COUNTRY

GENDER PROFILE 

Guinea-
Bissau

QUALITY ASSURANCE AND RESULTS DEPARTMENT

GENDER AND SOCIAL DEVELOPMENT MONITORING DIVISION (ORQR.4)
The Country Gender Profile for Guinea Bissau is the product of strong
collaboration between the Government of Guinea Bissau, the African
Development Bank (AfDB) and the UN Women-Bissau. The publication was
prepared under the guidance of the Director of the Department of Quality
Assurance and Results on the Bank side. Marc Kouakou and Yannis Arvanitis
(from the AfDB), and Laetitia Kayisire (from UN Women) were co-task
managers of this report.

We especially acknowledge the contributions of chief writer Kathleen

Barnett (International consultant funded by the Portuguese Trust Fund).
We would like to recognise the special role of Caterina Gomes Viegas from
UNIOGBIS and Samba Tenem Camara national consultant.

For questions about this document, please contact:

Mr. Simon Mizrahi Mr. Ndongo Mamadou Lamine

Director ORQR, Resident Representative
AfDB SNFO, AfDB

Mr. Koffi Marc Kouakou Mr. Yannis Arvanitis

Principal Statistician-Economist Principal Country Economist
on Gender, ORQR.4, AfDB SNFO, AfDB

Ms. Kathleen Barnett Ms. Marie Laetitia Kayisire

Consultant, AfDB Program Coordinator
UN Women-Bissau

Copyright © 2015 African Development Bank Group

All rights reserved. Edited November 2014

Published October 2015.

AFRICAN DEVELOPMENT BANK GROUP

COUNTRY GENDER PROFILE: GUINEA-BISSAU

This document was prepared by the Quality Assurance and Results

Department at the African Development Bank. Designations employed in
this publication do not imply the expression of any opinion on the part of
the African Development Bank concerning the legal status of any country or
territory

African Development Bank

Immeuble CCIA - Avenue Jean-Paul II - 01 B.P. 1387 Abidjan 01, Côte d’Ivoire
Téléphone : (225) 20 26 36 56 • Fax : (225) 20 21 31 00

Republic of Guinea-Bissau

www.afdb.org

Design & layout: Créon – www.creondesign.net

 COUNTRY
GENDER PROFILE 

Guinea-
CONTENTS Bissau
Prefacevi
Executive summary 1
Guinea-Bissau gender profile: Quick facts 3

Introduction 5
Gender in Guinea-Bissau: political, economic and social context 5
Objectives and methodology for the Guinea-Bissau gender profile 5
Structure of the gender profile for Guinea-Bissau 6

Gender in Guinea-Bissau: Political, structural

and socio-demographic context 7
Political context 7
Government structure and political parties 8
National gender machinery 8
Gender and civil society 9
Gender and socio-demographic characteristics 9
Poverty 11
Human development 11
Family structures 12

Gender and the economy 13

Overview 13
Agriculture 13
Fishing 14
Support for women’s economic Roles 14

Gender and legal rights 17

Existing Laws: Implementation, enforcement and public dissemination 17
Gender-discriminatory laws: Legal reform 17
Justice Services: Accessible and gender-sensitive 18
Summary 18

Gender and social development 19

Health 19
Education 20
Gender-specific abuses 20
Summary 21

Potential for action on gender equality 23

Recommendations25

Conclusion29

Bibliography31
  v
List of abbreviations

AfDB African Development Bank

AMAE Association of Economically Active Women (Associação das Mulheres com Actividades
Económicas)
ANP National Assembly (Assembleia Nacional Popular)
APALCOF Association of Women Agricultural Producers and for Empowerment against Hunger
(Associação das Produtoras Agricolas e para a Luta Contra o Fome)
CNI National Islamic Council (Conselho Nacional Islamico)
CNMT National Council of Working Women (Conselho Nacional das Mulheres Trabalhadoras)
DENARP II National Strategy for Poverty Reduction II (Segundo Documento de Estratégia Nacional de
Redução da Pobreza)
ECOWAS (CEDEAO) Economic Community of West African States (Communauté Économique des États de
l’Afrique de l’Ouest)
EU European Union
FGM Female Genital Mutilation
GBV Gender-based Violence
GTG Gender Thematic Group of the United Nations Integrated Peace-Building Office in Guinea-Bissau
ILAP2 Household Survey for Poverty Evaluation (Inquérito Ligeiro para Avaliação da Pobreza), 2011
IMC Institute for Women and Children (Instituto de Mulher e Criança)
INASA National Institute for Public Health (Instituto Nacional de Saúde Pública)
LGDH Bissau-Guinean League for Human Rights (Liga Guineense dos Direitos Humanos)
MDGs Millennium Development Goals
MICS4 Multiple Indicator Cluster Survey 4, Government of Guinea-Bissau and UNICEF, 2010
MMFCS Ministry of Women, Family and Social Cohesion (Ministério da Mulher, Familia e Coesão
Social; previously Ministério da Mulher, da Familia e da Solidaridade Social)
PAIGC African Party for the Independence of Guinea and Cape Verde (Partido Africano da
Independência da Guiné e Cabo Verde)
PNIEG National Policy for Gender Equality and Equity (Política Nacional para a Promoção da Igualdade
e Equidade de Género), 2014
PPM Women’s Political Platform (Plataforma Política das Muheres)
PRS Party for Social Renewal (Partido para a Renovação Social)
REMSECAO Rede Paz e Segurança para as Mulheres do Espaço da CEDEAO
RENLUV-GC National Network against GBV and Violence against Children (Rede Nacional de Luta contra
Violência Baseada no Gênero e na Criança)
UNIOGBIS United Nations Integrated Peace-Building Office in Guinea-Bissau
vi GENDER PROFILE:  Guinea-Bissau

Preface

funded by UN Women, Samba Tenem Camará. Special

Background of the Gender Profile thanks and Acknowledgment to Ms. Barnett as Lead
Author.
In preparation for the renewal of discussions with
the Government of Guinea-Bissau for the first time The key government partner for the mission was
since the military coup of April 12, 2012, the African the Ministry of Women, Family and Social Cohesion
Development Bank (AfDB) country economist for (Ministério da Mulher, Família, e Coesão Social),
Guinea-Bissau approached UN Women-Bissau and headed by Minister Bilony Nhama Nantamba Nhassé.
the two organizations formed a partnership with the Minister Nhassé provided important inputs as well as
Government to produce a country gender profile. The official sponsorship for the mission, and presided at the
AfDB initiated the Gender Profile in the context of two final workshop for stakeholders.
events: the inauguration on June 23, 2014 of a new
democratically-elected government in Guinea-Bissau The Gender Unit of the United Nations Integrated
and the return of international funding partners; and the Peace-Building Office in Guinea-Bissau (UNIOGBIS)
publication in January 2014 of the Bank’s new Gender provided critical information and contacts in
Strategy for 2014–2018. advance of, and during, the mission. The UNIOGBIS
Gender Program Officer, Caterina Gomes Viegas
For the government and civil society of Guinea- worked tirelessly to facilitate meetings with key
Bissau, the Gender Profile can help to set priorities government and civil society stakeholders, personally
for implementation of the country’s new national accompanying the team in Bissau and arranging for
gender strategy, Política Nacional para a Promoção accompaniment by other UNIOGBIS staff Bubacar
da Igualdade e Equidade de Género (PNIEG), with Turé, Midana Gomes Indi and Roberto Fernandes
assistance from funding and technical partners. for meetings in Bafatá, Contubuel and Gabú. Gilda
For the African Development Bank, the Gender Mendes provided expert translation services for the
Profile provides inputs to its country strategy and mission final workshop in Bissau, and Braimaq served
its dialogue with the government, and ensures that as rapporteur.
Bank interventions will support gender-inclusive and
sustainable poverty reduction and economic growth. Special thanks to all people met during the mission
The Gender Profile will support the work of the United including Government members, representatives of civil
Nations System, in particular the Gender Thematic society organizations, and national resource-persons
Group (GTG) with partners and stakeholders in on gender issues, and to the Portuguese Trust Fund
advancing gender equity. and UN Women which funded the international and
national consultants, respectively. The mission team
benefitted from the generosity of all Bissau-Guineans
and international development partners who shared
Acknowledgements their time, ideas, reports and recommendations.

The Gender Profile technical team was composed of The report was prepared by Koffi Marc Kouakou,
the AfDB Gender Division’s Statistician-Economist Koffi Yannis Arvanitis, Kathleen Barnett, Marie Laetitia
Marc Kouakou (team lead); the UN Women-Bissau Kayisire and Samba Tenem Camará with comments
Program Coordinator Marie Laetitia Kayisire guided by and suggestions from the following AfDB staff:
the UN Women Regional Office for West and Central Gisela Geisler (Chief Gender Specialist); Alice
Africa (WCARO); the AfDB country economist Yannis Nabalamba (Chief Statistician); Zéneb Touré (Gender
Arvanitis; AfDB staff in Bissau, Albino Jose Cherno Specialist and Principal Civil Society Engagement
Embalo and Alfredo Domingos Lopes; an international Officer); Rachel Aron (Principal Social Development
consultant funded with assistance from the Portuguese Specialist); Linet Miriti and Egidia Rukundo (Senior
Trust Fund, Kathleen Barnett; and a local consultant Gender Specialists).
 Preface vii

Limitations of the Report para Avaliação da Pobreza) in 2010; and the UNICEF-
supported Multiple Indicator Cluster Survey (MICS4)
The mission could not interview all key people or on the situation of children and women also in 2010.
cover all relevant issues due to the limits of time In light of the severe negative socio-economic impact
and resources, and the report suggests areas for of the 2012 coup, new data are a priority for an
further research. Due to the years of crisis in Guinea- accurate profile of current conditions of gender in
Bissau, there are large data gaps and many relevant Guinea-Bissau, and to monitor future progress on
statistics were unavailable or out of date. The last gender equitable growth.
reliable population surveys in Guinea-Bissau were
the country demographic census in 2009; the UNDP- Corrections of errors of fact, omissions, or mistaken
assisted census on poverty ILAP2 (Inquérito Ligeiro interpretations are welcome. 
 Executive summary 1

Executive summary

Over 30 years of repeated military coups and political participatory process involving government and civil
instability in Guinea-Bissau, and especially the society, there is a unique opportunity to incorporate a
consequences of the most recent coup in April 2012, gender perspective in the new policies and priorities.
have undermined socio-economic progress and the
institutions needed for gender-equitable development. Guinea-Bissau women’s groups have detailed
Conditions today for the majority of women as well as knowledge and expertise in specific gender areas
men in Guinea-Bissau are marked by poverty, lack of and have produced many useful reports and
basic infrastructure, and absence of basic services of recommendations on specific issues, as well as
health, education and justice. providing substantial inputs to the PNIEG and the
Second National Strategy for Poverty Reduction,
Against the background of government instability and DENARP II1 (Segundo Documento de Estratégia
crisis, women’s associations and civil society have Nacional de Redução da Pobreza, 2011). Civil society
worked to address women’s needs, and provided and government reports were an invaluable resource
recommendations and advocacy on gender issues for the Gender Profile.
for the 2013-14 transition government, including the
formulation of a National Policy for Gender Equality Interviews with Bissau-Guinean women and
and Equity, PNIEG (Política Nacional para a Promoção women’s associations, government officials, other
da Igualdade e Equidade de Género). These civil society groups, and international donors, and
organizations received critical support for their efforts the review of documents and reports, indicate that
from United Nations (UN) agencies which remained in women have many needs, as is true for women in
the country after the coup as part of the UN Integrated other low-income countries of Africa and elsewhere,
Peace-Building Office in Guinea-Bissau (UNIOGBIS), including: income, opportunity, legal rights, literacy
and also from the European Union and a few other and education, reproductive and maternal health,
partners after the withdrawal of most international freedom from violence and harmful traditional
donors. practices, and changes in patriarchal norms and
customs. The new government is committed to
The PNIEG finds that women and girls have been gender equality but it faces daunting development
especially disadvantaged by the years of crisis since challenges in every sector, weak institutions, and
they are allocated by gender to a secondary status lack of resources. With limited government resources
in all spheres of household, community and national – financial, institutional and human capital/personnel
life (p.12). They face gender-based restrictions on -it is essential to prioritize among the many gender
their access to scarce resources and to education, needs.
and the double burden of household work to care
for and feed their families along with market work to This Gender Profile suggests that the priority should
contribute to family income. Additionally, girls and be to target actions which can bring the greatest
women in Guinea-Bissau face the gender-specific benefit to the largest number of poor women, and to
risk of maternal mortality, and gender-specific abuses choose a few areas where investments can produce
such as domestic violence, female genital mutilation an immediate benefit as well as a spillover effect
(FGM), and early/forced marriage (PNIEG, p. 57). on other areas of need. Based on interviews with
stakeholders in Bissau and a review of available data
With a new government democratically elected in and reports, the following are three sector priorities
June 2014, strong civil society women’s organizations and two overarching priorities recommended to
supported by committed international donors, advance gender equitable development in Guinea-
and a national gender policy developed through a Bissau.

1. It is noted that at the time of publishing, the government’s new overall strategic document is the Strategic and operational plan « Terra Ranka », presented to the international community at the
end of March 2015. This new strategic document is a synthesis of the DENARP II and the new government’s medium-term priorities. With this in mind, it should be noted that (i) the DENARP II
is still technically valid as the “Terra Ranka” vision gives overarching priorities based on the DENARP II, and (ii) the analysis here presented is aligned with the « Terra Ranka » plan.
2 GENDER PROFILE:  Guinea-Bissau

Sector priorities use these to also educate both women and men
about laws against FGM and GBV;
Economic: Empower women’s economic roles
and productivity ◗◗ Establish locally accessible adult literacy
programs for women, especially in rural areas;
◗◗ Create a special fund for loans and micro-
credit for women agricultural workers and small- ◗◗ Improve rural access to quality primary and
business owners; secondary education with priority efforts to
increase girls’ school enrolment and completion
◗◗ Provide extension services to women’s rates.
cooperatives, associations and small/medium-
businesses, and technical training schools for
both girls and boys in rural areas;
Priorities
◗◗ Ensure basic infrastructure - rural roads,
water, sanitation and electricity -.to increase ◗◗ Ensure participation of women in the design,
efficiencies and productivity of women’s market implementation, oversight and management
and domestic work. of policies and programs through recruitment,
hiring and promotion policies in all government
Legal: Ensure women’s human and legal rights agencies and the private sector, and quotas for
party electoral lists.
◗◗ Implement a new Land Law (Lei da Terra)
ensuring women’s property rights; ◗◗ Ensure nationwide knowledge and awareness
of women’s human and legal rights and the
◗◗ Implement, disseminate and enforce existing importance of gender equality to Guinea-
laws against domestic violence and female Bissau’s social and economic development
genital mutilation (FGM); through a national education campaign with
messages tailored to women, men, girls and
◗◗ Establish locally accessible justice services for boys.
women, with gender training for local police
and justice officials, to strengthen civil law over Once the government determines its gender priorities
traditional/customary law. and identifies the needed funding, it can negotiate
with the African Development Bank, UN Women, and
Social: Invest in girls’ and women’s human capital other donor partners to ensure that all development
assistance can support gender-equitable growth in
◗◗ Expand efforts to reduce maternal mortality, and Guinea-Bissau. 
 Guinea-Bissau gender profile: Quick facts 3

Guinea-Bissau gender profile:

Quick facts

The data below are for the latest years available, as indicated. Given the severe economic contraction in
Guinea-Bissau since the April 12, 2012 coup, it is likely that many of the socio-economic indicators have
worsened.

Box 1:  Quick Facts

Population (2014 est.):  1.7 million; 50.3% women; 49.7% men a)

Share of population (1/2 women) outside capital city of Bissau:  76% b)
Share of rural population (1/2 women) below poverty line (2010):  75.6% c)
Share of women engaged in agricultural work:  80% d)
Mean years of schooling women and men (2001–12):  1.4 women; 3.4 men e)
Illiteracy women and men (2012 est.):  58% women; 31% men e)
Life expectancy at birth women and men (2013):  55.8 yrs. women; 52.8 yrs. men c)
Experience of Female Genital Mutilation/Cutting (FGM/C):  50% of women aged 15-49 e)
Fertility rate (2012):  5.0 g)
Maternal Mortality Rate (2010):  790 per 100,000 live births h)
Risk of Maternal Mortality:  1 in 25 women h)
Contraceptive Prevalence Rate (2010):  14% c)
HIV/AIDS prevalence among pregnant women:  5% i)
Human Development Index rating (2013):  177 out of 187 countries e)

Sources:

a. African Development Bank, Guinea-Bissau f. República da Guiné-Bissau, Inquérito aos

country statistics Indicadores Múltiplos 2010 (MICS4), p. xv

b. Guinea-Bissau population census 2009 g. United Nations Children’s Fund (UNICEF), Country
Statistics Guinea-Bissau
c. World Bank, World Development Indicators
Guinea-Bissau h. World Health Organization (WHO), UNICEF,
UNFPA and the World Bank, Trends in Maternal
d. República da Guiné-Bissau, Política Nacional Mortality, 2012, p.32.
para a Promoção da Igualdade e Equidade de
Género (PNIEG), p.35. i. República da Guiné-Bissau, Instituto Nacional de
Saúde Pública da Guiné-Bissau, Estudo Sentinela
e. United Nations Development Programme (UNDP), De II Geração Sobre A Prevalência Do VIH Nas
Human Development Report 2014 Grávidas na Guiné-Bissau, 2014.
4 GENDER PROFILE:  Guinea-Bissau
 Introduction 5

Introduction

Gender in Guinea-Bissau: ◗◗ Women’s organizations provided services,

political, economic and social produced reports and ensured a participatory
process for drafting of legislation and the
context formulation of a major new national gender
Guinea-Bissau has had more than 30 years of military strategy, the National Policy for Gender Equality
coups, attempted coups, and political assassinations and Equity, PNIEG (Política Nacional para a
in repeated struggles between military and political Promoção da Igualdade e Equidade de Género)
elites, resulting in poverty and food insecurity, lack finalized in 2014. Women’s groups also worked
of basic infrastructure, absence of government to disseminate information about the new
services, and extremely weak state institutions and elections of April/May 2014, ensuring a voter
capacity. Guinea-Bissau is currently one of the turnout of both women and men of almost 90%
least-developed countries in Africa, despite natural according to the UN Peacebuilding Commission,
resources and a favorable climate and location. and served as election monitors.

These negative socio-economic conditions fall more ◗◗ Women expanded their income-producing
heavily on women than on men because of gender efforts in agriculture, horticulture, fish-vending,
bias. Their gender-specific triple roles in market market-selling, small trade, and the formation of
labor, household labor, and reproductive labor small and medium-businesses in order to sustain
are more onerous, and they are the last to access their families, becoming principal breadwinners
scarce resources. Traditional gender discrimination for many households as men lost formal sector
in all spheres of life - social, economic and political jobs and/or their salaries went unpaid.
- and gender-specific abuses such as gender-based
violence, female genital mutilation, and early/forced
marriage, have persisted without a viable state
committed to the rule of law and human rights. Objectives and methodology for
the Guinea-Bissau gender profile
With a new democratically elected government
in June 2014 and strong civil society women’s The objectives of the Gender Profile, as defined in
organizations supported by committed international the Terms of Reference were to perform the following
donors, there is an opportunity to incorporate a tasks, in close collaboration with UN Women:
gender perspective in new policies and priorities.
The roles of women since the coup of April 2012 ◗◗ “Identify gender inequalities, constraints,
highlight the potential for women’s contributions to progress and challenges in all sectors, and
peace, stability, and socio-economic growth under recommend strategies in key areas to advance
the new government. gender equality;

◗◗ The years of coups and counter-coups in Guinea- ◗◗ Provide inputs for the new African Development
Bissau, including the last one, reflected struggles Bank (AfDB) country strategy for Guinea-Bissau,
for power in and between the military and political as well as the design and implementation of its
elites which, due to gender inequities, were male. projects, in order to ensure that its development
In contrast, women in Guinea-Bissau are “viewed investments have a gender-equitable impact;
as more able to resolve conflict (than men)...and
as peace-brokers” (Boiro, 2014, p.22). A United ◗◗ Serve as the basis for discussion by the AfDB
Nations Peacebuilding Commission report in with the Guinea-Bissau government and other
March 2014 stressed the value to the country development partners about specific gender
of “women’s ability to bring together different policies and programs that are needed in order
ethnic groups and religious denominations and to advance women’s ability to contribute to, and
work for common agendas that are strategic to benefit from, stable and sustainable development
peacebuilding efforts” (p.4). in Guinea-Bissau.”
6 GENDER PROFILE:  Guinea-Bissau

Structure of the gender profile for provides a gender perspective on the country’s
Guinea-Bissau economy; Chapter 4 reviews gender inequities in
legal rights and access to justice; and Chapter 5
The following chapters provide information and data discusses gender and social development indicators.
to create a gender profile of Guinea-Bissau. Chapter Chapter 6 assesses the opportunities and risks
2 provides background on the country’s political for progress on gender equality in Guinea-Bissau,
history, government structure, and socio-economic and Chapter 7 provides priority recommendations.
conditions with gender implications; Chapter 3 Chapter 8 contains the conclusion of the report. 
 Gender in Guinea-Bissau: political, structural and socio-demographic context 7

Gender in Guinea-Bissau:
Political, structural and socio-
demographic context

The many years of military coups and conflicts in However, struggles for economic and political power
Guinea-Bissau, most recently in April 2012, and the within the PAIGC and between the military and the
consequent failure of government institutions are PAIGC led to repeated military coups and government
the background for the country’s current gender fragility, stalling socio-economic development as well
conditions. Peace, stability and representative as progress on gender equality. In 1980 a military
government are essential for progress on gender coup led by João Bernardo (Nino) Vieira ousted the
equality in Guinea-Bissau. With the inauguration of country’s first president Luis Cabral, both of the PAIGC,
a democratically-elected multi-party government followed by several unsuccessful military attempts to
in June 2014, the basic conditions may finally have unseat Vieira. In 1995 the country held its first free
been met, and strong Bissau-Guinean women leaders elections and Vieira was elected president. In 1998,
and organizations which remained active during the the military again rebelled against Vieira, launching
absence of government institutions have ensured a full-scale civil war which destroyed much of the
that the new government is publically committed to already weak economic and social infrastructure. New
gender equality. It will be essential for the government elections in 1999 ended the PAIGC hegemony and
and civil society to agree on key gender priorities and brought the Party for Social Renewal (PRS) to power,
monitor progress, with support from technical and but in 2003 the military acted again to depose the PRS
funding partners. government. With new elections in 2005, Nino Vieira
returned from exile to run as an independent and won
the presidency in the second round of voting.

Political context From 2005-09 there was a brief period of peace, donor
assistance resumed, and the country experienced
From 1962-1974, Guinea-Bissau fought a long and stability and some economic and social progress
bitter independence battle against Portugal, led by the which benefitted women as well as men. GDP grew
African Party for the Independence of Guinea-Bissau by 3.2% in 2008 and 3% in 2009. However, underlying
and Cape Verde (PAIGC). Many women participated political-military tensions continued and in March
as combatants and as PAIGC leaders and in 1966 2009, elements of the military assassinated Vieira
the party formed a Women’s Commission and began and in April 2010 forcibly removed the Prime Minister,
mobilizing women on an equal basis with men. The Carlos Gomes Jr. (PAIGC). With renewed promises of
PAIGC took early positions in support of women’s democratic elections, some donors and international
rights and gender equality and in opposition to female organizations remained in the country, permitting
genital mutilation (FGM) even though the population another brief period of stability. GDP grew 3.5% in
at the time was even more traditional than today, 2010 and 5.3% in 2011. Then on April 12, 2012,
with strongly defined sex roles. After independence in the military again staged a coup, halting the second
1974, various PAIGC women leaders held positions in round of elections to prevent the projected winner,
the National Assembly and government. ex-Prime Minister Carlos Gomes Jr., from becoming

2. A long-standing backdrop for conflict between military and political elites has been struggle over illicit gains from gun trafficking to rebels in Casamance, Senegal and Colombia, and from
allowing the country to serve as a conduit for drugs from South America to Europe, with drugs transiting from inbound sea shipments to outbound air shipments, both controlled by elements of
the military. The U.S. labeled the country a “narco-state,” and in March 2013, U.S. agents in a sting operation arrested the head of the Guinea-Bissau Navy head in international waters. The main
impact of drug trafficking on women and the population as a whole has been impoverishment and lack of services due to corruption and the undermining of government institutions. The new
government has acted strongly, deposing in September 2014 the Army Chief of Staff and former coup leader Antonio Indjai, (indicted by the U.S. in April 2014 for involvement in the trafficking),
and initiating an October 2014 meeting of the government and the national assembly with the United Nations Office on Drugs and Crime (UNODC) to discuss further steps.
8 GENDER PROFILE:  Guinea-Bissau

president.2As a consequence of the 2012 coup, There are two principal political parties in Guinea-
international funding partners including the African Bissau: the PAIGC (Party for the Independence of
Development Bank withdrew and the government Guinea and Cape Verde) with 52 seats in the National
became incapable of paying public salaries, delivering Assembly; and the PRS (Party for Social Renewal)
services, or maintaining even a basic presence in most with 41 seats. There are four smaller parties: the
areas of the country. Problems of poverty, lack of rule PCD (Democratic Convergence Party); PND (New
of law, corruption and private exploitation of national Democracy Party); PRID (Republican Party for
assets and resources worsened, with negative impacts Independence and Development); and UM (Union
on the lives of the population, especially women. for Change). Candidates are elected from party lists.
Women interviewed said that a candidate’s position on
In June 2013 after intervention by the Economic the list is dependent on the ability to gain support from
Community of West African States (ECOWAS), military other party members through use of one’s personal
leaders and political parties agreed to participate wealth and power, so women - who generally have
in a transition government and began a process to neither of these - are disadvantaged in their ability to
involve civil society in democratic elections for a new run for office. They said that in the recent elections,
president and national assembly. Bissau-Guinean qualified women candidates were either not on the
women leaders and civil society organized to pressure party lists or were at the very bottom as alternates,
for inclusion of women’s needs and rights in policies and stressed that a gender quota requirement would
of the new government, and for women’s participation help to address this issue.
in the elections as candidates and voters. With the
inauguration of the new multi-party government in Women representation at the sub-national level is less
July 2014, the country begins again to address its significant than at national level. This is partly due to
enormous development needs, including the urgency the fact that decentralization is limited in the country.
of women’s equal rights. For instance, municipal elections have not taken place
and are constantly being postponed since they were
first planned in 1994. This leaves a political vacuum
filled in by local/traditional power structures which
Government structure and tend to be male dominated. At the same time, state-
political parties appointed governors head the country’s nine regions,
of which two are women.
Strong and stable government institutions are essential
to peace and stability and provide the mechanisms for
realization of national and international commitments
to human rights and gender equality. Through its National gender machinery
internal policies of hiring and promotion of women at all
levels, the government can also show its commitment The 4th World Conference on Women in Beijing (1995)
to gender equality. The structure of the Guinea-Bissau Platform for Action called for all governments to
government, and the representation of women in each create a “national machinery” as the central policy-
branch, are described in Annex 1. coordinating unit for the advancement of women. In
Guinea-Bissau, the Institute for Women and Children,
In the new government there are 16 Ministers including IMC (Instituto da Mulher e Criança) is the lead agency
five women who head the Ministries of Defense, for government actions to advance gender equality
Education, Justice, Public Health, and Women, Family and women’s empowerment (DENARPII, 2011,
and Social Cohesion. There are 15 Secretaries of State p.105, translation by the author), with oversight and
one of whom is a woman, the Secretary for Budget guidance from the Ministry of Women, Family and
and Fiscal Affairs. Bissau-Guinean women activists Social Cohesion.
expressed sharp dissatisfaction that the share of
women ministers was not closer to 50%, especially The critical government documents guiding the gender
after the significant role that women’s groups played agenda in Guinea-Bissau are the national gender
in ensuring the high voter turnout and in monitoring policy PNIEG (Política Nacional para a Promoção da
the polls. Fourteen women were elected to the new Igualdade e Equidade de Género 2012–2015) and the
National Assembly, out of 102 seats. Recently, the poverty strategy DENARP II (Segundo Documento
Justice Minister announced the appointment of a de Estratégia Nactional de Redução da Probreza)
woman as head of the Judicial Police, and two of the in which gender is integrated. With the government
nine recently appointed regional governors are women. in the process of consolidating its mandate and
The President announced in October 2014 the creation new discussions with international technical and
of a new position of Assistant to the President for funding partners, the responsibility and resources for
Human Rights and Gender, to which he appointed implementation of gender commitments remain to be
Indira Cabral, the daughter of Amílcar Cabral. clarified.
 Gender in Guinea-Bissau: political, structural and socio-demographic context 9

Gender and civil society (including political empowerment through projects

around electoral monitoring & rights).
There is a strong network of non-governmental
organizations involved in women’s issues, as well as
other civil society organizations working on human
rights and the environment, who continued their work Gender and socio-demographic
during the crisis years with support principally from characteristics
UNIOGBIS and the European Union.
Key socio-demographic characteristics in Guinea-
Examples of organizations working on gender issues Bissau such as region of residence, ethnic
in Guinea-Bissau are the following: Plataforma Política groups, languages and religions are important to
das Mulheres (PPM); Rede Paz e Segurança para as an understanding of women’s lives and gender
Mulheres do Espaço da CEDEAO (REMSECAO); Rede conditions, especially in the context of the many years
Nacional de Luta contra Violência Baseada no Gênero of lack of a viable centralized state. The following is
e na Criança ( RENLUV); Associação das Mulheres a brief description of the gender relevance of these
com Actividades Económicas (AMAE); Conselho characteristics.
Nacional das Mulheres Trabalhadoras (CNMT);
Plataforma de Organização de Sociedade Civil Regional structure
(Bafatá); Intervenção Feminina (Gabú); Associação
das Produtoras Agricolas e para a Luta Contra o According to the African Development Bank, the
Fome (APALCOF, Contubuel); Comite Nacional para estimated population for 2014 is 1.7 million of which
o Abandono das Práticas Nefastas (CNPN); Djinopi; 50.3% are women. There are significant socio-
Sining Mira Nassiquê; and Voz di Paz. There are also economic differences and conditions for women
associations for specific areas of women’s work such among the regions and especially between the regions
as women fish-vendors, who are linked as members outside of Bissau and the capital. Box 1 below shows
of the umbrella association of economically active Guinea-Bissau’s regional structure. According to the
women AMAE. 2009 census, approximately ¾ of the population
(74%) live outside of the capital of Bissau which is
The Women’s Political Platform, PPM (Plataforma an autonomous sector. The four largest regions by
Política das Mulheres) was created in 2008 and area as well as population are Bafatá and Gabú in
has acted since then as the key mechanism for the East, and Oio and Cacheu in the North, each with
dissemination of information and of advocacy for 13-15% of the total population/women. The other
women’s political participation without restriction of regions - Biombo in the North and Tombali, Quinara
political party. The PPM has 11 affiliated member and Bolama in the South – each have 2-6% of the
organizations, is a focal point of attention by all political population/women.
parties, and has been essential to the success of
actions on women’s rights. Sixty percent of the population/women are considered
rural and 40% urban (2009 census) but statistics on
Other civil society organizations such as the Bissau- conditions for women by rural-urban categories need
Guinean League for Human Rights, LGDH (Liga to be interpreted carefully since 26 percentage points
Guineense dos Direitos Humanos) and Tiniguena of the 40% urban share are attributable to Bissau,
have strong gender components in their work. There which has a population of 400,000. The next largest
are also business and professional organizations such city has a population of 23,000 (Bafatá, the capital
as the Chamber of Commerce and the Association of of Bafatá region), and other cities range from 2,000
Women Jurists, and religious organizations such as -7,000. A deeper analysis of rural-urban conditions for
National Islamic Council. women would be warranted.

International organizations such as the UN agencies Religions

of the UNIOGBIS Gender Thematic Group and the
European Union continued to provide critical support As is true around the world, gender roles in Guinea-
to civil society organizations working on women’s Bissau are strongly influenced by religious beliefs.
issues after the 2012 coup caused the withdrawal of Animism was the original religion in the territory of
official donors. The partners are: the United Nations Guinea-Bissau and its spiritual influences and beliefs
Population Fund (UNFPA), UN Women, the European remain strong today, both as the stated religion of
Union, the World Food Program (WFP) as well as the many (40%) and through its influence on the two other
African Development Bank and the support focus religions with which people identify: Islam (50%) and
mostly on economic empowerment (mostly through Christianity (10%, primarily Catholic). Some Bissau-
agriculture), access to basic social services (including Guinean men as well as women use religious beliefs
water & sanitation), health and gender based right to justify the inferior status of women, including
10 GENDER PROFILE:  Guinea-Bissau

Figure 1:  Guinea-Bissau regions

Gabù
Oil
Cacheu Bafata

Biombo

Bissau
Quinara

Tombali
Bolama

acceptance of violence against women and the and they were strong resisters to Portuguese
harmful practice of female genital mutilation (FGM). colonialization, joining the PAIGC and the liberation
The National Committee to End Harmful Traditional army in large numbers. They have remained dominant
Practices, CNPN (Comité Nacional para o Abandono in the armed forces although many now support the
de Práticas Nefastas) found that many Muslims who country’s second party, the Party for Social Renewal,
support the practice of FGM justify it as a requirement PRS (Partido para a Renovação Social). The Fula and
of Islam (CNPN, 2010, p.12). The Guinea-Bissau sub-groups (30%) and Mandinga (13%) make up the
National Islamic Council, however, found no Islamic Moslem majority of the country located primarily in the
requirement for FGM, issued a “fatwa” against the north and northeast, and were traditionally the most
practice, and was a key supporter of the 2011 law politically centralized. The Manjaco (14%) live in the
banning it (CNPN, 2010, p.12). According to mission central and northern coastal regions, and the Papel
interviews, there is a collaborative effort of Muslim and (7%) in the south and coastal regions.
Christian leaders to disseminate information in rural
areas about the lack of religious justification for FGM Most Guinea-Bissau ethnic groups maintain a
and the need to end this harmful practice. traditional initiation ceremony of “fanado” which
has involved circumcision of boys and female
Ethnic groups & languages genital mutilation (FGM) of girls. Activist women’s
organizations have long worked to change the
With the majority of Bissau-Guineans and of women custom for girls so that it is done without FGM and
living a rural, agricultural lifestyle without education or in 2011 they achieved passage of a law banning the
services, ethnic group traditions have an especially practice, but according to mission interviews, the
strong hold, and all ethnic groups have traditional law has not been disseminated or enforced3. Other
beliefs and practices that restrict women’s roles harmful traditional practices include polygamy, early
and rights. The principal ethnic groups are Balanta, marriage of young girls, and forced marriages in the
Fula, Mandinga, Manjaco and Papel. The Bijagó are form of levirate – marriage of a widow to a brother of
a sub-group of Fula who are located in the Bijagos her deceased husband; or sororate – marriage of a
Archipelago in the Bolama region and have a uniquely deceased woman’s sister to the surviving husband/
matrilineal structure. The Balanta are the largest single widower.
ethnic group (30%) primarily located in the south and
coastal regions. The Balanta have an acephalous On the positive side, a unifying factor across all ethnic
political tradition without political leaders or hierarchies groups and among women as well as men is a strong

3. As of the time of writing, no cases of FGM has been brought for. In January 2015, Bissau-Guinean judicial police announced the arrest of 8 persons in the Bafata region on charges of FGM.
http://jornaldigital.com/noticias.php?noticia=44443
 Gender in Guinea-Bissau: political, structural and socio-demographic context 11

sense of national identity as a result of the common gender-disaggregated data are lacking, women’s
struggle and ultimate victory against the Portuguese, low social status means they have less access
according to the report Paz e Desenvolvimento na to resources, including food, than others in the
Guiné-Bissau: A Visão de Mulheres Líderes (“Peace household.
and Development in Guinea-Bissau: The Vision of
Women Leaders”; translation by the author) by the The United Nations Development Program (UNDP)
civil society organization Voz di Paz (2013, p.17). Human Development Report 2014 estimates that
Another unifying factor cited is the language of Creole 58% of the Guinea-Bissau population are living
spoken in addition to ethnic languages. Creole is the in severe multi-dimensional poverty, and 49%
common language of everyday life, including national live on less than US$1.25 per day. All regions are
T.V. news and radio broadcasts and patriotic songs poor and lack resources, but poverty is especially
and slogans. marked in the northern regions where the majority
of the population, and the majority of women, are
A third unifying factor across the population is a concentrated. The FAO, WFP and Plan International
general culture of civic peace and non-aggression, 2013 report characterized the entire region of Oio as
according to those interviewed, despite the conflicts an area of “urgency” due to severe food insecurity, and
of military and political elites. The 1998-99 civil war the regions of Bafatá, Quinhara, Cacheu and Biombo
was a political and not an ethnic conflict, the country as areas of “crisis”. The remaining three regions –
has low levels of ordinary crime, and disputes are Gabú, Tombali and Bolama - were characterized as
generally based on family or land issues and are “under pressure.”
not ethnically- or religious-based. There are high
levels of domestic violence (see Sec.5.3.1) which are Although both women and men suffer from the
accepted by both women and men within the context effects of poverty, gender bias means that men
of religious and traditional gender norms, but the control whatever scarce resources are available and
generally peaceful culture may provide activists who women’s income-producing labor becomes more
are challenging these norms with useful tools. This arduous and less productive. Women’s gender-
could be an important area of further research, along specific roles are also more burdensome under
with examination of the impact of differences in ethnic poverty: domestic labor, which keeps women from
customs, such as the Bijagos matrilineal system and income-producing activities and girls from school;
the Balanta acephalous structure, on gender roles. and women’s reproductive roles, for which poverty
increases risks of malnutrition, illness and maternal
mortality. Young girls are also at greater risk of
early/forced marriage to relieve family economic
Poverty burdens. According to the PNIEG, “Throughout the
country, women bear the responsibility for the care
After the April 12, 2012 military coup there was of the household and the family and 89% of their
disorganization in the cashew sector, which provides households are in precarious condition, 80% rely on
livelihoods for 80 percent of the country’s population candles for light, 96% cook with wood or charcoal,
and a vast majority of its women, leading to July 91% get their water from sources outside the house,
exports of only 60,000 tons compared to more than and 65% use latrines in precarious condition. These
100,000 tons for the same period in 2011. A decline conditions signify more hours of work for women
in world cashew prices exacerbated the impact on and more sacrifices by wives and mothers” (p.25,
farmers and families and the country plunged into a translation by the author).
severe economic crisis, with GDP falling from 5.3%
in 2011 to -1.5% for 2012.

The falling prices for cashew contributed to the Human development

deterioration of terms of trade for farmers, so that
by 2013 the purchase of one kilo of rice, the primary The UNDP Human Development Index (HDI) 2014
household consumption food, required three kilos of ranks Guinea-Bissau as 177th out of 187 countries.
cashew nuts, compared to a 1:1 ratio the previous The components of the index are life expectancy,
year. Poverty and malnutrition increased. A 2013 mean years of schooling, and gross national
report by the United Nations Food and Agriculture income per capita (not disaggregated by sex). Life
Organization (FAO), the World Food Program (WFP) expectancy at birth (2013) in Guinea-Bissau is 54.3
and Plan International on food security found that years, compared to 61 in Senegal. Mean years of
the percentage of the rural population facing severe schooling (2012) are 2.3 based on MICS4 data; and
food insecurity doubled in 2013 compared to 2011, expected years of schooling are 9.0. Gross national
increasing to 40 percent from 20 percent. While income (GNI) per capita is US$ 1,090 (2013).
12 GENDER PROFILE:  Guinea-Bissau

Family structures constitutional provisions as detailed in section IV.

According to the country’s laws (article 1674 of the Traditions and customary laws also greatly influence
civil code), family structure is based on a patriarchal family structures. In some ethnic groups customary
model, whereby the husband is the head of the laws do not allow women from inheriting property,
household and can in effect ‘represent’ the wife in which is rather passed on to a male heir. Similarly,
public life. This power is extended over economic some groups practice widow inheritance, forcing
activities as exemplified by article 1686 of the civil the widowed women to marry a male relative of the
code which impedes the wife from engaging in deceased husband. Regarding polygamy, 2010 MICS
trading activities without the husband’s consent. To a data show that almost half of women in unions are de
large extent, such provisions are contradictory to the facto in polygamous marriages. 
 Gender and the economy 13

Gender and the economy

The public sector is composed of government

Overview employment in the executive, legislative or judicial
branches, with principal jobs in the military or as public
A key characteristic of gender roles in the economy school teachers. The PNIEG finds that men hold 69%
of Guinea-Bissau is the high percentage of women of government positions and are over-represented in
engaged in economic activity. The ILAP2 2010 survey key ministries related to women such as Agriculture
on poverty showed that of household members and Education, where women hold just 14% and 26%
over age 15, approximately 80% of women were of positions, respectively (p.32).
economically active (79% in Bissau and 81% in
regions outside Bissau), and 90% of men. Women According to interviews, the informal sector grew
were heads of 31% of households surveyed in Bissau, substantially during the 2012-14 economic crisis, as
and 20% of households surveyed in the other regions more and more women engaged in market activities
(ILAP2 Apresentação Powerpoint, 2011, Slide 3, to sustain their households. Although rigorous data
Quadro 1.9). are lacking, the informal sector of the economy is
very large, with women in both Bissau and the
The economy of Guinea- Bissau is based on rural regions engaged in small-scale trade, market sales,
agriculture by small farmers – women and men - with and services. The PNIEG estimates that women
cashew as the key crop involving 80% of the country’s are 51.6% of those engaged in the informal sector,
labor force and providing 90% of exports, as well as and that 52.3% of all working women, and 62.2%
the main source of household income (World Bank and of women heads of households, are engaged in
other sources, 2014). Work in the fields is oftentimes informal sector activities (p.32). Women are also
wearisome and is undertaken in difficult conditions. involved in cross-border trade with Guinea and
Senegal, and Buckner (2013) provides evidence
A very small portion of the total labor force, estimated of women’s sex work both locally and in resorts of
at about 10 percent and primarily male, are salaried the neighboring Casamance region of Senegal. A
employees in the private or public sector according full analysis of women’s roles in the informal sector
to interviews with the Chamber of Commerce. The merits further research, in particular regarding the
few women who are educated hold government degree of hardship induced by the type of work
positions, own small businesses, work in hotels or undertaken in the informal sector combined with the
restaurants, head local non-profit organizations; or pressures linked to their household duties.
work for international development technical or funding
partners. The sections below discuss Guinea-Bissau’s principal
economic activities of agriculture and fishing,
The private sector is composed of a few finance, trade, respectively, and gender roles in each activity.
transport and service enterprises, primarily in Bissau.
Industrial production is small-scale and largely limited
to the processing of agricultural products, with men
as owners and managers and women at the bottom Agriculture
of the value chain. Tourism is also small and currently
focused on sport fishing in the Bijagos archipelago Guinea-Bissau has a favorable climate, good land,
although there is potential for nature tourism given the and year-round crops, principally cashew, rice and
country’s as yet unspoiled reserves and parks classified horticulture. Cashew is grown for export, and rice and
as national assets. The government has applied to horticulture crops (vegetables and fruit) are grown for
UNESCO to designate the Bijagós arquipelago as consumption and market sales. Despite the importance
a World Heritage site which could spur tourism, and of agriculture to the economy, the majority of farmers –
it recently announced a plan to focus on biodiversity especially women – work at primitive levels, with little or
development (Novas da Guiné-Bissau, 19 October no tools, equipment, training, access to water or decent
2014). If this sector is developed with a gender roads. Women farmers are especially disadvantaged
perspective, it could add important opportunities for since men control decisions over land and resources
women. and allocate these first to their own work.
14 GENDER PROFILE:  Guinea-Bissau

Cashew is key to Guinea-Bissau’s economy. The women, like women in other sectors, work long hours
crop represents the main source of labor and income without infrastructure support to make the labor more
of Bissau-Guinean households, and the main share productive and less onerous, such as roads and
of national GDP. As in many sectors, women’s roles transport to take goods to other markets, or cooling
are concentrated at the low end of the value chain. machinery for storage, and they are at the bottom of
Farming and harvesting of the cashew nuts is done the value chain.
largely by women on land owned by their husbands
or fathers during the peak cashew season of March The government receives revenues from selling
to May. Women also work at peeling and sorting commercial fishing licenses and from payments
nuts (Dasanayake, 2011). The nuts are sold by male for access agreements. In 2006 revenues from the
farmers to a trader, exporter or processor (also male), commercial fishing sectors ($19 million) were almost
or stored for later sale or exchange for family income half of total own state income ($47 million). The World
and consumption items as decided by men. The Bank estimated that well- managed commercial
cashew stem or fruit (“apple”) is also processed on a fisheries in Guinea-Bissau’s could provide fish catches
very small scale (less than 1%) into products such as with an annual gross value of production of $191 million,
wine, juice, jams and jelly, almost entirely by women. yielding potential annual public revenues of almost $30
The more valued cashew nut is viewed as belonging to million. In a gender-inclusive approach is taken, the
men, and the lower valued fruit to women. The Chair expansion of the fishing sector could provide important
of the United Nations Peacebuilding Commission’s new opportunities for women as well as men.
Guinea-Bissau Country Specific Configuration reported
after his country visit that “economic empowerment of
women, who represent over 80% of the work force in
cashew nuts harvesting is essential” (2014a). Support for women’s economic
Roles
Rice is the country’s second crop and the base of
household consumption, and is farmed by both Among interviews for the Gender Profile, the mission
women and men. Rice farming is labor intensive and team spoke with individuals and associations of
increasingly families have converted fields to the low- women engaged in small businesses, agriculture and
labor-intensive cashew crop, trading cashews for rice horticulture, fish-vending, market sales, and informal
rather than producing it, with the result that families sector activities in Bissau, Bafatá, Contubuel and
often do not have enough rice throughout the year. Gabú. When asked about gender conditions and
problems and what were the most important issues,
So far this year, the cashew crop is doing well, with women in all locations highlighted a priority need for
exports reaching 70,000 tons by July 2014 as reported support for their economic roles and labor productivity.
by Reuters Africa (2014), but there is economic and They described their hard work and difficult conditions
food security risk in the continued reliance on cashew. and the basic help they need to make their work
The government is committed to increasing cashew efforts more efficient, productive and profitable. They
commodity transformation in order to create and named three key areas of need: access to financing;
retain added-value, and donors such as the World extension services and training to improve production
Bank are investing in aid to diversify and strengthen and sales; and provision of basic infrastructure (rural
the agricultural sector (World Bank, 2014a). If this roads, water, sanitation, electricity) to ease time
is done with a gender perspective, it could provide burdens and increase efficiencies of market work and
opportunities for women to advance in the value chain, domestic work as well. The three areas are discussed
with greater economic returns for women’s work. in the sections below: Access to Financing; Extension
Services and Training, and Infrastructure. It should
be noted that all of the women interviewed were in
some form of work associations or cooperatives, and
Fishing encouragement of this form of organization should be a
fundamental aspect of support for women’s economic
Guinea-Bissau has highly productive fishing waters, empowerment.
and fish and other seafood are a second principal
export. Fishing is also the second leading occupation Access to financing
after agriculture although the civil conflict and political
instability since 2012 reduced fishing activity and According to the National Program for Investment in
increased illegal fishing and corruption, cutting Agriculture, PNIA (Programa Nacional de Investimento
household income as well as employment. It is an Agricola), there is no formal financing mechanism from
important source of economic activity for women in banking institutions for the agricultural sector (p.70).
Bissau who work cleaning and selling fish. Women Financing for small farmers is available in a dispersed
also do some small fishing for shellfish. Fish-vending and disorganized way through some international
 Gender and the economy 15

projects or organizations which operate in rural areas, human waste, and in rural areas it was only 3%. The
with very low impact. On the rare occasions that credit is ILAP 2 survey found that a majority of Bissau-Guinean
available through financial mechanisms, the conditions, households (65%) used candles for light at night,
guarantees and interest rates are prohibitive. The PNIA and rural roads are often almost impassable. Women
called for the creation of a network of agricultural credit interviewed especially stressed the need for accessible
and training on good management of credit. Women water for horticultural gardening, and for roads to
agricultural and horticultural workers interviewed during connect rural areas with market towns.
the mission in Bafatá, Contubuel and Gabú are poor and
illiterate but they have achieved economic gains and a Summary
sense of empowerment through their associations or
cooperatives. They considered the creation of a micro- Investment in the three areas above to support
credit fund for women their most basic need, as did women’s economic roles: financing, extension services,
women vendors and small business owners in Bissau. and infrastructure, especially in rural areas, can have
a triple effect of improving productivity and household
Extension services, and training income and reducing poverty, increasing women’s
economic empowerment, and adding to the country’s
A second priority defined by women in interviews and social and economic development. Programs should
discussion groups in regions outside Bissau is for encourage and strengthen women’s work associations
agricultural extension services to provide training and and cooperatives. The results of a previous project to
supplies to improve efficiencies and productivity. They support women’s work, “Quick and Multi-level Impact
said that with training as well as equipment and tools, for Women’s Economic Empowerment and Working
women’s labor could be much more productive. Conditions in Guinea-Bissau,” funded by the UN
Peacebuilding Fund and coordinated by UN Women-
Infrastructure Bissau with implementation by FAO and UNICEF and
local partners AMAE and CNMT, can provide guidelines
The average Bissau-Guinean woman works long hours for future programs.
in agricultural or other market work, is responsible
for cooking and domestic tasks for her household, All investments should be undertaken with a participatory
and bears on average five children (6.8 in rural areas, approach that consults with women’s associations
according to UNICEF country statistics) for whom she and cooperatives as policies and programs are being
cares - all without access to basic infrastructure of water, designed, to ensure that women contribute to and
sanitation, electricity or transport to save time, ease benefit from the initiative. Women fish-vendors in Bissau
physical burdens, and increase productivity. Seventy- cited an example of a project intended to improve their
five percent of households do not have on-site drinking conditions of work but designed and implemented
water, and women over 15 years old typically spend at without their consultation or inputs, which in the end
least 30 minutes per day to get water, according to the did not meet their needs. It is also important to hire,
Multiple Indicator Cluster Survey (MICS4). Only 18% recruit, mentor and train women to design, implement
of the population has improved sanitation facilities for and manage outreach policies and programs. 
16 GENDER PROFILE:  Guinea-Bissau
 Gender and legal rights 17

Gender and legal rights

In Guinea-Bissau, the Constitution of 1984 in Articles 24 women’s groups and advocates, supported by UN
and 25 states that “all citizens are equal before the law, Women, UNICEF, and UNFPA with funding through
enjoy the same rights and are subject to the same duties, UNDP: a 2011 law banning the practice of Female
without distinction of race, sex, social, intellectual or Genital Mutilation (FGM), and a law passed in July
cultural level, religious belief or philosophical conviction;” 2013 against Domestic Violence. A key provision of
and, “a man and a woman are equal before the law, in the 2013 law is that it defines domestic violence as a
all domains of political, economic, social and cultural life” public crime, so that even if a woman does not file a
(Liga Guineense dos Direitos Humanos LGDH, 2013, complaint, other household members or neighbors can
p.24; translation by the author.) As shown in Annex 2, do it for her.
Guinea-Bissau is also a signatory to key international
and regional conventions on gender equality. However, women’s groups and legal rights activists
say that these laws have not been disseminated or
According to the Guinea-Bissau League for Human implemented, and women are not aware of their rights
Rights (LGDH), the Constitutional provisions, along and do not have institutional support or services to
with the country’s commitments to international and encourage complaints. Consequently, most cases
regional conventions, “convey a formal commitment to do not reach the justice system, and the police rarely
the principle of gender equality, with the consequent intervene even if called. A 2013 study by Afroteste Lda.
obligation to adopt measures to protect women’s found that in the region of Gabú, where statistics show
rights” (p.24). However, despite formal commitments that almost 100% of women have been circumcised,
to women’s equality under the law, the LGDH finds the Regional Tribunal had not judged a single case
in its 2013 report “Relatório sobre a Situação dos since the law against FGM was passed in 2011 (p.25).
Direitos Humanos na Guiné-Bissau 2010/2012”
(Report on the Situaiton of Human Rights in Guinea- Similarly, those interviewed during the mission said that
Bissau 2010/2012) that: “In practice, the human rights the 2013 law against domestic violence has received
of (Bissau-Guinean) women are violated across the little attention since it was passed, and the public is
board... Basic rights and judicial support have always largely unaware of its provisions.
been denied to women and continue to be so in all
aspects of Bissau-Guinean society, namely in access
to education, health, justice services, inheritance, land,
etc.” (p.24, translation by the author.) Gender-discriminatory laws:
Legal reform
A review of documents and interviews with stakeholders
suggest three key problems with regard to ensuring According to interviews, many laws in Guinea-Bissau
women’s legal rights: 1) there are existing laws that date to the Portuguese colonial era and do not reflect
provide guarantees of rights and protection but which current realities, including the goal of gender equality.
are not implemented, disseminated or enforced; 2) An especially important area for reform is legal
there are legal gaps which require new laws or revision authority for women to own and inherit land and other
of existing ones; 3) there is a lack of judicial presence assets in their own names. According to the PNIEG,
and gender-sensitive services at the local level which the existing Land Law (Lei da Terra) guarantees the
are needed for women to exercise their rights. The right to use of land without discrimination but in
following three sections discuss these issues. fact, among all ethnic groups in the country, land is
controlled and managed by men – landowners, elders
or family heads. Women farmers who are the primary
cashew labor force and also farm rice and horticulture
Existing Laws: Implementation, for family consumption and market sales work on land
enforcement and public that is allocated to them for use by male relatives. If a
woman’s husband or father dies, she has no right to
dissemination inherit family property (PNIEG, 2014, p.29). All other
Two key pieces of gender legislation have passed factors of production – credit, training, equipment and
in recent years through efforts of Bissau-Guinean resources – are also allocated to women by decisions
18 GENDER PROFILE:  Guinea-Bissau

of men. Thus women are constrained in their ability to weight that women must bear” (p.124; translation by
increase their productivity. the author). This valuable report also includes detailed
recommendations to improve access to justice for the
The government is in the process of drafting, with population as a whole (p.176-182).
the participation of civil society, a new Land Law with
provisions to ensure women’s property rights. Work In 2013, Afroteste Lda, a Bissau market and opinion
on the new legislation has been supported by UN research group, undertook a study for UNICEF of
agencies, principally UN Women and FAO, through knowledge, attitudes and practices on a range of issues
the United Nations Peacebuilding Gender Promotion relevant to women’s rights in four rural regions - Bafatá,
Initiative, according to UN Women-Bissau. Gabú, Oio, and Bolama/Bijagós. The study included a
few questions on access to justice, including police,
Laws relating to age of marriage also need reform. courts and administrative authorities, and traditional
The legal age for marriage is 184, but child marriage is justice although the results are not disaggregated by
common, even of girls below 14 years of age. sex. Of principal note is that of 80 localities visited,
62.5% had no justice services, and 58% said that
justice was determined by the community.

Justice Services: Accessible and

gender-sensitive
Summary
In 2010-11, the United Nations Development
Programme (UNDP) in partnership with the Ministry Legal rights for women are the essential foundation
of Justice undertook a study of access to justice in for gender equality. Women’s human rights must be
Cacheu, Oio, and Bissau, aided by UNICEF, UN recognized and guaranteed by law, and then the next
Women, UNIOGBIS and the European Union. The step is implementation and enforcement by the justice
final report, “Estudo sobre o Acesso à Justiça em system, with mechanisms to ensure women’s access,
Três Regiões da Guiné-Bissau” includes a chapter gender-sensitive training of officials, and penalties for
specifically on access to justice by women (Chapter violations. The new government has committed in the
15, p.103-123). Among the Chapter findings is that DENARP II to action on human and legal rights which
women’s lack of access to the formal justice system, should include the three areas described above:
and/or their experience of discrimination or indifference, implementation and enforcement of current laws to
results in the dominance of traditional systems of promote gender equality, especially the law against
justice. The report states that, in traditional justice, domestic violence and the law against FGM; passage
“the general rule is to never disrespect male authority of new laws to protect women’s rights, especially
over a woman.....Traditional authorities recognize that with regard to ownership and inheritance of land and
women face greater burdens and obstacles, ... (but other assets; and development of institutions for local
they) view these as inherent to women’s lives and a justice that are accessible and gender-sensitive. 

4. www.genderindex.org/sites/default/files/datasheets/GW.pdf
 Gender and social development 19

Gender and social development

In Guinea-Bissau, as in other countries, health and included in its short-term priorities the preparation of the
education are essential for social development and national health system against the threat (2014b), and
access by girls and women to these services is the Guinea-Bissau news reported that the Portuguese
essential for gender equality. A third social development have provided Ebola training assistance.
requirement for gender equality in Guinea-Bissau and
other countries is an end to the prevalence of domestic Gender-specific health issues are: the high fertility
violence, female genital mutilation (FGM) and forced rate of 5 live births per woman (6.8 in rural areas); the
marriage. These three social development requirements lack of education about reproductive health, access
are discussed in the sections below. to services, and contraceptive use (86% of women
aged 15-49 with a spouse/ regular partner do not use
contraception); the high rate of pregnancy among girls
15-19 (30%) due to early marriage; and the high rate
Health of maternal mortality (790 per 100,000  live births).
According to the PNIEG, “the high rate of maternal
The Ministry of Health has virtually no presence in mortality (constitutes) the largest problem with respect
rural areas according to mission interviews, and lacks to gender in the country” (p.57). This issue merits
resources. The PNIEG states that with regard to basic special focus in the section below, since women
health units (USB, Unidade de Saúde de Base) at cannot achieve other rights and opportunities if they
the local level of tabancas, “it is almost impossible die in childbirth.
to find a functionning USB in any locality throughout
the country”(p.24). The country’s one fully functioning Maternal mortality
hospital has little equipment, and in most parts of the
country there is no electricity. The few health facilities At 790 deaths per 100,000 live births (WHO et al., 2010,
that exist and have generators, often cannot afford the p.32), the maternal mortality rate in Guinea-Bissau is the
fuel to run them. Roads in rural areas and in regional/ 7th highest in the world. The risk of death in childbirth in
sectoral cities are unpaved and pot-holed and transport Guinea-Bissau is more than twice that of near-neighbors
is limited, making access to any health facilities that Senegal (370) and Gambia (360), and significantly higher
exist all but impossible, especially for pregnant women. than for other Lusophone African countries: Angola
The absence of health facilities and services, especially (450); and Mozambique (490). The MICS4 data show
in the regions outside Bissau, contributes to high rates that three-quarters of these deaths occur during delivery
of maternal mortality, infant mortality and the prevalence or immediately thereafter. Global evidence from the
of diseases such as malaria and tuberculosis. United Nations Children’s Fund (UNICEF) and the World
Health Organization (WHO) shows that the presence of
Despite progress in reducing the prevalence of malaria, a skilled birth attendant is the most effective measure to
it remains the main cause of absenteeism from schools prevent deaths. In rural areas of Guinea-Bissau where
and work, with a negative impact on household the majority of women live, only 28% of women in labor
incomes as well as the national economy (Republique have trained assistance and 72% of births take place at
de la Guinee-Bissau, Ministère de la Santé, 2010, home or in the home of family members, most of which
p.10). Data on the impact of malaria on women are are without water, sanitation or electricity (UNICEF,
not available, but several programs have reduced 2010). A Ministry of Health report on prevention of
the rate among pregnant women who are especially infant and maternal deaths (2010) cites the following
vulnerable, according to the PNIEG, because of the as problems that contribute to Guinea-Bissau’s high
low status of women and their low priority for receiving maternal mortality rate, in addition to the high fertility rate
services of protection, prevention or treatment (p.36). and the lack of a skilled birth attendant: poverty; high
Special donor-funded programs have also reduced rate of illiteracy among women; the inferior social status
the rate of HIV/AIDS but Ebola poses a new threat. In of women; inadequate nutrition; and lack of transport to
Guinea, Sierra Leone and Liberia, deaths have been health centers (p.14).
disproportionately of women due to their gender
role of caretakers of the sick. According to the UN The government had pledged to meet the UN
Peacebuilding Commission, the new government has Millennium Development Goal (MDG) of reducing
20 GENDER PROFILE:  Guinea-Bissau

maternal mortality by 75 percent from its 1990 rate (900 and literacy tests. Very few schools had adequate
per 100,000 live births) by 2015, and with committed text books and many teachers had a poor grasp of
effort and support by international donors, the rate is spoken Portuguese and little training, were isolated,
now 790. However, the Ministry of Health 2010 report underequipped and received salaries only after long
finds that at the current the rate of reduction of 0.6 delays. Overall, the study found “a comprehensive
percent a year, it would take 100 years to reach the picture of a dysfunctional school system... with the
MDG target, with more women dying in childbirth result that one more generation of children is growing up
every year (p.14). By contrast, two countries in Africa without even basic numeracy and literacy skills” (p.3).
have accomplished the MDG target 75% reduction
from 1990 rates, showing that it is possible to prevent After the April 2012 coup, there was upheaval in the
women’s deaths in childbirth: Cabo Verde with a current education system and frequent teacher strikes for
maternal mortality rate of 79 and Rwanda with a rate of lack of payment of salaries. A World Bank report by
340 per 100,000 live births (WHO, 2014). the Global Partnership in Education found that 62%
of schools were closed, and many primary school
students were facing a lost year. The consequences of
these losses for the future generation, especially girls
Education who are statistically at lower levels of school enrollment
and completion, are very serious.
Girls’ schooling
Women’s literacy
Statistics on education from the MICS4 survey of 2010
showed improvement in both girls and boys school Fifty-eight percent of adult women aged 15-49 are
enrollment and completion rates, but there were still illiterate according to the UNDP Human Development
serious problems. In 2010, primary enrollment overall Report 2014. MICS4 2010 data show that among
was at 70 percent, indicating that almost 1/3 (30%) of young women 15-24 years of age, 60 percent were
children of primary school age did not attend school. In illiterate, and in rural areas 84% of young women
the eastern province regions of Bafatá and Gabú more were illiterate. Given the post-coup decline in socio-
than half of young children (53%) were not in school. economic conditions and the educational problems
Among the poorest two quintiles, 56% were not in discussed above, it is likely that women’s illiteracy will
school (p.107). These data are not disaggregated by remain extremely high, especially in rural areas.
sex but other evidence suggests that the rate of non-
enrollment of girl children would be much higher than Rural women agricultural workers who participated
the overall statistic. in focus group discussions in Bafatá, Contubuel and
Gabú cited adult literacy programs as a key need.
According to MICS4, primary school completion rates Literacy for adult Bissau-Guinean women is a critical
in 2010 increased to 64%, from 29% in 2000. The input that can improve labor productivity and income,
rate for girls’ completion of primary school increased awareness of rights, and management of household
to 57% from 21% in 2000. This is a significant and resources. Global studies show that women’s
improvement but it shows that 43%, or almost half, literacy is also statistically correlated with better health
of girls who were enrolled in primary school dropped and education outcomes for children, and improves
out before completing. Among reasons for girls women’s leverage in domestic relations and options for
leaving primary school early, cited by respondents in leaving abusive domestic relationships.
background surveys for the PNIEG, are: early marriage
(33%); pregnancy (20%); lack of money (17%); and
responsibilities at home (4%). UNICEF Guinea-Bissau
country statistics (2014) show the average net ratio of Gender-specific abuses
age cohort attending secondary school for the period
2008-12 as 27.3% for boys and 19.9% for girls. Interviews with government and women’s organizations
highlighted the following gender-specific abuses against
A study in rural villages and schools of Guinea-Bissau Bissau-Guinean women which are also violations of
undertaken by Boone et al. (2010) from the London women’s human rights: gender-based violence (GBV),
School of Economics Centre for Economic Performance female genital mutilation (FGM) and early or forced
suggests that national enrollment and completion rates marriage. These are discussed in the three sections
“mask extremely poor educational outcomes in rural below.
regions” (p.1). The authors found that parents have a
very high desire to send their children to school and Gender-Based Violence (GBV)
72% of children were enrolled, but of 1,169 10-yr.olds
surveyed who were enrolled and attending school, only Reports by the Guinea-Bissau government and civil
one child was capable of completing basic numeracy society document the prevalence of violence against
 Gender and social development 21

women (PNIEG 2014; Plano Nacional de Acção 2011; almost 100% of adult women have experienced FGM:
Roque 2011). Although rigorous survey data are 93% in Bafatá and 95% in Gabú (Quadro CP.8). The
lacking and further research is needed, Guinea-Bissau National Islamic Council and groups such as CNPN
women’s organizations and technical and funding argue that FGM is a practice that pre-dated Islam in
partners interviewed also attest to wide-spread and Guinea-Bissau and has nothing to do with Koranic
socially-accepted violence against women, principally recommendations (CNPN, 2013, p.12).
domestic violence in the home by spouses and intimate
partners. A study by Sylvia Roque (2011) indicates that The MICS4 2010 survey showed that a larger
reported cases are highest Bissau, Bafatá, Gabú and percentage of women without education had
Oio (p.14), with a steady increase in complaints from experienced FGM as a child (65%) than those with
2006 through 2009 which it interprets as a positive education (28%), but the practice is common across
sign of women’s increased willingness to report rather all income groups: 40% of the richest quintile;
than an increase in violence (p.21). Among women approximately 60% of the three middle quintiles; and
surveyed, 44% of women said they had been victims 50% of the poorest (MICS4, Quadro CP.8). Women
of physical violence, and 43% of sexual violence (21% who have experienced FGM themselves are highly
rape and 22% unwanted touching). The respondents likely to have at least one daughter who has been
gave the following as factors (non-exclusive) excised (72%). Although opinions are changing about
contributing to their experience of violence: 49% the practice, 51% of women without education,
- women are considered inferior to men; 34% - the who are the majority of women 15-49, thought the
government does not defend or protect victims; 33% practice should continue (MICS4, Quadro CP.10),
- women do not have economic assets (p.21). Despite indicating the challenges facing efforts to eliminate the
the 2013 passage of a law against domestic violence, practice. In 2011, activists finally secured passage of
according to the PNIEG there are three factors that legislation banning after initially introducing it sixteen
dissuade women from registering complaints: i) lack years before. However, since 2011 the law has not
of knowledge of laws against violence and of women’s been disseminated or implemented and according to
legal rights; ii) lack of competency of state structures the PNIEG and mission interviews, FGM is still widely
especially the police to deal with violence against practiced.
women; and iii) lack of capacity of state, traditional or
non-profit organizations to advise and protect victims Early/Forced Marriage
(p.46).
According to international protocols, marriage should
Female Genital Mutilation not occur before age 18. MICS4 data show that 29%
of women aged 20-49 were married before age 18,
Female Genital Mutilation (FGM) consists of the total and 8% before age 15. Of women 15-49, 7% were
or partial removal of the external female genitals or married before age 15. The legal age of marriage
other damage to female genitals, and has been is 18 years in the country. The MICS4 study also
declared a fundamental violation of human rights by showed that 48% of married women aged 15-49
international protocols. In Guinea-Bissau, MICS4 data in Guinea-Bissau are in a polygamous relationship.
show that 50% of all women 15-49 had experienced Prevalence of both early marriage and polygamous
FGM, and that the procedure as practiced in Guinea- marriages are higher in rural areas. Other traditional
Bissau involves the worst form of FGM: excision with marriage practices which violate women’s rights are
mutilation. In Guinea-Bissau, FGM is rooted in the levirate (forced marriage to a brother-in-law on death
custom of “fanado” – a traditional initiation ceremony of of one’s husband) and sororate (forced marriage
many ethnic groups which marks the passage of both to a sister’s widower), although statistics are not
boys and girls into the adult community and involves available.
circumcision of boys and female genital mutilation of
girls. According to mission interviews, efforts to end
the fanado practice of FGM for girls have had some
success through programs of alternative fanado rituals Summary
without excision, and alternative sources of income
for excisers (fanatecas). The fundamental social investments needed to
“level the playing field” so that women can have
The National Committee to End Harmful Traditional equal opportunities with men in Guinea-Bissau are:
Practices CNPN (Comité Nacional para o Abandono de preventing maternal mortality; ensuring adult women’s
Práticas Nefastas) found that in Muslim communities, literacy and girls’ education; and ending the country’s
the practice is also rooted in what many believe to principal gender-specific abuses of domestic violence,
be a requirement of Islam. MICS4 data show that in female genital mutilation (FGM) and early/forced
the predominantly Muslim regions of Bafatá and Gabú marriage. 
22 GENDER PROFILE:  Guinea-Bissau
 Potential for action on gender equality 23

Potential for action on gender

equality

Strengths: Weaknesses:

◗◗ Gender equality requires peace and political ◗◗ Government institutions which are critical to the
stability, and the government, civil society, and advancement of gender equality - the Institute
the private sector are now united in the desire for Women and Children (IMC), and the Ministries
for Guinea-Bissau to move forward, away from of Health; Education; Justice; and Women,
its history of military coups and counter-coups, Family and Social Cohesion - lack resources and
to become a peaceful, stable and productive capacity.
country.
◗◗ Despite the government’s commitment to gender
◗◗ There is a strong, experienced and committed equality, there is as yet no strong and visible
civil society of women’s organizations, which male leadership on the issue – one or more male
mobilized in the absence of government to “champions” at a high level of government to join
provide needed services and work for positive women’s advocacy efforts.
change. There is also evidence of collaboration
and support on gender issues by men in civil ◗◗ Women’s groups and associations are strong
society organizations working on social, health, and committed but they work on different issues,
and environment issues. and there is as yet no united national advocacy
organization with an agreed umbrella agenda.
◗◗ Guinea-Bissau religious organizations, including
the National Islamic Council, supported the ◗◗ Existing laws with regard to women’s rights are
laws against female genital mutilation and not disseminated, implemented or enforced,
domestic violence. A survey of attitudes in the creating a climate of impunity which undermines
Islamic community of Guinea-Bissau found that the rule of law.
“(although) some men think that the promotion
of gender equality is a means to pervert society, ◗◗ Corruption and rent-seeking remain entrenched
others recognize that gender equality is the among powerful forces including in the military,
only solution if the country is to develop” (Boiro, with misuse of national resources and disregard
2014, p.2). for the rights and needs of the rural poor
especially women and potential destruction of
◗◗ The new government, through the the gender their livelihoods (e.g. from the lucrative business
strategy PNIEG (2014) and the poverty reduction of illegal deforestation).
strategy DENARP II (2011) has made clear
commitments to gender equality. Risks:

◗◗ The United Nations agencies which remained in ◗◗ The country needs everything, and there is a
the country after the 2012 coup under the UN risk that political leaders will consider gender
Integrated Office (UNIOGBIS), and especially its equality to be a non-priority “women’s issue.”
Gender Thematic Group (GTG), played a critical There is also a risk that the gender needs are
role in sustaining women activists in their efforts so extensive that scarce gender resources will
and achievements towards gender equality, and be diffused over the many needs and issues,
these agencies are committed to helping the new minimizing impact.
government to fulfill its regional and international
agreements on gender equality and women’s ◗◗ Guinea-Bissau civil society women’s
empowerment. organizations have worked extremely hard on
24 GENDER PROFILE:  Guinea-Bissau

services, issues and on the elections, but civil ◗◗ There is a risk of Ebola spreading from neighboring
society activism which has advanced the agenda countries, challenging weak health systems and
on gender equality could weaken if activists do with serious health and economic consequences
not see change. especially for women who are primary care-givers
for family members.
◗◗ The army remains powerful as do some with
political vested interests, with continued risk to Opportunities:
the stability of government institutions. Steps
taken by the new government may have reduced ◗◗ The new government can give a strong signal
this risk, including the September 2014 removal of major change from the past by endorsing a
of Antonio Indjai, who had led the military coup in gender-equality agenda including: implementation
April 2012, as Chief of the Armed Forces. of the PNIEG with defined priority actions; an
increase in the resources for the Institute for
◗◗ Some of those interviewed expressed concern Women and Children (IMC), and the Ministries of
that new democratic processes and elections are Justice, Health, Education, and Women, Family
swayed by money, and women candidates do and Social Cohesion; and pro-active measures to
not have resources with which to compete, with increase the participation of women at all levels of
the consequent risk of undermining democratic government.
participation especially by women. There was
also a concern expressed regarding the potential ◗◗ The active promotion of women in political life
manipulation of ethnic and religious differences through required party quotas, and throughout
for political gain with risks for civil instability. government agencies including the police and
defense forces, can both empower women and
◗◗ Another risk mentioned is increasing Islamic help to reduce the power of entrenched political
fundamentalism, especially in the regions factions which remain capable of creating political
where rural poverty is endemic and women’s instability.
opportunities are limited. A recent National Islamic
Council report (Boiro, 2014) mentions concerns ◗◗ Women are perceived as able to communicate
about an influx of fundamentalist proselytizers and interact across ethnic and religious
from other countries. Interviews confirmed that differences (Boiro 2014, and UN Peacebuilding
the incidence of women in niqab, leaving only the Report 2014a), and there is an opportunity to
eyes clear, which was never previously seen, is promote and train women as peace-brokers for
increasing. communities. 
 Recommendations 25

Recommendations

There are many urgent needs for gender-equitable Legal - ensure women’s human and legal rights:
development in Guinea-Bissau, and reports by
government agencies, civil society and international ◗◗ Implement a new Land Law (Lei da Terra)
partners have resulted in many recommendations, all ensuring women’s property rights;
important and all valid. The most important roadmap
for gender equality in Guinea-Bissau is the gender ◗◗ Implement, disseminate and enforce existing
strategy PNIEG, which provides a thorough and laws against domestic violence and female
comprehensive analysis and recommendations, genital mutilation (FGM);
developed with participation of all stakeholders
over a period of two years. The PNIEG now needs ◗◗ Establish locally accessible justice services
to be operationalized and prioritized, with resources for women, with gender training for local police
and targets, as soon as possible. With limited and justice officials, to strengthen civil law over
government resources – financial, institutional and traditional/customary law.
human capital/personnel -it is essential to prioritize
among the many needs. This Gender Profile suggests Social - Invest in girls’ and women’s social conditions:
that the priority should be to target actions which
can bring the greatest benefit to the largest number ◗◗ Expand efforts to reduce maternal mortality,
of poor women, and to choose a few areas where and use these to also educate both women and
investments can produce an immediate benefit as men about laws against FGM and GBV;
well as a spillover effect on other areas of need.
◗◗ Establish locally accessible adult literacy
Based on that criteria and the preceding programs for women, especially in rural areas;
analysis of Sections 2-6, the following are three
sector recommendations and two overarching ◗◗ Improve rural access to quality primary and
recommendations for advancing women’s rights and secondary education with priority efforts to increase
gender equality in Guinea-Bissau. girls’ school enrollment and completion rates.

Sector recommendations Overarching recommendations

Economic - Empower Women’s Economic Roles and ◗◗ Ensure participation of women in the design,
Productivity: implementation, oversight and management
of policies and programs through recruitment,
◗◗ Create a special fund for loans and micro- hiring and promotion policies in all government
credit for women agricultural workers and small- agencies and the private sector, and quotas for
business owners; party electoral lists;

◗◗ Provide extension services to women’s ◗◗ Ensure nation-wide knowledge and awareness

cooperatives, associations and small/medium- of women’s human and legal rights and the
businesses, and technical training schools for importance of gender equality to Guinea-Bissau’s
both girls and boys in rural areas; social and economic development through a
national education campaign with messages
◗◗ Ensure basic infrastructure - rural roads, tailored to women, men, girls and boys.
water, sanitation and electricity -.to increase
efficiencies and productivity of women’s market The following four sections provide specific
and domestic work. recommendations for the African Development Bank,
26 GENDER PROFILE:  Guinea-Bissau

the government of Guinea-Bissau, civil society, and to advance gender equality, especially with regard to
international funding partners. the elimination of gender abuses (GBV, FGM and early
marriage) and the creation of programs to train and
support women as community peace-keepers. The
African Development Bank is also ideally positioned
Recommendations for the African to facilitate recognition and dissemination of best
Development Bank practices in the region, and to provide funding for
replication and scaling up.
The three priorities recommended in this Gender
Profile - support for women’s economic roles, legal
rights, and investments in the reduction of maternal
mortality and in educational opportunities for women Recommendations for the
and girls - are consistent with the three pillars of the government of Guinea-Bissau
African Development Bank new Gender Strategy for
2014-2018: legal status and property rights; economic According to the DENARP II, the new government’s
empowerment; and knowledge management and overall goal is to reduce poverty by: reinforcement of
capacity building, and with the two pillars of its draft the state; acceleration of growth; and achievement
country economic strategy: reinforcement of state of its Millennium Development Goal targets (MDGs).
institutions; and infrastructure investments to unlock Specific priorities are to: a) reinforce the rule of law
internal regions. and democratic institutions; b) ensure a stable and
supportive macro-economic environment; c) promote
The AfDB can support gender goals in Guinea- sustainable economic development; and d) increase the
Bissau by prioritizing investments in roads to level of human capital. In the short-term, the DENARP II
connect women to markets and health clinics, and defines the urgent needs as: payment of back salaries;
in rural infrastructure systems of water, sanitation reestablishment of a minimal level of electrical service;
and electricity to improve women’s labor productivity reestablishment of health and education services; and
and health and ease the time burdens of household oversight of a successful agricultural season.
work. The key is to ensure attention to rural needs
and the involvement of women’s associations in The recommended priorities of this Gender Profile
the design and planning of projects. It will also be for Guinea-Bissau - investments in women’s
critical to keep in mind the very low income of the economic roles including rural infrastructure;
population, especially women, and to plan for public ensuring women’s legal rights especially with
provision of services and/or subsidized pricing. regard to property ownership and access to justice;
Another avenue worth supporting is the set-up of and reducing maternal mortality and increasing
social safety net or social protection programs in educational access - are directly compatible with the
general. These however would require starting with government’s DENARP II goals, with integration of a
aggregate studies on their feasibility and best way to gender perspective. The recommendations also are
roll-out, with a specific gender focus. consistent with implementation of the national gender
policy PNIEG which highlights the gender constraints
The AfDB can also support, directly or in coordination on women’s economic productivity despite dual
with other donors, the strengthening of the Ministries jobs in market and household work; their lack of
of Justice, Education, Health, and Women, Family legal rights and justice services; and their need for
and Social Cohesion through increased resources and essential services of maternal health and education.
technical support. It can help the Government of Guinea-
Bissau to collect gender-relevant data and to establish Once the government determines its gender priorities
statistical indicators which can be monitored over time. and identifies the needed funding, it can negotiate
It can also help the government to design and report with donor partners to ensure the needed resources,
on strategies for recruitment, training and mentoring of and create appropriate mechanisms for management
women at all levels of relevant government ministries, and monitoring of impact both of gender actions and
and require involvement of Bissau-Guinean women in between these and other government investments.
program design, implementation, management and The government should also operationalize internal
evaluation of AfDB-financed projects. government policies to increase gender balance in
all ministries and agencies, at all levels, and with
Finally, the AfDB, through its West Africa regional all contractors, with requirements for annual data
structure, can facilitate joint strategies in the region reporting. From an operational viewpoint, it would be
 Recommendations 27

important for the government to develop a system of Recommendations for technical

monitoring towards gender equality. and  funding partners
The Gender Thematic Group (GTG) of the United
Nations Integrated Peace-Building Office in Guinea-
Recommendations for Civil Society Bissau (UNIOGBIS) coordinates and shares gender
programs and strategies by the various UN agencies
Guinea-Bissau has an impressive and dynamic civil such as UNDP, UNFPA, UNICEF and UN Women. It is
society, especially with regard to gender issues, and an excellent example of effective donor organization
strong, experienced and committed leaders who to coordinate program priorities and share
have made important contributions to national gender information, thereby increasing impact. The degree
legislation and policies on their specific areas such as: to which these organizations have supported and
women’s work and labor issues (AMAE, CNMT), civic sustained superb work by Bissau-Guinean gender
and political participation (PPM), gender-based violence organizations and activists is impressive.
(RENLUV), female genital mutilation (Comité para o
Abandono das Praticas Nefastas), Peace-Building The World Bank has initiated/expanded two key
(REMSECAO; Voz di Paz) and agricultural associations programs with gender impacts: the Private Sector
(APALCOF). These and other civil society groups Rehabilitation and Agribusiness Development
working on gender issues would benefit from forming a Project, and the rural Community-Driven
united national association to coordinate their respective Development Project. There are innumerable other
efforts, monitor and influence government policy, international programs and partners in Guinea-
expand sensitization of communities, and support the Bissau, and a gender coordinating mechanism
efforts of women Ministers and Parliamentarians. One among them, similar to that of the UNIOGBIS
possible common issue is the proposal for a gender Gender Thematic Group, could ensure greater
quota on electoral party lists. impact. 
28 GENDER PROFILE:  Guinea-Bissau
 Conclusion 29

Conclusion

Guinea-Bissau women face many forms of gender

discrimination, bias and denial of human rights, and
the country faces daunting development challenges
as it emerges from years of government instability
and institutional failure. With a new democratically-
elected government, strong civil society women’s
organizations, and an agreed government gender
plan of action, the PNIEG, there is tremendous
potential for significant advances in gender equality,
and a boost to socio-economic development for
the country as a whole, if women - 50% of the
population - are liberated to contribute to and benefit
from the country’s progress. Implementation of the
government’s commitment to the priority of gender
equality, and support for this priority by funding
partners, will be critical. A participatory process
that fully involves civil society and especially women
has already begun in Guinea-Bissau, as seen in the
development of the PNIEG and the DENARP II, and
it can be further institutionalized and strengthened
with support from the African Development Bank,
UN Women and other development partners. 
30 GENDER PROFILE:  Guinea-Bissau
 Bibliography 31

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4. Afroteste Lda, 2013. “Estudo Sobre Conhecimentos, Atitudes E Práticas Sobre Os Direitos Das Mulheres
E Meninas Nas Regiões De Batatá, Gabú, Oio E Bolama/Bijagós: Relatório Final.” Bissau, Dezembro.

5. Agence Européenne Pour le Développement et La Santé (AEDES), 2009. Analyse des Données de
l’Enquête Agricole, 2008/2009. Partie 2, Avril 2009. Rapport de Mission d’Assistance Technique. Project
SISA – Guinée Bissau,

6. Arvanitis, Yannis, 2014a. “Challenges of Providing Efficient Banking Services in a Fragile Environment:
Structure, Performance and Perspectives of the Banking Sector in Guinea-Bissau. “ West Africa Policy
Notes, N.1, African Development Bank, July.

7. Arvantis, Yannis, 2014c. “Guinée-Bissau, Perspectives Économique en Afrique,” African Economic

Outlook. African Development Bank, Tunis, Tunisia.

8. Boiro, Hamadou, 2014. “Percepção da Igualdade de Género, dos Direitos das Mulheres e da Mediação
de Conflitos entre os Membros do Conselho Nacional Islâmico da Guiné-Bissau.” Gabinete Integrado das
Nações Unidos para a Consolidação da Paz na Guiné-Bissau (UNIOGBIS), Bissau, Guiné-Bissau.

9. Cardoso, Fernanda Pinto and Anki Sjöberg, 2011. “Guinea-Bissau: Gender and Security,” The Security
Sector and Gender in West Africa: A Survey of Police, Defence, Justice and Penal Services in ECOWAS
States, M. Gaanderse and K. Valasek, eds., Geneva: Geneva Center for the Democratic Control of Armed
Forces (DCAF). pp 129-139.

10. Comité Nacional para o Abandono de Práticas Nefastas (CNPN), 2013. Nobas di Comité, Boletim
Informativa Trimestral, Edição n-01/13.

11. Comité Nacional para o Abandono de Práticas Nefastas (CNPN), 2010. “Estratégia Nacional para o
Abandono da Prática de Excisão na Guiné-Bissau 2010-2015.” Bissau.

12. Economic Policy Research Institute (EPRI), 2011. “Country Profile – Guinea-Bissau,” Social Assistance
Profiles- Africa, Chap. 23

13. International Monetary Fund (IMF), 2010. “Guinea-Bissau: Poverty Reduction Strategy Paper -Second
Annual Progress Report,” IMF Country Report No. 10/382, December.

14. Liga Guineense dos Direitos Humanos (LGDH), 2013a. Relatório sobre a Situação dos Direitos Humanos
na Guiné-Bissau 2010/2012. Bissau, Guiné-Bissau.

15. República da Guiné-Bissau, 2011. Lei que Visa Prevenir, Combater e Reprimir a Excisão Feminina em
Todo o Território Nacional. Guia dos Direitos Humanos e Género, Vol. III.
32 GENDER PROFILE:  Guinea-Bissau

16. República da Guiné-Bissau, 2013. Programa Nacional de Investimento Agricola (PNIA).

17. República da Guiné Bissau, Instituto da Mulher e Criança,.Minstério da Mulher, Familia e Coesão Social,
2014. Plano de Necessidades Prioritárias. Bissau, 21 de Julho.

18. United Nations Children’s Fund (UNICEF), 2014. Guinea-Bissau Data & Statistics.

19. United Nations Children’s Fund (UNICEF), 2011. New Law Prohibits Practice of Female Genital Mutilation
in Guinea-Bissau.

20. Urdang, Stephanie, 1979. Fighting Two Colonialisms: Women in Guinea-Bissau. New York: Monthly
Review Press.

21. Voz di Paz, 2013. Paz e Desenvolvimento na Guiné-Bissau: A Visão de Mulheres Lideres.

22. Vyas, S.; Watts, C., 2009. “How Does Economic Empowerment Affect Women’s Risk of Intimate Partner
Violence in Low and Middle Income Countries? A Systematic Review of Published Evidence.” Journal of
International Development (2009) 21 (5): 577-602.

23. World Bank, 2014a. “World Bank Helps Guinea-Bissau Expand Agriculture Sector, Create Job Opportunities
for Youth.” May 22.

24. World Bank, 2014b. Guinea-Bissau Overview, April 9.

25. World Bank, 2014c. World Development Indicators, 2014

26. World Food Programme, 2013a. Coping Strategies, Emergency Assessments, Food Consumption,
Monitoring, Emergencies, Food Security Analysis: Synthesis of WFP Rapid Food Security Assessment –
June 2013.” 10 July 2013

27. World Health Organization (WHO), 2011. Guinea-Bissau Maternal and Perinatal Health Profile.
34
 35

Annexes
36 GENDER PROFILE:  Guinea-Bissau

Annex 1: Guinea-Bissau
government* structure
and women’s representations

Executive Branch
The Guinea- Bissau government has an executive branch with a president elected for a five-year term as head
of state, and a Prime Minister appointed by the president who is the head of government. Following the recent
elections, Jose Mario Vaz (“Jomov”) of PAIGC is the new president and Domingos Simões Pereira, also of PAIGC,
is the new Prime Minister.

The Prime Minister appoints the Cabinet and Secretaries of State. In the current government there are 16 Ministers
including five women who head the Ministries of Defense, Education, Justice, Public Health, and Women, Family
and Social Cohesion. There are 15 Secretaries of State of whom one is a woman, the Secretary for Budget and
Fiscal Affairs. Bissau-Guinean women activists expressed sharp dissatisfaction that the share of women ministers
was not closer to 50%, especially after the significant role that women’s groups played in ensuring the high voter
turnout and in monitoring the polls.

Legislative Branch
Guinea-Bissau has a unicameral National People’s Assembly, ANP (Assembleia Nacional Popular) with 102 seats
elected by popular vote for four-year terms, including 2 seats reserved for diaspora Bissau-Guineans. Fourteen
women were elected in the recent elections.

Judicial Branch
There is a Supreme Court of Justice with both appellate and constitutional jurisdiction, consisting of 9 judges,
organized into Civil, Criminal, Social and Administrative Chambers. Of 79 total judges in 2010, 16% (13) were
women; among 203 judiciary court staff, 12% (25) were women; and in the office of the Prosecutor, 12 of 80
prosecutors (15%) were women (Cardoso and Sjöberg, 2010, p.136). The Minister of Justice recently announced
the appointment of a woman to head the Judicial Police (Novas da Guiné Bissau, September 21 2014).

Regional Governments
Guinea-Bissau is divided into eight administrative regions and the autonomous sector of Bissau (Sector Autonomo
de Bissau, SAB). The regions are sub-divided into 37 sectors and these are further sub-divided into tabancas.
Each region has a Governor, appointed by the President. On October 25, 2014, eight new regional governors
took office, including two women as governors of Oio and Quinara (Novas da Guiné Bissau, October 25 2014).

* The field mission in Guinea-Bissau was conducted in July 2014 and the report was edited in November 2014 based on the information provided by the Government in that period.
 Annex 2: Guinea-Bissau accordance with international and regional gender protocols 37

Annex 2: Guinea-Bissau
accordance with international
and regional gender protocols

N° CARTAS, CONVENÇÕES E PROTOCOLOS FAVORÁVEIS À IEG Data da Data da

assinatura ratificação
Internacionais
1 Convenções de Genebra -- 21.02.1974
2 Convenção sobre o consentimento do casamento (idade mínima e registo) [1962] ND ND
3 Convenção sobre a eliminação de todas as formas de discriminação contra a 1980 23.08.1985
mulher [1979]
4 Protocolo adicional às Convenções de Genebra -- 21.10.1986
5 Convenção internacional sobre os Direitos da Criança [1989] 1990 20.08.1990
6 Pacto internacional sobre os direitos económicos, sociais e culturais [1966] 1989 02.10.1992
7 Pacto sobre a eliminação de todas as formas de discriminação racial [1965] 2000 01.11.2010
8 Convenção sobre a maternidade [1952] 2000 NR
9 Convenção sobre os Direitos políticos da mulher [1952] ND ND
10 Pacto internacional sobre os direitos civis e políticos [1966] 2000 01.11.2010
11 Protocolo opcional ao Pacto internacional sobre os direitos civis e políticos [1966] 12.09.2000 NR
12 Convenção contra a tortura e outro tratamento ou sanção cruel, desumano ou 12.09.2000 NR
degradante [1984]
13 Segundo protocolo opcional ao Convénio internacional sobre os direitos civis e 12.09.2000 NR
político respeitante à abolição da pena de morte [1989]
14 Protocolo Facultativo à Convenção sobre a eliminação de todas as formas de dis- 12.09.2000 28.02.2008
criminação contra a mulher [2000]
15 Protocolo opcional ao Convenção internacional sobre os direitos da Criança respei- 08.09.2000 NR
tante ao envolvimento das crianças nos conflitos armados [2000]
16 Protocolo opcional ao Convenção internacional sobre os direitos da Criança res- 08.09.2000 NR
peitante a venda de crianças, prostituição da criança e e a pornografia com criança
[2000]
17 Convenção internacional sobre a protecção dos direitos de todos os trabalhadores 08.09.2000 NR
migrantes e dos membros das suas famílias [1990]
18 Protocolo opcional à Convenção contra a tortura e outro tratamento ou sanção ND ND
cruel, desumano ou degradante [2002]
19 Convenção sobre os direitos das pessoas com deficiências [2006] ND ND
20 Convenção internacional para a protecção de todas as pessoas forçadas a de- ND ND
saparece
21 Resolução 1325 /Mulher, Paz, Segurança 31.10.2000 08.03.2010
22 Resolução 1820 / Mulher, Paz, Segurança 18.06.2008 NR
23 Resolução 1888 / Mulher, Paz, Segurança 30.09.2009 NR
38 GENDER PROFILE:  Guinea-Bissau

N° CARTAS, CONVENÇÕES E PROTOCOLOS FAVORÁVEIS À IEG Data da Data da

assinatura ratificação
Continentais e regionais
1 Carta Africana sobre os Direitos do Homem e dos Povos [1981] ND ND
2 Protocolo à Carta Africana sobre os Direitos do Homem e dos Povos criando o 09.06.1998 NR
Tribunal Africana sobre a os Direitos do Homem e dos Povos [1998]
3 Protocolo respeitante á Criação do Conselho para a Paz e a Segurança da União 09.07.2002 NR
Africana [2002]
4 Protocolo sobre o Tribunal de Justiça da União Africana [2003] 08.03.2005 NR
5 Protocolo adicional à Carta Africana sobre os Direitos do Homem e dos Povos 08.03.2005 14.10.2008
respeitante aos Direitos da Mulher [2003]
6 Carta Africana sobre a Democracia, as eleições e a Governação [2007] 17.06.2008 NR

Source: PNIEG 2014

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