It is particularly interesting that the UK, Liberia and Indonesia should be directly involved in the future of the MDGs from 2015 onwards - and specifically in the area of poverty eradication.  It does not take much analysis to join the dots - as President Johnson Sirleaf does - between the eradication of extreme poverty in the economically-developing world and the promotion of gender equality and empowerment of women, an MDG in its own right. 

Dealing with gender inequality starts with tackling the root causes of all forms of violence against women and girls (VAWG) such as female genital mutilation (FGM).  As long as these inequalities are not dealt with, the participation and empowerment of girls is not possible and the eradication of poverty remains a dream, where half of society is harmed for the [supposed] benefit of the remainder.  However, nobody benefits either economically or socially in an unequal society where VAWG is permissible.

Neither Liberia nor Indonesia has shown any real commitment to ending FGM and consequently, it can be concluded that neither has shown a real commitment to eradicating extreme poverty.  More than 58% of Liberian women have undergone FGM, yet there is still no ban in place, despite earlier governmental promises to the contrary.  In late January, along with local partners, we finally ensured justice for Ruth Berry Peal, who was drugged, forcibly mutilated by the Sande secret society and held in the bush for over a month.  We are greatly concerned about Ruth's safety, yet the Liberian government is doing little to her - or indeed the other thousands of girls who are still at risk of FGM and are forced to drop out from formal education by staying as much as six months in the bush in preparation of womanhood.  Meanwhile, in Indonesia, according to a 2003 Population Council study, 86-100% of girls aged 15-18 had undergone some form of FGM, while recent moves to 'medicalise' the practice there jeopardise decades of work to eliminate it entirely.

Considering the poor record of both Liberia and Indonesia in dealing with the basic right of half its population to a life free from violence, we are reliant on the remaining panel member, the UK, to lead the effort.  Last month's announcement by the Department for International Development (DfID) that £35m would be provided to help eliminate FGM in Africa and elsewhere is a clear indication that the UK is committed to ending VAWG in line with the eradication of extreme economic inequality.  This reflects the panel's aim of ensuring that wealthier countries play a direct role in benefitting the economically-developing world and is a step in the right direction towards integrating the provision of human rights into international policy making.

With this new source of funding, the UK has positioned itself as a true global leader in the elimination of FGM.  However, it is not starting from scratch.  We know that FGM prevalence has been falling among the young in some countries in the African region - albeit not as quickly as we might like.  According to the most recent Demographic and Health Surveys data on the prevalence of FGM, the countries which have shown significant reductions between older and younger women are Kenya (30.50%) and Burkina Faso (27.50%).  In engaging with countries on FGM, it is vital that at a policy level, DFID does not convey a sense of carrying 'colonial baggage' by treading on 'egg shells' on the issue. Instead, it should recognise that the campaign to eliminate FGM has already come a long way in Africa - from the 1980s when FGM was highly politically -charged and was literally a 'no-go area' - to today when African women are speaking out for themselves against the practice and Africa Nations have been leaders in calling for a global ban on FGM.

It is essential that we take the lead from Africa on this issue.  The protocol of the African Charter on Human and Peoples' Rights on the Rights of women in Africa, which is currently in force - spells out the comprehensive approach which African countries want to take with respect to addressing practices such as FGM and other forms of VAWG which inhibit the full participation of women.  It requests that states should take all necessary child protection, legislative and education measures to eliminate such practices - as well as the provision of essential support to survivors.  To achieve these objectives the African Union has pronounced 2010-2020 to be the 'Decade for African Women'.

The UK is now in a privileged position and can make real progress in the elimination of FGM and other forms of VAWG side by side with the eradication of extreme global poverty.  The two objectives go hand in hand; in many ways they are the same thing. If we move carefully, the development advances we can now make will be nothing short of earth-shattering.

The DFID Initiative

We are heartened by this month's announcement by DFID of up to £35 million to address the issue of female genital mutilation (FGM) overseas and strongly commend the department on its new initiative.  From speaking with affected Diaspora groups and the dozens of local women's organisations we work with, we know that they welcome this too.  However, although few details of the funding have been made available, in recent weeks we have been increasingly unsure if all parties are being listened to.  Some recent newspaper articles such as this piece in The Times and this in the Huffington Post have implied that an 'abandonment' model, which only considerations educational measures, is being considered over other more comprehensive options.  Meanwhile, experts in the field agree that FGM can only be effectively eliminated through a broad framework of both legislative and educational measures.

Between the two organisations, Equality Now and Daughters of Eve have been working to eliminate FGM in the UK and globally for over 30 years.  We have been tirelessly fighting to break the cycle of abuse through recognising FGM as a serious form of violence rather than something which is 'cultural' and which needs to be 'abandoned'.  Referring to FGM as 'cutting' or 'FGC' - as the 'abandonment' model does - contradicts the seriousness of this form of sexual terrorism.  It also insults survivors, who know that FGM has very little to do with ignorance and everything to do with controlling the sexual organs of women and girls.  Governments should only use the term 'FGM' as they otherwise risk sending out a very damaging message, which links it with culture and which suggests that it should not be dealt with in the same way as other forms of extreme violence. 

Synergy of Legislative and Educational Measures

To successfully eliminate FGM, a synergy of actions is needed, including partnerships between government and civil society.  This brings together community education, protection measures, justice outcomes and the provision of services to address the health complications. 

FGM does not occur in a vacuum and millions of women who have undergone it have also experienced other forms of violence.  Efforts to eliminate FGM which do not consider its root causes are not enough.  Furthermore, allowing perpetrators to take the lead and ignoring the fact that FGM is rooted in gender inequality means that the foundations for all other forms of VAWG are not dealt with effectively.  Our objective is to ensure a world which is free not only of FGM - but in which all forms of violence and discrimination against women and girls are eliminated.

We Can End FGM in a Generation But Not Through the 'Abandonment' Model

The DFID Initiative aims to end FGM in Africa within a generation.  This is a challenging goal given the fact that FGM is widely practised in several communities in the African region and that previous UN targets and pledges to end FGM within a generation have failed.  However, what is perhaps different this time is that a substantial budget is pledged to support FGM elimination.  And, luckily, DFID is not starting from scratch.  For decades, countless local groups have been working to accelerate the prevention of FGM in the UK, in the African region and elsewhere.  Valuable lessons can be drawn from this.  With further technical support - and with an adequate level of funding for local activists and support for governments who wish to tackle the issue, there is optimism that FGM can be significantly reduced - if not totally abolished - within a generation.  However, existing expertise will need to be used to ensure that this can happen.

Where FGM is Being Reduced

The good news is that overall trends on FGM in the African region show that FGM is reducing in a number of countries, when we compare the prevalence between older and younger women.  According to the most recent Demographic and Health Surveys data on the prevalence of FGM, the countries which have shown significant reductions in the prevalence of FGM between older and younger women are Kenya (30.50%), Burkina Faso (27.50%), Ethiopia (19.1%), Cote D'Ivoire (15.7%), Egypt (15.7%), Tanzania (14.5%), Eritrea (14.3%) and Nigeria (12.2%).   Out of these, the Burkina Faso Model stands out as one which offers a sustainable path for other African countries - and for the UK - to follow when addressing FGM.  We urge DFID to strongly consider this more comprehensive model.  It is not only a proven way of holistically dealing with FGM in the context of violence against women and girls, it is also the best option for directly tackling its root causes.

The Burkina Faso Model

Burkina Faso has a national plan on FGM and employs multiple strategies including:  

• Political will: The government of Burkina Faso has had a policy to end FGM since 1983 and continues to advocate strongly against the practice.  At national level, it has created a secretariat, which is government-funded, to oversee work on FGM.  It has a specific law banning FGM, which is enforced.

• Multiplicity of interventions: In addition to the enforcement of anti-FGM laws, there is involvement of several advocates from several sectors - religious leaders, members of the police force, medical professionals, teachers, youth and women's organisations. This has ensured that messages on FGM are broadly disseminated to reach the wider public.  Most importantly, FGM messages are mainstreamed within existing development and reproductive programmes.

• Outreach: A range of resources and outreach programmes - including awareness-raising campaigns by the police and army teams, information, education, and communication projects, media exposure and a free Child Line hotline for both the public to report suspected cases of FGM and for survivors or other affected parties to receive counselling.

• Clinic: In addition to integrating FGM into reproductive health programmes, Burkina Faso is developing a specialist clinic to address the complications of FGM.

• Data: Unlike the UK, Burkina Faso has up-to-date information on the prevalence on FGM, so is able to monitor trends and other behavioural factors influencing FGM through the periodic DHS surveys.  It also uses these to fine-tune and continuously improve its actions. 

The Successes

Female genital mutilation (FGM) is a global abuse of children, which has already affected 100-140 million women and girls around the world.  Equality Now has been working in this area for over 20 years and has been a key player in much of the progress made both in the UK and globally.  According to the most recent estimates, 66,000 women and girls have undergone FGM in England and Wales, while 24,000 girls under the age of 11 are at risk of having to undergo it.  Following our recommendation, a new 'Health Passport' was issued last November by the Home Office, aimed at protecting girls who are at risk of being brought abroad to undergo FGM.  Subsequently, Keir Starmer also introduced an 'Action Plan' on how to remove the barriers to prosecution of FGM crime in the UK.  We continue as secretariat for the second year running of the all-party-parliamentary group on FGM and provide advisory and technical support through the FGM Special Initiative, which seeks to strengthen community-based prevention work.  In early January this year, under guidance from Equality Now and other groups, the NSPCC finally decided to specifically include FGM within its existing child protection work.  More recently, the Department of Health and Royal College of Midwives both confirmed that they too are considering the inclusion of FGM-related questions in the information that midwives collect at childbirth.  The UK is well on its way to developing a 'joined-up' response to FGM, which will ensure that existing prevention and prosecution measures are properly implemented in a coordinated way.

There has been reason to celebrate too in the US, with the passing of the 'Girls Protection Act' last December with our collaboration and support.  168,000 women and girls living there have either already undergone, or are at risk of undergoing FGM.  This legislation closes a loophole, which previously made it possible for girls to be taken abroad to be abused.  It also sends a clear message that FGM is a criminal act which carries serious consequences.

Significant progress is also being made in Africa.  In the Gambia, where 78.3% of women have undergone FGM, a national consultative meeting took place this month, which was geared towards introducing a bill banning FGM.  This would pave the way for the country to join the 19 African countries which already have laws against the practice.  In Somalia where the prevalence of FGM is almost universal (98 %) and where religious conservatives push for some form of FGM, the new constitution includes a ban on all forms of "female circumcision".  Egypt has also confirmed this week that it is not revoking its ban on FGM, as had been previously feared.

In Kenya, grassroots efforts continue to focus on changing the mindset of practising communities.  One such initiative is the 'Tasaru Ntomonok Initiative' (TNI), supported by Equality Now with funds from Comic Relief.  TNI provides a haven for Maasai girls who have been alienated due to their rejection of FGM and forced into early marriage.  It was also instrumental in the conviction of the father of 12 year old Sasiano Nchoe and her circumciser.  Sasiano bled to death following FGM.  This unprecedented court ruling that took place in 2010 was facilitated by our Adolescent Girls Legal Defence Fund, with the help of TNI.  Progress can be slow but a recent demographic and health survey in Kenya indicates a decline in the prevalence of FGM among the Maasai community from 93% in 2003 to 73% in 2008.  This means that many many girls have been spared FGM.

The Challenges

Although there have been noteworthy successes on the African continent, huge challenges continue to exist in all countries where FGM is still prevalent.  The lack of political will to either enact or implement legislation to ban it continues to be a problem.  In Liberia, President Ellen Johnson Sirleaf pledged to make the elimination of FGM a government priority, but it is still legal and widely practised.  We are not aware of any immediate plans to change this, despite recent discussions with other world leaders on how to ensure justice for Liberian children.  Over 58% of women have already undergone FGM in Liberia, where the powerful Sande secret society continues to carry it out on young girls.  As is the case in Sierra Leone, FGM is a "vote-catcher" and governments avoid asserting their authority when it comes to traditional power structures such as the Sande society.  Our work in Liberia has been two-fold.  We have been supporting local partners in their efforts to gain justice for Ruth Berry Peal, who was kidnapped and forcibly subjected to FGM by the Sande society.  More recently, we have also been concerned about the well-being of journalist Mae Azango, who was forced into hiding after publishing a story on FGM.  Once again, members of the Sande society have threatened to forcibly subject her to FGM.  It is hoped that President Sirleaf will do more to help women like Ruth and Mae, as well as the countless other women and girls who are at risk of undergoing FGM in Liberia.  At this crucial point, we call on Liberia and all other countries where FGM is legal to enact a law which prohibits the practice as a matter of urgency and which fully safeguards the fundamental human rights of girls.  We also call on Indonesia to urgently enact a law which bans FGM from being carried out by medical professionals.  Indonesia's recent 'medicalisation' of FGM puts efforts to eliminate it in serious jeopardy.  In addition, we urge Malaysia not to consider adopting the Indonesian model, as some media reports suggest it may.

The Future

Recent progress illustrates that although we continue to face challenges in our drive to eliminate FGM, a global movement for change is gathering pace.  The Group of African States took a major step forward when it presented a draft resolution to intensify global efforts to eliminate FGM to the United Nations General Assembly.  No Peace without Justice, which steered this effort and involved numerous African governments, should be commended for their leadership on this issue. This led to the UN Global Ban on FGM last December - another key landmark event, as well as a great advocacy tool for the international public to put pressure on governments and UN agencies.

A world without FGM is in sight, but we need to redouble our efforts to ensure that both worldwide legislative change takes place and that educational efforts are drastically increased.  Both practising communities and the general public need to be regularly informed about the extreme harm which FGM does.  In focusing on these two areas, we can ensure that the next generation of girls is properly safeguarded from this enormously destructive and entirely unnecessary practice.  We also recommend that human rights and international trade policies should be integrated where possible to ensure that the global flow of money is used in a way which benefits our most vulnerable members of society.

The new development marks yet another major milestone in what has been an extremely positive 6-12 months.  Hot on the heels of the recent UN Global Ban on FGM, it also builds on the UK Home Office’s ‘Health Passport’ and DPP’s ‘Action Plan’, both of which are key steps in establishing a way forward for protecting those girls, who are risk of undergoing this extreme form of violence against the female child.

Official NSPCC involvement gives a new impetus to the excellent measures that some UK health services have already been involved in.  In particular, the Bristol NHS has one of the most promising models of good practice and is a great example of a multi-agency approach which safeguards girls at risk of undergoing FGM in the UK.  It is hoped that all UK health services will respond proactively to NSPCC’s efforts to push for the translation of policy on FGM into action, with compulsory FGM training for all staff members.  Improved communication on the issue of FGM between midwives, general practitioners and health visitors, who are in close contact with families from FGM-practising communities, opens the door for further progress.  The provision of information on FGM through the health service clarifies the responsibility of parents from practising communities to uphold their legal obligations.  With the added impact of NSPCC support, this drive for change should be more effective than ever before. 

Another excellent initiative, also taking place in Bristol, is the development of a teaching aid and plan for schools.  Supported by the Department of Public Health, it is being currently piloted in several secondary schools in the area.  This programme aims to empower young girls to consider who in their communities might be able to help support and protect them from FGM.  

Ensuring that frontline workers such as health and medical professionals are fully aware of their legal and social requirements to protect those girls at risk of undergoing FGM is, of course, only part of the solution.  The full implementation of a comprehensive plan on its elimination is now essential to protect the 24,000 girls in England and Wales (based on 2001 UK census figures), who are currently at risk of being mutilated.  This means that all barriers to prosecution are broken down and that effective child safeguarding systems are put in place as a matter of urgency. 

A real-life example can best illustrate both the pressure which older girls who are risk of undergoing FGM are frequently put under and also how weaknesses in the implementation of child protection measures can be addressed more effectively.

In 2010, Amie (11), who lives near London, informed her teacher that she was worried about having to undergo FGM during a trip to her extended family in The Gambia.  Unfortunately, the teacher’s first response was not to report the case to the police, as suggested by existing legal child protection legislation.  Instead, she helped her student to search for further information on the internet.  Amie found the address of Equality Now and sent us an emotional letter, which outlined her dilemma.  She wrote “I really hope you can help me not to have my private [sic] cut”.  Her sister, who had previously undergone FGM, had been informed that “if she ever tells anyone, the spirits will come and kill her immediately”.  The threat of “spirits” is a common technique used to maintain the cloud of secrecy which surrounds this unnecessary practice.  Although her father was doing his best to protect her, Amie wrote that “he is worried and upset that they would do the same to me”.  Unfortunately, parents are often overruled by grandparents and other more senior family members who live overseas in deciding what happens to their female child’s sexual organs.  Her case illustrates the obstacles which girls often face in the UK, even when their parents do not want them to have to undergo FGM.  On hearing of Amie’s case, we immediately contacted the relevant authorities to ensure that she could be safeguarded.  She is now out of harm’s way and living up to her full potential with her immediate family.

Amie’s case clearly illustrates the need for those in regular contact with girls - especially those who are primary school age and younger, and particularly those with parents or grandparents from countries where FGM is more prevalent - to be aware of how this practice takes place and what steps need to be taken to protect those at risk.

Proponents of FGM often say that the UK does not have “the guts” to prosecute anyone for FGM crimes.  However, I firmly believe that the UK does in fact have the guts to follow through with real action, which will bring about lasting change. In confirming FGM as a child protection issue, the NSPCC has taken a vital step in its elimination from the UK and further afield.  Its influence gives much-needed support for translating the government’s guidelines into action.  The onus is now on parents, guardians, childminders, social services and the health and education sectors, to take this forward and ensure that transformational change takes place in every hospital, school, nursery, police station, courtroom and home.

As is the case with other forms of child abuse, everyone needs to remain constantly alert to - and report - all evidence of emotional or physical pain, missed classes from school, or any of the other common indicators of FGM.  It is essential that we are all aware of what these are and how to respond accordingly.  In doing this, we will have prosecutions under existing UK legislation and we will see an end to this entirely unnecessary and horrific abuse of children.

The resolution, which was adopted by a broad consensus of UN member states, calls on them to undertake "all necessary measures, including enacting and enforcing legislation to prohibit female genital mutilations and to protect women and girls from this form of violence, and to end impunity". This is a great advocacy tool for the international public to put pressure on governments and UN agencies working on the issue, to ensure that they comprehensively implement the UN recommendations. 

With 26 grassroots partners in 19 countries in Africa promoting action to end FGM, Equality Now has been campaigning for 20 years for the enactment and effective implementation of legislation to eliminate the centuries-old harmful practice. FGM involves the partial or complete removal of female external genitalia and, aside from its potential lifelong physical and psychological risks, is a gross violation of the human rights of the girl child. The WHO estimates that between 100 and 140 million girls and women worldwide have been subjected to FGM, which takes place in 28 countries in Africa, parts of Asia and the Middle East, as well as in some communities in the United States, Europe, Australia and New Zealand. It is performed to control female sexuality and is a recognised form of gender based violence against girls and women. Due to the sensitivity of the subject and fear of losing votes and support from religious and social conservatives, many governments have not given the issue the attention it deserves, preferring instead to relegate their responsibility to women's organisations. 

In the UK, local authority and national health service professionals have been reluctant to engage with the issue of FGM, partly due to fear of being accused of racism by the affected communities. To date, these communities have used this weak stance on prosecution to their advantage. Perpetrators can also benefit from the fact that cases rely on underage victims to provide evidence, usually against close family members. To address it properly requires a holistic approach which brings together educational and legislative measures including in particular those relating to child protection.

The new UN resolution gives added impetus to recent positive developments in the UK, such as the 'Health Passport', launched in November by the Home Office, which protects girls from their extended families and the DPP Action Plan, which deals head-on with the barriers that currently exist in eliminating FGM.  The UK government's 2011 multi-agency practice guidelines, clarify that FGM is a form of both child abuse violence against women and girls and should be dealt with accordingly.

It is estimated that in England and Wales, 66,000 women have undergone FGM, while 24,000 girls are at risk.  However, the real numbers are likely to be much higher than these 2001 statistics. Equality Now supports continued efforts to establish an essential support system for both those girls who are at risk of undergoing FGM, as well as for those who seek to end it, by reporting either perpetrators or suspected potential cases of this horrific child abuse. As secretariat for the second year running of the cross party parliamentary body, which focuses exclusively on FGM in the UK, Equality Now is committed to being involved at every step of the journey.