted, not least that financial independence around industrial sites. mining companies were providing many social resulting from improved In PNG, World Bank services, with government being largely absent quality of life reflected experience during the in many cases. At the same time, the industry in the extent to which implementation of is highly transitional, with mines potentially women are able to the first Mining Sector closing and eventually transferring the provision make choices on issues Technical Assistance of services to government. Finally, there was affecting their lives and project confirmed that gender-bias, with women being marginalized. have the means to put men tend to dominate these choices benefit capture During project consultations, it became clear into action.” (jobs, compensation that the sustainable development of these payments, ability to mining communities would not be realized - Task Team Leader influence decision without a dedicated intervention to support the making) while women participation of women. are disproportionally burdened with negative externalities (family Women were not participating in any of the disruption, loss of agriculture land, food community-wide discussions involving men, insecurity, prostitution, sexually transmitted yet were extremely open in expressing their infections-STIs, and domestic violence). Lacking grievances in separate consultation fora. The both authority and voice in their communities, first step in the WIM Initiative was, therefore, women are highly vulnerable to becoming the creation of a safe space where women could trapped in a cycle of declining prospects. voice their needs and discuss the challenges they face. WIM conferences held in 2003 and The Japan Social Development Fund (JSDF) was established in June 2000 by the Government of Japan and the World Bank as a mechanism for providing direct assistance to the poorest and most vulnerable groups in eligible World Bank group member countries. 2005 brought together women representatives from all over the country to hold dialogue with company representatives and Government officials. Women Box 1 - The PNG Five Year National Action identified the priority actions required to mitigate risks Plan for Women in Mining Areas and create opportunities in their communities. Given the remoteness of most mining sites, and the relative absence GOALS: of Government, strong participation was required from 1. Raise the level of general education and literacy to mining companies; following the 2003 WIM conference, improve the status of women each company agreed to set up a gender desk to work 2. Ensure reproductive health services, including directly with community women. Six local WIM action family planning, are accessible, affordable and plans were developed in close consultation with women’s consistent with community values and norms groups and associations in the main mining areas and 3. Prevent or control the incidence of tuberculosis were merged into the Five Year National Action Plan for (TB)/sexually transmitted infections (STIs), Women in the Mining Areas (the Action Plan, see right), particularly HIV/AIDS and to minimize their social which was approved by the Cabinet in December 2009. and economic effects on families and communities 4. Increase the opportunities for women and girls The purpose of the JSDF grant was to pilot to participate in and benefit from the economic, implementation of the Action Plan by providing practical political, cultural and social lives of their assistance to women in mining communities and to begin communities reversing their bleak prospects by increasing their voice, 5. Strengthen women’s associations capacity to agency and capacity. The vision for the JSDF project was operate beyond mine closure to begin creating the foundations for women to assert 6. Ensure that communities are able to sustain their their rights to participate equitably in the development livelihoods of their communities (see Box 1). Social empowerment 7. Mitigate and avoid environmental degradation that had to be accompanied by economic empowerment reduces the quality of life and improved economic independence of women was 8. Promote and maintain safety, security and peace identified as a critical step towards increasing their in mining communities. leverage within the household and their status in society. Additionally, evidence from the mining communities suggested that, when given access to income, women village women - and the greater returns derived from were more likely to prioritize family welfare in their training highly motivated participants - beneficiaries allocation of resources and were less likely to spend were invited to self-select into the project, with the income on alcohol or consumer goods when compared final list being subject to community validation. The to men. Investing in the development of women is an project worked with women’s associations, to build their investment in the development of the community as a capacities and begin creating institutional structures whole. that could continue training younger women after the JSDF project ended. A few spaces on each training The JSDF self-reliance project was implemented with course were left open for unemployed men to join. women in both mining and petroleum areas of PNG. The These proved popular; in one case, two men from a very petroleum areas were included based on the recognition remote outpost walked for two days to reach the training that similar gendered patterns of inequities accompanied location. the rapid expansion of the oil and gas sector. The Project aimed to build the capacity of women groups and Training covered the following broad areas: associations to better manage community programs and provide them with the necessary skills and tools •• Basic literacy and numeracy: Women in mining to become reliable partners in the decision-making areas have typically received very little, if any, formal processes which affect their lives. JSDF funded activities education. Illiteracy rates are high for both sexes focused on delivering practical training in skills that but for women in remote rural regions, the statistic women could immediately apply to make improvements is around 97-99%. Even marginal gains in literacy in their daily lives. and numeracy significantly enhance the ability of women to participate in decision-making within Key Features of the Project the household and increase their opportunities to succeed in economic activities. The process began with a participatory needs assessment •• Improvement of small-scale agricultural techniques: in each of the main mining and petroleum areas. This In the highland areas of PNG, women are responsible subsequently informed the development of tailored for gardening activities. The soil is very fertile and training programs. Representatives from the gender desks of each mining company and local level government officials were consulted to ensure coordination with other Box 2- Key Data ongoing donor-supported initiatives and community • Trust Fund #: TF055412 programs. Women highlighted different priorities • Implementing Agency: PNG Chamber of Mines and according to the specific needs and opportunities in their Petroleum (CMP) communities, a process that helped to build cooperation, • Grant Amount: $671,000 collaboration and a sense of collective identity among • Implementation Period: 2008-2010 each cohort. Given the high levels of vulnerability among 2 http://www.worldbank.org/jsdf supports a wide variety of crops for subsistence and market sale, including cocoa, rice, peanuts, cassava, cabbage, beans, broccoli, oranges, bananas, papaya, mango, tomatoes and pineapple. However traditional methods of cultivation are time-intensive and quickly exhaust the soil of nutrients, necessitating fallow periods and the continued expansion of the area under cultivation. Composting, terracing and the creation of nurseries for seedlings were among the techniques women used to increase productive yields from their gardens. •• Fish farming: The Tolukuma mine in the Central Province is only accessible by helicopter. With no road connection to Port Moresby, everything is airlifted by helicopter to the mine. The cost of essential basic foodstuffs is almost triple the normal cost, making it very expensive for people to enjoy essentials such as sugar, salt, canned or frozen goods. Fish farming training was chosen because it was not Photo: Women beneficiaries sharing results of their training on life skills only easy for communities to manage, but fish would improvement during the 2010 third WIM Conference. also provide an ideal alternative source of protein for this inland community. The training generated a great very strong working relations with both companies and deal of interest and more people enrolled than were government. CMP’s access to both government officials expected or planned for. and company executives - and its convening power to •• Sewing, baking and food processing: The presence bring these key partners together in the sector - was of extractive companies stimulates increased demand a vital advantage that could be leveraged to explore for goods and services, and opportunities for local potential linkages between the JSDF and related procurement. Additionally, increases in waged labor development efforts. CMP has developed an extensive among (mostly male) community members creates network in the mining and petroleum regions, where it a secondary level of demand as disposable income is known and trusted by women’s associations as well as grows. Women identified niches for the production of by the community more broadly. Their role in conducting non-traditional foodstuffs, but lacked the knowledge in-depth needs assessment to inform the design of or equipment to make these. The project taught capacity building trainings financed under the JSDF women to bake (e.g. cakes, bread) and construct gave them an unique understanding of the development their own small ovens from oil drums. Training was challenges faced by women and their families in mining also given in food processing techniques (e.g. solar and petroleum areas. drying of banana chips) and in sewing, for example to make simple clothes. The project also provided some of the communities with sewing machines and men Delivering Results were trained in the repair and maintenance of this equipment. The training programs were implemented in eight mining •• Life improvement skills: Women lacked basic areas and five petroleum areas, with the participation of awareness of simple skills and knowledge that could more than 1,100 women and men. The three international potentially bring significant improvements in their Women and Mining Conferences organized under the lives. Some of these areas were practical, such as WIM Initiative (2003, 2005 and 2010) provided women basic hygiene, family welfare and feminine healthcare. with a forum where they could share their experiences Other areas were less tangible, including investment and identify solutions to address their issues, as well and business development and awareness of a as acting as a platform for dialogue and action that woman’s rights in both household and community brought together relevant stakeholders - government, settings. The project provided training aimed at communities and private industry. It was noted that mainstreaming these areas. the increase in social empowerment resulting from the •• Capacity building for women associations: Most Project was also now enabling the women to become of the women’s associations and groups, identified partners with their male counterparts in discussions by an assessment of their capacities to carry out around the sharing of benefits from mining. community programs, were not efficient or effective organizations. Under the JSDF project members In terms of summarizing the achievements of the Project, received training in Financial Management, Reporting these include: and Communication, Strategic Planning and Human •• Increasing the effectiveness and equity of community Resource Management as well as Health (Village Birth development in mining and petroleum areas, Attendant Training). providing a model for corporate social investment activities and helping to mitigate the negative effects of the industries on women; Implementation •• Contributing to the creation of several female-led micro-businesses, notably in food processing and The project was implemented by the PNG Chamber of sewing uniforms for sale to companies; Mines and Petroleum (CMP), an independent NGO with 3 •• Establishing and strengthening linkages among women in the community and within women’s associations, and reinforcing their legitimacy as participating interest groups in shaping local resource allocation and development decisions; •• Building the self-esteem and confidence of women through stimulating voice and facilitating agency in designing and participating in their training programs; •• Highlighting nationally how activities within a particular sector (extractives) can have an impact on women’s social and economic empowerment more broadly, and raising the profile of gender issues in the national development dialogue. Lessons Learned Photo: Learning how to make compost - Kainantu mine •• Successful sharing of industry benefits necessitates using a gender lens - By examining mining and petroleum projects through a gender lens, a host •• Improving channels of communication and of previously ‘invisible’ issues and challenges came information increases project effectiveness - By to light. Through listening to the specific concerns stimulating the participation of women in discussions of women and tailoring a program of interventions, of risks and benefits associated with mining, the the Project was able to contribute to the wider Project enabled them to become active agents in sustainability of development outcomes in the the planning process, rather than passive victims of extractives sector. The inclusive approach to it. Women learned about their rights and the kind community engagement piloted under the JSDF of opportunities that could become open to them project also resulted in the increased interest of through the acquisition of education and skills. The Government and companies to approach their Project opened a conduit for women to mining activities in a gender sensitive manner. companies (through representatives on the dedicated •• Projects work best when they are locally tailored gender desks) and to a certain extent, provincial and designed by beneficiaries - By responding to the government, and allowed women and women’s specific needs and requests of women rather than associations to gain confidence in engagement with lecturing to them or following a prescriptive model these decision makers. of assistance, the project built strong local ownership •• Companies can be key agents of gender and support. The project facilitated the creation of improvement in the community - The mining a strong platform for dialogue among women in companies were very supportive of Project activities, the communities, their associations and the local acknowledging that development outcomes from government leadership. By allowing women to set the community investment programs could be improved agenda for training design and implementation, the through consulting women and supporting women’s project created a precedent for the leadership and activities. As recommended during the 2003 WIM contribution of women to local development. conference, many companies subsequently set up •• Building leadership development into project gender desks. Over the years, the Women’s Mining activities is core to sustainability - By empowering Associations have engaged with these gender desks participants in the Project and encouraging them to pass to develop activities that resulted in the economic on the skills acquired in their training, the Project created and social empowerment of women. While the well- a multiplier effect as well as a wider range of role models being of women has improved, the mining industry for younger women and girls. Women’s associations and has also been able to make an increasingly effective groups actively engaged in income generating activities and efficient contribution to community development. that gave them the leverage to assert a stronger role in community decision-making processes. •• Building the self-esteem and confidence of women Follow-on Activities is an essential foundation for all other efforts - Without foundational work to instill a sense of basic This successful JSDF project was able to create self-esteem in female participants, the Project would considerable demonstration effect and subsequently not have succeeded. Creating the opportunity to allowed the World Bank team to leverage a grant of allow women to exert both voice and agency was $600,000 from Esso Highlands to replicate the training perhaps the most significant, though least tangible, program in their operating areas. outcome of the Project. The Japan Social Development Fund -- JSDF Good Practice Notes seek to share achievements, knowledge and lessons learned from the implementation of JSDF projects over the past decade. The JSDF is a partnership between the Government of Japan and the World Bank to support innovative social programs that directly meet the needs of the poorest and most vulnerable groups in developing countries. JSDF projects meet four basic requirements: Innovative, introducing new approaches to development; Responsive to the needy, by directly meeting the needs of vulnerable, marginalized, and disadvantaged groups; Rapid response activities that deliver short-term results and benefits to targeted beneficiaries; and Community capacity building activities that empower local governments, NGOs, and disenfranchised groups, while promoting stakeholders participation and ownership.