CHANGING SOCIAL NORMS FGM/C IN SWITZERLAND S IMMIGRANT COMMUNITIES

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1 CHANGING SOCIAL NORMS FGM/C IN SWITZERLAND S IMMIGRANT COMMUNITIES Fleur Jaccard Head Advocacy UNICEF Switzerland, Zurich, Switzerland f.jaccard@unicef.ch July 14 th 2011 Executive Summary FGM/C is practiced also in Switzerland. The practice is a social norm linked to marriage, as families want to ensure the marriageability and status of their daughters within the intramarrying community. Not conforming to the tradition brings about upon the entire family shame, stigma and social exclusion and prevents girls from becoming full and recognized community members. The practice is held in place by reciprocal expectations within the communities. A social norm is itself a non formal rule that emerge by human interaction. It is public and shared like legal rules but unlike these it is enforced by informal social rewards and punishments. Such rewards and punishments are a manifestation of a shared, collective perspective that derives from the specific situational context. Migration movements brought to immigrant countries harmful practices such as FGM/C. As experiences from UNICEF Switzerland and collaboration with governmental and nongovernmental organisations show, information and prevention programs by intercultural mediators, informing about human rights violation are not sufficient. The process of abandonment has to be activated specifically. The last 10 years, UNICEF Switzerland successfully promoted a new legal norm, invested in different surveys and guidelines, information and awareness raising campaigns, lobbying. Switzerland also shares and compares data with international and national experts in the field of social norms, child protection and promotes a new approach for a holistic child right system including all vulnerable children. Different round tables with governmental and nongovernmental organisations contributed to reflections about the work with immigrant communities. One of the main objectivse is the focus on immigrant communities to activate the process of abandonment in Switzerland. The challenges of having very little knowledge about social networks of different immigrant communities (Somalia, Sudan, Eritrea and Egypt) and of their connections to reference groups in their countries of origin indicate the need of new approaches. discrepancy between attitudes and behaviour concerning cutting is also crucial. To get better information about who are the key persons in social networks (such as opinion leaders and bridges enabling diffusion,) religious leaders like Imams could be useful as a starting point. Opinion leaders and bridges such as intercultural mediators, informal women groups or highly educated people that are highly accepted within the communities and are still in contact with reference groups in the countries of origin are such key persons helping activating specifically the process of abandonment. Depending on the outcome of the information of the imam s ongoing steps are discussion platforms within the immigrant communities about general needs, human rights and the abandonment of FGM/C. Promoting common knowledge and trust within the communities and their reference groups is also very important, as are celebrations or any kind of rituals function as a public pledge changing expectations and introducing collectively a norm shift. 1/8

2 General description of FGM/C Worldwide it is estimated that approximately 130 million girls and women alive today have undergone FGM/C, every 10 seconds a girl is at risk of mutilation. FGM/C inflicts lifelong physical and psychological suffering on its victims. The practice is a form of violence against girls and women and a violation of human rights. It involves violence and discrimination and shows the manifestation of gender inequality, rooted in social, economic and political structures. Article 24-3 of the Convention on the Rights of the Child obliges the 191 State Parties to take all effective and appropriate measures to protect children from harmful practices prejudicial to their health. The Convention of the Elimination of all forms of Discrimination against Women and the Millennium Development Goals are to be realized in the coming years. FGM/C is a harmful practice and social norm. It is viewed as a necessary step to raise and protect a girl and make her eligible for marriage. The marriageability and status of a daughter within the intermarrying community can be ensured through cutting. The upheld behavioural rule is that cutting is practiced. It is a non formal rule that is public and shared. A non cut girl cannot be married and the nonconformity of the social norm of being cut can lead to exclusion of the girl and the whole family and community. It brings shame and stigmatization upon the entire family and prevents girls from becoming full and recognized members of their community. The social norms emerge through human interaction and define behaviours of which a group or society approves or disapproves. A shared collective perspective builds a social norm. There is a belief that other families or the whole society expects them to uphold the practise. Expectations consists of two elements as Cristina Bicchieri 1 outlines: our knowledge about what others do or have done (empirical expectations) and our beliefs that other think we ought to conform to the norm and are prepared to punish nonconformity (normative expectations). Social norms can be changed. They can even be changed within one generation. FGM/C in immigrant communities in Switzerland Some social norms such as FGM/C, honour killings, forced marriages etc. harbour substantial conflict potential and jeopardise social cohesion in the countries where they are traditionally practiced as well as in immigration-friendly countries such as Switzerland. With the ongoing migration movement from countries of origin to immigrant countries FGM/C became also an issue for Switzerland. The increasing number of immigrants from African countries practicing FGM/C has raised concern in Switzerland. After all migrants from Somalia, Ethiopia, Sudan, Eritrea and Egypt show a high prevalence of FGM/C. As two surveys (see above) - with medical and social workers taking into account statistics about immigrant people - about the prevalence of FGM/C in Switzerland outlined that there are approximately between and girls that have undergone the practice or that might be at risk. Concerning the statistics one has to take into account that it was based on existing data on migrant populations from the Federal Offices of Insurances combined with a survey with medical and social workers. FGM/C is practiced within certain ethnic groups. The prevalence can differ in country s regions of origin and 1 See Cristina Bicchieri, Powerpoint presentation, «Social Norms, Social Change», 7/6/ /8

3 so far also in countries of immigration. Illegal immigrants, refugees and asylum-seekers are not included. Actual data about prevalence in immigrant communities exists neither in Switzerland nor in other European countries. Furthermore, methodologies for determining the numbers of immigrants, refugees and asylum-seekers vary between countries of immigration and inter-country comparisons are problematic. The statistics are not updates regularly and might not reflect changes in migration and mobility. The objective of the UNICEF Switzerland was to know if FGM/C is practiced in Switzerland or not. The tow surveys confirmed that FGM/C is also problematic in Switzerland. Review and milestones of Advocacy in Switzerland In 2001, the UNICEF Switzerland began to elaborate a conceptual framework with respect to FGM/C. Prior to 2001, Switzerland had already campaigned against FGM/C on an international level but had not yet developed its own guidelines on how to respond to the problem in the areas of health and asylum. The UNICEF Switzerland together with the professional organisation gynécologie Suisse launched an initial survey 2 among Swiss gynaecologists in order to assess the situation. The survey revealed that Swiss physicians are far more often confronted with FGM/C and with treating genitally mutilated women than it was generally expected. Hence the need for an extensive information campaign became clear. In view of these findings, the UNICEF Switzerland and the organisation PLANeS (a Swiss foundation for sexual and reproductive health) organised a conference on female genital mutilation in May The conference the first of its kind to examine the problem on national level served as an information and discussion forum for organisations and political authorities concerned with the problem. The meeting examined legal, medical and social contexts 3 and identified a need for action in each of these three areas. As a result of the conference, the UNICEF Switzerland commissioned the elaboration of a legal opinion on FGM/C in Switzerland 4 which was published in autumn The authors of the legal opinion came to the conclusion that performing certain types of female genital mutilation (infibulation and excision) in Switzerland constitutes grievous bodily harm under Swiss law. In late 2004, the UNICEF Switzerland together with the Institute of Social and Preventive Medicine at the University of Bern carried out the second and more detailed survey among medical and social workers. This survey was aimed at getting a clearer picture of how many professionals had been confronted with the practice and which migrant communities were performing it UNICEF Switzerland, Survey, UNICEF Switzerland (Ed.), Schlussbericht zur Tagung über Mädchenbeschneidung (Final report of the Conference on FGM/C ), Bern, May 21, Trechsel/Schlauri, Weibliche Genitalverstümmelung in der Schweiz (Female mutilation in Switzerland). Legal opinion UNICEF Switzerland, Survey, /8

4 The UNICEF surveys as well as two medical dissertations on FGM/C published in revealed a need to elaborate guidelines for medical staff. This need was met in 2005 with the publication of guidelines by gynécologie Suisse 7. In March 2005, the UNICEF Switzerland organised a conference on female genital mutilation in Europe. The meeting came to the conclusion that legal measures as well as sensitisation of various target groups are required in order to ensure that the fight against FGM/C can be effective. 8 Taking these recommendations on board, the UNICEF Switzerland has been organising annual national awareness raising campaigns on FGM/C since Furthermore, in March 2007, all Swiss organisations concerned with FGM/C were invited to take part in a round table discussion. The first legal opinion commissioned by UNICEF did not address questions relating to the criminal nature of type I and type IV of FGM/C. In view of this limitation, UNICEF commissioned a second legal opinion on the issue of criminality of female genital mutilation with respect to types I and IV. This document was published in early The authors of second legal opinion concluded that these types of genital mutilation incur prosecution either for grievous bodily harm or at least for simple qualified bodily harm. However, they regretted that the penal code does not contain a provision which clearly states the criminal nature of these acts and recommended this to be either stated explicitly in the current legislation or a new provision to be introduced. This recommendation was guided by the expectation that such explicit mention would considerably facilitate the fight against the practice of female genital mutilation. 9 Explicit mention of the criminal nature of these acts was also demanded in the parliamentary initiative of National Councillor Maria Roth-Bernasconi of March 17, 2005 which was passed in summer The initiative urged the Confederation to submit a draft which explicitly penalises sexual mutilation. In addition, it calls upon the Confederation to increase its efforts with respect to information. In October 2007, the Swiss Parliament submitted a motion to the Federal Council requesting the Council to amplify measures against sexual mutilation, in particular by way of regular information campaigns within Switzerland and by raising awareness among members of society who are directly concerned by FGM/C (female and male migrants, medical and nursing staff, teachers, civil servants, etc.). 11 The requested criminal law provision which will allow protection of 6000 to 7000 vulnerable girls in Switzerland and will form the basis for further protection measures was finally adopted by the National Council on December 16, 2010 and by the Council of States on June 7, Prior to the adoption of the new criminal law provision, the UNICEF Switzerland had organised an online campaign (Ecard) in spring 2010 during which approximately signatures in favour of a new law Jaeger / Schulze / Hohlfeld, Swiss Med Wkly 132 (2002), ; Thierfelder, Swiss Health Care System. Gynécologie Suisse, Guidelines: Patientinnen mit genitaler Beschneidung: Schweizerische Empfehlung für Ärztinnen und Ärzte, Hebammen und Pflegefachkräfte (Patients with genital mutilation: Swiss recommendations for doctors, midwives and nursing staff). UNICEF Switzerland (Ed.), Schlussbericht zur UNICEF-Tagung Mädchenbeschneidung in Europa, 7. März 2005 in Zürich (Final report of UNICEF conference Female Genital Mutilation in Europe), Zürich Niggli / Berkemeier: Zur Frage der Strafbarkeit weiblicher Genitalverstümmelung gemäss den Typen I and IV (Punishability of female genital mutilation of types I and IV), Legal opinion. Roth-Bernasconi Maria, Verbot von sexuellen Verstümmelungen (Interdiction of genital mutilation), Parliamentary initiative , Roth-Bernasconi Maria, Sexuelle Verstümmelungen an Frauen. Sensibilisierungs- und Präventionsmassnahmen (Sexual mutilation of women. Raising awareness and prevention), Motion , /8

5 provision were collected. These achievements opened the way for targeted sensitisation campaigns and preventive measures to be taken in Switzerland. In 2008, the UNICEF Switzerland published a study on civil law child protection and prevention of female genital mutilation in Switzerland 12. In the same year, the international conference Action Strategies for Overcoming FGM/C: Lessons learned from Africa and Europe was organized in collaboration with the Federal Department of Foreign Affairs. In 2009, a further international expert conference was held in Geneva, focusing on the preparation of the Girl Child Report of the UN Secretary General. Critical Review As the described objectives and milestones illustrate that the UNICEF Switzerland worked in the last 10 years on different levels: promoting a new legal norm and legal requirements for information, awareness raising and prevention program. Sharing expert knowledge and experiences for a holistic approach of child protection, including FGM/C and social norms in a child rights system between countries of origin and immigrant countries, furthermore also on a national level within Switzerland in the public and with governmental and nongovernmental organisations. The UNICEF Switzerland is not working directly with migrants but ensuring and promoting governmental and nongovernmental organisations are implementing new international and national approaches and experiences. For that purpose the UNICEF Switzerland organized different round tables for FGM/C and child protection with the target to ensure reflection with governmental and nongovernmental organisations working with Af rican migrants. Experiences working with African migrants on discussing harmful practices such as FGM/C and awareness raising and prevention programs outlined that even in collaboration with intercultural mediators the process of the abandonment of FGM/C could not be promoted in a effective way. This fact has to do with several challenges I am going to outline below more in detail. Out of these findings we suppose the abandonment of FGM/C needs to be specifically activated from key persons. Therefore a main objective is to identify the network and influential people to activate this process. Out of my experience working several years for the government in the field of immigration policy and UNICEF Switzerland there are many challenges; Many African migrants don t join the programmes offered by governmental and nongovernmental organisations. No or very little discussion about FGM/C and other sensitive subjects in migrant projects (only under very close relatives and family members). Many migrants from the immigrant communities belong to different ethnic groups and live in different cities in Switzerland. Very little knowledge about the social networks. Very little knowledge about their information channels in Switzerland and with their reference groups in countries of origin. Very little knowledge about their reference groups in countries of origin. 12 UNICEF Switzerland (Ed.), Zivilrechtlicher Kindesschutz und Prävention von genitaler Mädchenbeschneidung in der Schweiz (Civil law child protection and prevention of genital mutilation in Switzerland), /8

6 Little knowledge about generations (are there differences in beliefs and expectations within first and second generation, gender (women and men)?). Discrepancy between attitudes and behaviour (what do they believe and what they think are others expecting a person to do are not consistent with behaviour). How effective is the influence of the integration process (assimilation, integration) on the abandonment and how can we combine a successful integration with child protection and in general of a holistic promotion of child and human rights? Interventions On the background of the advocacy work of the UNICEF Switzerland focusing on promoting a new legal norm, combined with awareness raising and a holistic approach of child protection and prevention and ongoing expert consultations, it was possible to build a solid foundation for the ongoing work with the focus on immigrant communities and social change. Describing the following suggested intervention I like to define first the main objectives: Harmonizing legal, social and moral norms Specifically activating a process of abandonment of FGM/C through key persons from the immigrant communities Ongoing reflections with governmental and nongovernmental organisations to enable them the implementation of the objectives Identification of the social networks with a focus to find influencing key persons (opinion leaders, bridges) and finding out about the marriage market the daughters are participating Defining a process of abandonment of FGM/C within the immigrant communities (holistic human rights approach, general needs) Defining a form of celebration to confirm the abandonment of FGM/C Activating bridges to spread the knowledge (diffusion) within the immigrant communities and the countries of origin (reference group) to build a common knowledge The target of harmonizing legal, social and moral norms is achieved by the abandonment process. As Gerry Mackie outlined in his presentation 13 an effective abandonment requires community discussion, decision and commitment. Through this process a harmonizing of legal, social and moral norms is possible. To specifically activate the process of abandonment it is necessary to determine key persons of social networks. The experiences of the organisations already working with African migrants underline that a new approach has to be found and a better knowledge about the organisation and structure of social networks are essential. Therefore, our first challenge will be to find out more about the social networks, their opinion leaders and bridges in countries of origin and in the diaspora. As Ryan Muldoon 14 outlined in his presentation, networks as sets of relations are very useful to get better information about how individuals communicate and who are more influential than others. Individuals (nodes) are connecting with relationships (edges). 13 See Gerry Mackie, Powerpoint presentation, «Values Deliberations and Norm Shift», 7/13/ See Ryan Muldoon, Powerpoint presentation «Social Network Analysis», 7/12/ /8

7 Answering the following questions as who trusts whom, who intermarries, whose advice is taken most seriously, who can help to convince people to change behaviour, does everyone have access to media, how do migrants communicate with their reference groups in the country of origin, or who talks to whom allowing us a deep insight in the interactions and common knowledge of people of a certain group. Network thinking allows to outline the expectations drive a particular social norm; therefore immigrants may still follow their social norms from there peer group back home. A network based intervention starts in our case in identifying and recruiting opinion leaders that are highly connected and encourage behaviour change. Changing expectations require an inclusion of opinion leaders as for instance religious leaders. As I described before we have very little knowledge about the networks. To gain a better understanding of the social networks within the different migrant communities religious leaders (Imam) could serve as a focal point. As a starting point questions about the organisation of the immigrant communities and their needs with the objective to improve the circumstances of life of every migrant could serve as a main discussion goal with the religious leaders in the diaspora. Because of the lack of information about the organisation and social networks of the different African communities I suggest starting getting in contact with the imam. Explaining, that we would like to support his community and improve the life circumstances of his community members telling that federal institutions and nongovernmental organisations do not reach all communities. The goal is the empowerment of people on the level of individuals and communities. The following questionnaire contains the main questions for the imam; Do you know each member of the communities? Are there people that don t take part to your meetings? How are they organized? How is the social network defined? Who are the opinion leaders? Where are the bridges? How do the information channels look like? How the marriage market looks like? Are daughters marrying within the same community? Is there still an exchange with reference groups in countries of origin? If so, how do they communicate? Internet? Phone? What are the main issues they talk about? Are there traditions people upheld or not? Which one? Are there traditions people even strengthen more than in their country of origin? Do people have contact with Swiss people? Where do they spend their time? With people from their community or also with Swiss people? Where people go with problems and troubles? Whom do they consult? Whom do they trust? After identifying the social network the religious leaders could function as a mediator and information channel to his/her members in enabling discussions about needs and life circumstances and problems in Switzerland. On the basis of this discussions and the outline of needs and building reasons practices as FGM/C or other can be discussed. In a second step there should be a successful integration of a new social norm. The fundamental moral norm is doing the best for one s children. This motivated parent s 7/8

8 decision to cut but could either motivate now parents to stop cutting, once the possibility of coordinating on a better alternative is introduced by credible figures (like an imam) in the community. When community members discuss and debate alternative perspectives this moral norm becomes explicit. Integrated with principles of human rights and social justice the process is transformative. Communities recognise that women and girls have rights to physical and mental integrity, to freedom from discrimination and good health. The crucial elements for this norm shift are a common knowledge and trust that is funded on belief and see in public that the norm has changed. Celebrations or any kind of rituals function as a public pledge to abandon a harmful norm to change expectations and therefore introduce suddenly collectively a norm shift. It allows the member of the community to strengthen the new social norm and trust. As we see in the long term experiences of Molly Melchling (Tostan, Senegal) or short term experiences with Samira Ahmed (Saleema Campaign, Sudan) it is crucial to look to the reference groups in the countries of origin to have a better understanding of the diaspora and their social networks. These experiences are making clear that a combination of a shift of values and social norms with a holistic approach of community empowerment that is built on the needs of the people and human rights could be successful. Besides this process of discussion and commitment there should be another focus on determining bridges, connecting communities and promoting the spread of information (diffusion) also to the reference groups. Intercultural mediators, informal women groups and for instance highly educated people that are still in contact with networks in the country of origin function as bridges to spread new information and building a common knowledge about the social change. The intervention depends very much of the information coming from the conversation with the Imam. It is possible that out of this we can already start influencing key persons. If not I suggest applying the snowball approach to clarify the social networks. Asking a small number of people and when they list other people we go on asking them too until we have enough data. The snow ball approach enables us also to ask who the girls marry in the immigrant country. Beside the described intervention reflections between the UNICEF Switzerland and the governmental and nongovernmental organisations are crucial for controlling and share and compare. 8/8