[Congressional Record Volume 163, Number 153 (Monday, September 25, 2017)]
[House]
[Pages H7446-H7450]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]
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WOMEN, PEACE, AND SECURITY ACT OF 2017
Mr. ROYCE of California. Mr. Speaker, I move to suspend the rules and
pass the bill (S. 1141) to ensure that the United States promotes the
meaningful participation of women in mediation and negotiation
processes seeking to prevent, mitigate, or resolve violent conflict.
[[Page H7447]]
The Clerk read the title of the bill.
The text of the bill is as follows:
S. 1141
Be it enacted by the Senate and House of Representatives of
the United States of America in Congress assembled,
SECTION 1. SHORT TITLE.
This Act may be cited as the ``Women, Peace, and Security
Act of 2017''.
SEC. 2. FINDINGS.
Congress makes the following findings:
(1) Around the world, women remain under-represented in
conflict prevention, conflict resolution, and post-conflict
peace building efforts.
(2) Women in conflict-affected regions have achieved
significant success in--
(A) moderating violent extremism;
(B) countering terrorism;
(C) resolving disputes through nonviolent mediation and
negotiation; and
(D) stabilizing societies by enhancing the effectiveness of
security services, peacekeeping efforts, institutions, and
decisionmaking processes.
(3) Research suggests that peace negotiations are more
likely to succeed and to result in durable peace agreements
when women participate in the peace process.
SEC. 3. SENSE OF CONGRESS.
It is the sense of Congress that--
(1) the meaningful participation of women in conflict
prevention and conflict resolution processes helps to promote
more inclusive and democratic societies and is critical to
the long-term stability of countries and regions;
(2) the political participation, and leadership of women in
fragile environments, particularly during democratic
transitions, is critical to sustaining lasting democratic
institutions; and
(3) the United States should be a global leader in
promoting the meaningful participation of women in conflict
prevention, management, and resolution, and post-conflict
relief and recovery efforts.
SEC. 4. STATEMENT OF POLICY.
It shall be the policy of the United States to promote the
meaningful participation of women in all aspects of overseas
conflict prevention, management, and resolution, and post-
conflict relief and recovery efforts, reinforced through
diplomatic efforts and programs that--
(1) integrate the perspectives and interests of affected
women into conflict-prevention activities and strategies;
(2) encourage partner governments to adopt plans to improve
the meaningful participation of women in peace and security
processes and decision-making institutions;
(3) promote the physical safety, economic security, and
dignity of women and girls;
(4) support the equal access of women to aid distribution
mechanisms and services;
(5) collect and analyze gender data for the purpose of
developing and enhancing early warning systems of conflict
and violence;
(6) adjust policies and programs to improve outcomes in
gender equality and the empowerment of women; and
(7) monitor, analyze, and evaluate the efforts related to
each strategy submitted under section 5 and the impact of
such efforts.
SEC. 5. UNITED STATES STRATEGY TO PROMOTE THE PARTICIPATION
OF WOMEN IN CONFLICT PREVENTION AND PEACE
BUILDING.
(a) Requirement.--Not later than one year after the date of
the enactment of this Act, and again four years thereafter,
the President, in consultation with the heads of the relevant
Federal departments and agencies, shall submit to the
appropriate congressional committees and make publicly
available a single government-wide strategy, to be known as
the Women, Peace, and Security Strategy, that provides a
detailed description of how the United States intends to
fulfill the policy objectives in section 4. The strategy
shall--
(1) support and be aligned with plans developed by other
countries to improve the meaningful participation of women in
peace and security processes, conflict prevention, peace
building, transitional processes, and decisionmaking
institutions; and
(2) include specific and measurable goals, benchmarks,
performance metrics, timetables, and monitoring and
evaluation plans to ensure the accountability and
effectiveness of all policies and initiatives carried out
under the strategy.
(b) Specific Plans for Departments and Agencies.--Each
strategy under subsection (a) shall include a specific
implementation plan from each of the relevant Federal
departments and agencies that describes--
(1) the anticipated contributions of the department or
agency, including technical, financial, and in-kind
contributions, to implement the strategy; and
(2) the efforts of the department or agency to ensure that
the policies and initiatives carried out pursuant to the
strategy are designed to achieve maximum impact and long-term
sustainability.
(c) Coordination.--The President should promote the
meaningful participation of women in conflict prevention, in
coordination and consultation with international partners,
including, as appropriate, multilateral organizations,
stakeholders, and other relevant international organizations,
particularly in situations in which the direct engagement of
the United States Government is not appropriate or advisable.
(d) Sense of Congress.--It is the sense of Congress that
the President, in implementing each strategy submitted under
subsection (a), should--
(1) provide technical assistance, training, and logistical
support to female negotiators, mediators, peace builders, and
stakeholders;
(2) address security-related barriers to the meaningful
participation of women;
(3) encourage increased participation of women in existing
programs funded by the United States Government that provide
training to foreign nationals regarding law enforcement, the
rule of law, or professional military education;
(4) support appropriate local organizations, especially
women's peace building organizations;
(5) support the training, education, and mobilization of
men and boys as partners in support of the meaningful
participation of women;
(6) encourage the development of transitional justice and
accountability mechanisms that are inclusive of the
experiences and perspectives of women and girls;
(7) expand and apply gender analysis, as appropriate, to
improve program design and targeting; and
(8) conduct assessments that include the perspectives of
women regarding new initiatives in support of peace
negotiations, transitional justice and accountability,
efforts to counter violent extremism, or security sector
reform.
SEC. 6. TRAINING REQUIREMENTS REGARDING THE PARTICIPATION OF
WOMEN IN CONFLICT PREVENTION AND PEACE
BUILDING.
(a) Foreign Service.--The Secretary of State, in
conjunction with the Administrator of the United States
Agency for International Development, shall ensure that all
appropriate personnel (including special envoys, members of
mediation or negotiation teams, relevant members of the civil
service or Foreign Service, and contractors) responsible for
or deploying to countries or regions considered to be at risk
of, undergoing, or emerging from violent conflict obtain
training, as appropriate, in the following areas, each of
which shall include a focus on women and ensuring meaningful
participation by women:
(1) Conflict prevention, mitigation, and resolution.
(2) Protecting civilians from violence, exploitation, and
trafficking in persons.
(3) International human rights law and international
humanitarian law.
(b) Department of Defense.--The Secretary of Defense shall
ensure that relevant personnel receive training, as
appropriate, in the following areas:
(1) Training in conflict prevention, peace processes,
mitigation, resolution, and security initiatives that
specifically addresses the importance of meaningful
participation by women.
(2) Gender considerations and meaningful participation by
women, including training regarding--
(A) international human rights law and international
humanitarian law, as relevant; and
(B) protecting civilians from violence, exploitation, and
trafficking in persons.
(3) Effective strategies and best practices for ensuring
meaningful participation by women.
SEC. 7. CONSULTATION AND COLLABORATION.
(a) In General.--The Secretary of State and the
Administrator of the United States Agency for International
Development may establish guidelines or take other steps to
ensure overseas United States personnel of the Department of
State or the United States Agency for International
Development, as the case may be, consult with appropriate
stakeholders, including local women, youth, ethnic, and
religious minorities, and other politically under-represented
or marginalized populations, regarding United States efforts
to--
(1) prevent, mitigate, or resolve violent conflict; and
(2) enhance the success of mediation and negotiation
processes by ensuring the meaningful participation of women.
(b) Collaboration and Coordination.--The Secretary of State
should work with international, regional, national, and local
organizations to increase the meaningful participation of
women in international peacekeeping operations, and should
promote training that provides international peacekeeping
personnel with the substantive knowledge and skills needed to
ensure effective physical security and meaningful
participation of women in conflict prevention and peace
building.
SEC. 8. REPORTS TO CONGRESS.
(a) Briefing.--Not later than 1 year after the date of the
first submission of a strategy required under section 5, the
Secretary of State, in conjunction with the Administrator of
the United States Agency for International Development and
the Secretary of Defense, shall brief the appropriate
congressional committees on existing, enhanced, or newly
established training carried out pursuant to section 6.
(b) Report on Women, Peace, and Security Strategy.--Not
later than 2 years after the date of the submission of each
strategy required under section 5, the President shall submit
to the appropriate congressional committees a report that--
(1) summarizes and evaluates the implementation of such
strategy and the impact of United States diplomatic efforts
and foreign assistance programs, projects, and activities to
promote the meaningful participation of women;
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(2) describes the nature and extent of the coordination
among the relevant Federal departments and agencies on the
implementation of such strategy;
(3) outlines the monitoring and evaluation tools,
mechanisms, and common indicators to assess progress made on
the policy objectives set forth in section 4; and
(4) describes the existing, enhanced, or newly established
training carried out pursuant to section 6.
SEC. 9. DEFINITIONS.
In this Act:
(1) Appropriate congressional committees.--The term
``appropriate congressional committees'' means--
(A) the Committee on Foreign Relations, the Committee on
Armed Services, and the Committee on Appropriations of the
Senate; and
(B) the Committee on Foreign Affairs, the Committee on
Armed Services, and the Committee on Appropriations of the of
the House of Representatives.
(2) Relevant federal departments and agencies.--The term
``relevant Federal departments and agencies'' means--
(A) the United States Agency for International Development;
(B) the Department of State;
(C) the Department of Defense;
(D) the Department of Homeland Security; and
(E) any other department or agency specified by the
President for purposes of this Act.
(3) Stakeholders.--The term ``stakeholders'' means non-
governmental and private sector entities engaged in or
affected by conflict prevention and stabilization, peace
building, protection, security, transition initiatives,
humanitarian response, or related efforts.
The SPEAKER pro tempore. Pursuant to the rule, the gentleman from
California (Mr. Royce) and the gentleman from New York (Mr. Engel) each
will control 20 minutes.
The Chair recognizes the gentleman from California.
General Leave
Mr. ROYCE of California. Mr. Speaker, I ask unanimous consent that
all Members may have 5 legislative days to revise and extend their
remarks and to include any extraneous material in the Record.
The SPEAKER pro tempore. Is there objection to the request of the
gentleman from California?
There was no objection.
Mr. ROYCE of California. Mr. Speaker, I yield myself such time as I
may consume.
Mr. Speaker, I rise in support of S. 1141. Now, this is the Women,
Peace, and Security Act. This is the Senate companion to the bill H.R.
2484 that the House passed earlier this session. That bill was authored
by Representatives Kristi Noem and Jan Schakowsky, and I want to thank
them; and I, of course, want to thank, also, Ranking Member Engel. I
want to thank them collectively for their leadership on this important
issue.
I also want to thank Senators Corker, Cardin, Shaheen, and Capito for
working so well with us in the Senate.
I want to thank our assistant staff director, Jessica Kelch. I want
to thank her for her essential work on this important legislation.
I am happy to say that, with House passage today, this legislation
will go to the President's desk.
As I noted when this bill passed the House in June, this moment is
really a culmination of years of bipartisan work by Members of
Congress, including Jan Schakowsky and Kristi Noem. It is also the work
of prior and current administration officials and the many advocates
who want to see better, more sustainable solutions to ending wars, to
combating terrorism, and to improving human rights around the world.
What we are saying today is that women's participation is essential to
confronting these fundamental challenges.
Last Congress, the Foreign Affairs Committee held a hearing, part of
its series of women in foreign affairs, where we heard powerful
testimony about the importance of including women in the peace
processes around the world.
It is an obvious point that many are aware of that, without the
participation of women, peace would not have come to Northern Ireland
in those discussions nor would the peace have held.
So now it may seem obvious that women should have an opportunity to
represent their communities as a matter of right; they make up half the
population. And what negotiation or agreement can claim to represent
women if their very participation is barred?
But our hearing also emphasized why women's participation in the
peace processes is important if we care about the likelihood of the
success of that process. Simply put, when women are at the negotiation
table, peace is more likely.
Compelling research shows that peace agreements are likely to be
reached and are likely to last when women's groups are meaningfully
involved. Women peacemakers often press warring parties to move beyond
mere power-sharing agreements, which benefit only a small percentage of
fighters, to more comprehensive and longer term accords, which benefit
the civilian population as a whole, which benefits the next generation
of that country.
We have seen this play out. We saw it play out, as I said, in
Northern Ireland. We saw it play out in Colombia; we saw it in Rwanda;
we saw it in Sri Lanka, where women's groups have pushed for practical
solutions to deescalate and resolve the conflict.
In fact, later today, I will be speaking with Liberia's President,
Ellen Johnson Sirleaf, whom I am proud to call a friend of many, many
years. Of course, President Sirleaf and the women of Liberia represent
what can be accomplished when women become involved in ending conflict.
After many failed attempts by politicians, combatants, and the
international community, it was the women of Liberia who forged an end
to one of West Africa's longest running and most brutal conflicts. We
must learn from history.
Efforts to ``keep the peace'' through policing and peacekeeping
missions also benefit from women's participation, which leads to better
crime reporting and higher levels of trust within the communities they
serve.
And women are essential to confronting one of the greatest national
security threats of our time: the spread of violent extremism around
the world. When we look at who confronts jihadists and who teaches
their children--if they have access to education, they can teach their
children--women are truly on the front lines of this fight. They often
possess unique insights into their families and communities and are
capable of gathering information that men cannot, yet their input is
frequently overlooked.
We must acknowledge women as partners in this fight, and that is why
the legislation before us today recognizes that it is in our national
interest to promote women's participation in resolving violence and
conflict.
This concept has been building support for some time: the Bush
administration pressed hard for women's participation in peace
negotiations and the political process in Iraq, in Afghanistan, and
elsewhere; the Obama administration expanded on these programs to
require a governmentwide approach to women's inclusion in conflict
resolution overseas; and the current administration has said that the
State Department's Office of Global Women's Issues will continue to
focus on these issues. I am eager to see an Ambassador nominated to
lead that office.
The bipartisan legislation before us today builds on these efforts.
It will continue to require a governmentwide strategy to promote
women's participation, along with specific goals and benchmarks and
reporting to Congress in order to gauge progress. And it also requires
that appropriate State, USAID, and Defense Department personnel receive
training in how to facilitate women's participation in conflict
resolution, security initiatives, and efforts to protect civilians from
violence and from exploitation.
I urge all Members to support passage today, and I reserve the
balance of my time.
Mr. ENGEL. Mr. Speaker, I yield myself such time as I may consume.
I rise in strong support of this measure, and I am glad we are taking
up this bill from our colleagues in the other body, Senators Shaheen
and Capito, and I want to thank our colleagues who have worked so hard
on the House version of this bill, Representatives Jan Schakowsky and
Representative Noem.
Jan Schakowsky has brought forward a version of this bill for the
last few Congresses. The House passed a version of this bill last year,
and I am glad we are finally moving a version of it forward.
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One of the hallmarks of the Obama administration foreign policy was
the National Action Plan on Women, Peace, and Security. It was based on
a wealth of research that showed very clearly, as the chairman said,
getting women involved in conflict prevention and resolution leads to
more successful outcomes.
Since the launch of this plan, the United States has promoted efforts
to enhance the physical and economic security of women around the
world. We have sought to break through the barriers that have stopped
women from being full participants in peace processes.
This bill would make these policies permanent. It would build on the
Obama administration's achievements, making sure State Department,
USAID, and Pentagon personnel fully understand just how important it is
to get women involved in conflict prevention and resolution. It would
also require annual reporting so Congress can stay apprised of these
efforts.
Now, we have been working a few years to get this legislation across
the finish line, and, frankly, I don't think we can wait another
moment. The administration's budget proposal would slash funding for
diplomacy and development to dangerous levels, and a current redesign
effort at the State Department might strip out initiatives like Women,
Peace, and Security. I hope that won't happen. I got assurances today
that that won't happen. I hope that is right, but we have to still
fight for this.
Congress has a role to play in foreign policy and, by passing this
bill, it will be clear that we support efforts to expand opportunity
and participation for women around the world.
I am pleased to support this measure. As always, Chairman Royce has
been a bulwark of helping to push this through. I thank the Members who
have worked so hard on it.
I reserve the balance of my time.
Mr. ROYCE of California. Mr. Speaker, I reserve the balance of my
time.
Mr. ENGEL. Mr. Speaker, I yield 5 minutes to the gentlewoman from
Illinois (Ms. Schakowsky), a leader on this legislation.
Ms. SCHAKOWSKY. Mr. Speaker, I want to thank Ranking Member Engel for
yielding to me, and I rise in strong support of the Women, Peace, and
Security Act.
I first want to thank my Republican colead on this bill, Kristi Noem,
for her hard work; and I want to express my gratitude to Chairman Royce
and Ranking Member Engel for their robust support for this legislation.
I want to thank Senator Shaheen and Senator Capito for their work in
the Senate on this, as well as Senators Corker and Cardin.
I want to thank the staff who has put in a lot of hours on this, last
session and this session, including my staff, Cassandra Varanka.
Around the world, women are disproportionately affected by conflict
and violence. At the same time, women are acting as some of the most
effective advocates for peace. Again and again, women have proven their
ability to advance peacemaking efforts where others have failed.
Look at Syria. In the town of Zabadani, women have been leading
efforts to save their city from violence. Over 470 women signed a
public petition, calling for a cease-fire. Their town had been under
siege, experiencing daily shelling and barrel bombings. As the formal
negotiations between the rebel-controlled local council and the Assad
government constantly broke down, the war prevented the town from
planting crops.
A group of women peace activists came together to found a group
called Damma, and they facilitated negotiations between the local
council, the Free Syrian Army, and the Islamic brigades. Where the
traditional actors had failed, these women moved through five rounds of
negotiations, ultimately achieving a cease-fire. Now, the cease-fire
only lasted 40 days, but those 40 days gave the town critical time to
plant crops and address its food shortage.
The power of women to advance peace and aid in postconflict
reconciliation is not limited to Syria. Women in Liberia played a
crucial role in bringing warring parties to the negotiating table, as
the chairman said.
When the Government of the Philippines and the Moro Islamic
Liberation Front signed a major peace agreement in 2004, women made up
50 percent of the government's negotiating team and 25 percent of the
signatories.
In Ireland, women helped ensure that the Good Friday Agreement
included social issues, reconciliation measures, and compensation for
victims of violence.
Women around the world are actively working to advance peace talks
and ensure successful transformation from conflict to peace. Passing
the Women, Peace, and Security Act will ensure that the United States
actively supports these incredible women as we work toward ending
conflict around the world.
When women are involved in the negotiations, peace is more likely to
last. In fact, the International Peace Institute found that, with each
5 percent increase in women's participation in the political process, a
nation is five times less likely to use violence when faced with
international crisis or conflict.
Despite the strong evidence in favor of women's political
participation, women remain underrepresented in conflict prevention,
conflict resolution, and postconflict peace building efforts around the
world. We need to change that.
This legislation establishes women's participation as a critical
element of U.S. foreign policy. It would encourage the United States to
assist women mediators and negotiators by addressing barriers to their
equal and secure participation in peace processes.
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It would institute comprehensive training modules on the protection,
rights, and specific needs of women in conflict, and require the
administration to evaluate the impact of U.S. foreign assistance on
women's meaningful participation.
In addition, the Women, Peace, and Security Act would require the
administration to report to Congress its strategy to promote women's
participation in conflict prevention and resolution.
The SPEAKER pro tempore (Mr. Collins of New York). The time of the
gentlewoman has expired.
Mr. ENGEL. Mr. Speaker, I yield an additional 1 minute to the
gentlewoman from Illinois.
Ms. SCHAKOWSKY. It would empower Congress to exercise oversight of
that strategy's implementation.
As countries around the world are struggling with conflict, the
United States should be empowering anyone and everyone who can help
achieve lasting peace.
Mr. Speaker, I encourage all of my colleagues to support the Women,
Peace, and Security Act.
Mr. ROYCE of California. Mr. Speaker, I reserve the balance of my
time.
Mr. ENGEL. Mr. Speaker, I yield myself such time as I may consume. I
will close now since there are no further speakers on either side.
I want to start again by thanking Chairman Ed Royce for all of his
work and for all of his collaboration working together with us; as well
as Representatives Schakowsky and Noem, who worked very closely
together, for their really hard work and really good work.
Mr. Speaker, one of the reasons I always support a strong investment
in development and diplomacy is that we get such a good bang for our
buck. Diplomacy and development efforts help to build stability. They
defuse crises, they prevent conflicts, they help lay the groundwork for
a more secure and more prosperous world.
History and research have shown us that when women are involved in
these processes, they work even better. So it is smart policy. It is
not a matter of being condescending. It is a matter of smart policy.
Think about the alternatives, about when we don't have diplomacy to
help spread peace. Conflicts grow into wars--sometimes wars that
American men and women will be required to fight. Populations are
driven from their homes, triggering humanitarian crises. And the cost
of dealing with these problems down the road is far higher than the
cost of investing in diplomacy and development right now.
So this legislation is a piece of that puzzle. It isn't the whole
thing, but it is an important piece. It is an important part of making
sure American diplomacy can succeed, and I am glad to support it.
Mr. Speaker, I urge a ``yes'' vote. I thank Chairman Royce for his
hard
[[Page H7450]]
work, and I yield back the balance of my time.
Mr. ROYCE of California. Mr. Speaker, I yield myself such time as I
may consume.
Mr. Speaker, whether we are talking about Liberia, or Northern
Ireland, or anywhere else where this world is in conflict, we have
watched women play pivotal roles in advocating before governments, or
before combatants, or in front of politicians, to bring an end to
conflict.
In recent years, we have seen armed conflicts flare around the world,
producing the largest number of refugees that we have ever seen on
record. Efforts to negotiate an end to these conflicts are more
important than they have ever been. We know that when women are
included in these discussions, we are more likely to see an enduring
peace as a result.
As a witness at our hearing on women's participation explained to us,
including women is not only the right thing to do, it is the smart
thing to do. The legislation before us today will strengthen U.S.
efforts to promote the inclusion of women in peace negotiations in
order to create more sustainable agreements and more stable partners
for the United States and for our allies.
Again, I want to thank Representatives Noem and Schakowsky and the
bill's Senate sponsors for their bipartisan work on this measure; and,
as always, Ranking Member Engel, for his leadership.
Mr. Speaker, I yield back the balance of my time.
The SPEAKER pro tempore. The question is on the motion offered by the
gentleman from California (Mr. Royce) that the House suspend the rules
and pass the bill, S. 1141.
The question was taken; and (two-thirds being in the affirmative) the
rules were suspended and the bill was passed.
A motion to reconsider was laid on the table.
____________________