ORGANIZATION OF AMERICAN STATES
INTER-AMERICAN COMMISSION OF WOMEN
FOLLOW-UP MECHANISM
CONVENTION OF BELÉM DO PARÁ (MESECVI)
SECOND CONFERENCE OF THE STATE PARTIES
9 - 10 July, 2008
Caracas, Venezuela
OEA/Ser.L/II.7.10
MESECVI-II/doc.38/08
25 June 2008
Original: Spanish
PANAMA
RESPONSE TO THE QUESTIONNAIRE/
COUNTRY REPORT/
OBSERVATIONS BY THE COMPETENT NATIONAL AUTHORITY (CNA)
1
RESPUESTA/S AL CUESTIONARIO PARA LA EVALUACIÓN DE LA
IMPLEMENTACIÓN DE LAS DISPOSICIONES DE LA CONVENCIÓN
INTERAMERICANA PARA PREVENIR, SANCIONAR Y ERRADICAR
LA VIOLENCIA CONTRA LA MUJER, CONVENCIÓN DE BELÉM DO PARÁ
I.
LEGISLACIÓN. NORMATIVA VIGENTE. PLANES NACIONALES
1.
¿Existen en la legislación interna normas penales, civiles y administrativas y de otra
índole destinadas a prevenir, sancionar y erradicar la violencia contra la mujer?
1.1.
¿Se han promulgado, modificado o derogado leyes y reglamentos en su país a fin
de modificar prácticas jurídicas o consuetudinarias que respaldan la persistencia
o la tolerancia de la violencia contra la mujer?
Sí, en nuestro país se han promulgado, modificado y derogado leyes y
reglamentos, ejemplo de ello lo constituye la Ley 38 de 10 de julio de 2001 que reforma
y adiciona artículos al Código Penal y Judicial, sobre violencia doméstica y maltrato al
niño, niña y adolescente, deroga artículos de la Ley N° 27 de 16 junio de1995 y dicta
otras disposiciones. También se cuenta con la Ley n° 16, de 31 de marzo de 2004, que
dicta disposiciones para la prevención y tipificación de delitos contra la integridad y la
libertad sexual, y modifica y adiciona artículos a los códigos penal y judicial. Además el
Código Penal regula lo relativo a los Delitos Sexuales; violación sexual, abusos
deshonestos, estupro, incesto y acoso sexual.
1.2.
¿Se han aprobado este tipo de normas después de la ratificación de la
Convención Belém do Pará por parte de su Estado?
Nuestro país ratificó la Convención de Belem Do Pará en 1994, mediante Ley
No.12 de 20 de abril de 1995 y efectivamente se constituyó en uno de los principales
fundamentos que incidieron para que la Asamblea Legislativa aprobara la Ley No. 27 de
16 de junio de 1995, “Por la cual se tipifican los Delitos de Violencia Intrafamiliar y el
Maltrato de Menores, se ordena el establecimiento de dependencias especializadas para
la atención de las víctimas de estos delitos, se reforman y adicionan artículos al Código
Penal y Judicial y se adoptan otras medidas”. Es así que por primera vez se cuenta con
una normativa sobre violencia doméstica en nuestro país e incluso se reforman delitos
sexuales, cuyo contenido no había variado desde 1982.
Esta Ley fue reformada
mediante Ley 38 de 10 de julio de 2,001.
De haberse aprobado este tipo de normas:
a.
¿Existe sanción establecida para un agresor que hostiga, amenaza o pone en
peligro la vida de la mujer atentando contra su integridad o perjudicando su
propiedad? ¿Cuál es esa sanción?
-2-
Sí existe sanción. El artículo 215 A, del Código Penal Panameño establece que
es delito de violencia doméstica toda agresión física, sexual, patrimonial o psicológica o
el hostigamiento contra una persona y se establece una sanción de 1 a 3 años de prisión o
la aplicación de medida de seguridad curativa que consistirá en un programa de
tratamiento terapéutico multidisciplinario con atención especializada. Las situaciones
protegidas para esta norma son las siguientes:
1.
Matrimonios
2.
Uniones de hecho
3.
Relaciones de pareja que no hayan cumplido los cinco años, cuya intención de
permanencia pueda acreditarse.
4.
Parentesco por consanguinidad, afinidad o adopción
5.
Hijos e hijas menores de edad no comunes que convivan o no dentro de la familia
6.
Que hayan procreado entre sí un hijo, o una hija
Igualmente se aplicarán a las situaciones señaladas en los numerales anteriores,
aún cuando hayan finalizado al momento de la agresión.
De igual manera el acoso sexual es considerado una figura delictiva; el artículo
220 A del Código Penal señala: “quien por motivos sexuales y abusando de su posición
hostigue a una persona de uno u otro sexo, será sancionado con pena de prisión de 1 a 3
años”.
Para casos de mujeres que no están en las relaciones protegidas por el delito de la
violencia doméstica, está tipificado en la norma penal el delito de lesiones personales.
b.
¿Existe pena asignada para las formas transnacionales de violencia contra la
mujer, incluidas las migrantes, la trata de personas, especialmente mujeres, niñas
y niños, y la prostitución forzada? ¿Cuál es esa pena?
R: La ley N° 16 de 31 de marzo de 2004, que dicta disposiciones para la
prevención y tipificación de delitos contra la integridad y la libertad sexual, y modifica
y adiciona artículos a los códigos penal y judicial, específicamente en el Capítulo IV
enuncia que existen penas a fin de contrarrestar la trata sexual, turismo sexual y
pornografía con personas de cualquier sexo y menores de edad. Los artículos van desde
al 231 hasta 231-H; en donde se establecen sanciones con prisión y con días multa;
los cuales transcribimos a continuación:
Artículo 231. Quien promueva o facilite, de cualquier forma, la entrada o salida
del país de una persona de cualquier sexo para que ejerza actividad sexual
remunerada o para mantenerla en servidumbre sexual, será sancionado con
prisión con 5 a 8 años y con 100 a 250 días-multas.
Artículo 231-A. Quien promueva, favorezca facilite o ejecute la captación, el
transporte, el traslado, la acogida o la recepción de personas menores de edad,
dentro o fuera del territorio nacional con fines de explotación sexual o para
mantenerlas en servidumbre sexual, será sancionado con prisión de 8 a 10 años y
con 250 a 350 días-multa.
Artículo 231-B. Quien actuando o pretendiendo actuar como empleador, gerente,
supervisor, contratista, agente de empleo o solicitante de clientes, a sabiendas,
obtenga, destruya, oculte, retire, decomise o posea cualquier pasaporte,
documento de inmigración u otro documento público de identificación, ya sea
-3-
real o falsificado, que pertenezca a otra persona, será sancionado con prisión de 3
a 5 años y con 75 a 150 días-multa.
Artículo 231-C. La sanción por la comisión de los hechos descritos en los
artículos 231, 231-A y 231-B de este Código, se aumentará de un tercio a la
mitad, cuando concurra alguna de las circunstancias previstas en el artículo 230.
Artículo 231-D. Quien fabrique, elabore o produzca material pornográfico o lo
ofrezca, comercie, exhiba, publique, publicite, difunda o distribuya a través de
Internet o cualquier medio masivo de comunicación o información nacional o
internacional, presentando o representando virtualmente a una o varias personas
menores de edad en actividades de carácter sexual, sean reales o simuladas, será
sancionado con prisión de 4 a 6 años y con 150 a 200 días-multa. Igual sanción
será aplicada a quien posea, transporte o ingrese al país este material.
Artículo231-E. Quien utilice a una persona menor de edad en actos de
exhibicionismo obsceno o en pornografía, sea o no fotografiada, filmada o
grabada por cualquier medio, ante terceros o a solas, con otra u otras personas
menores de edad o adultos, del mismo o de distinto sexo, o con animales, será
sancionado con prisión de 4 a 6 años y con 150 a 200 días-multa. Igual sanción
será aplicada a quien se valga de correo electrónico, redes globales de
información o cualquier otro medio de comunicación individual o masiva, para
incitar o promover el sexo en línea en personas menores de edad, o para ofrecer
sus servicios sexuales o hacer que lo simulen por este conducto, por teléfono o
personalmente.
Artículo 231-F. Quien exhiba material pornográfico o facilite el acceso a
espectáculos pornográficos a personas menores de edad, incapaces o con
discapacidad, será sancionado con prisión de 4 a 6 años y con 150 a 200 díasmulta.
Si el autor de la conducta descrita en el párrafo anterior es el padre, la madre, el
tutor, curador o encargado a cualquier título de la víctima, perderá el derecho a la
patria potestad o el que le haya permitido, según sea el caso, tenerla a su cargo
hasta la fecha de ocurrencia del delito.
Artículo 231-G. Quien promueva, dirija, organice, publicite, invite, facilite o
gestione, por cualquier medio de comunicación individual o de masas, turismo
sexual local o internacional, que implique el reclutamiento de una persona menor
de edad, para su explotación sexual, aunque aquel no llegara a ejecutarse ni este a
comprobarse, será sancionado con prisión de 5 a 8 años y con 100 a 300 díasmulta.
Artículo 231-H. El propietario, arrendatario, administrador o poseedor a
cualquier título de un inmueble destinado para la realización de los delitos
tipificados en este Capítulo, será sancionado con prisión de 5 a 10 años y con 250
a 365 días-multa. La autoridad competente ordenará el cierre temporal o
definitivo del negocio ubicado en el inmueble, si estuviera operando
comercialmente con acceso indiscriminado al público, así como el comiso de
todos los bienes empleados para cometer o facilitar la perpetración de estos
ilícitos, lo mismo que las utilidades, ganancias o productos que se comprueben
derivados de estas actividades.
Con respecto la trata de personas dirigida hacia las mujeres, nuestro país
mediante Ley 23, del 7 de julio de 2004, aprobó la Convención de las Naciones
Unidas a Organizada Transnacional; El Protocolo para Prevenir, Reprimir y
-4-
Sancionar la Trata de Personas, Especialmente Mujeres y Niños/ as, que
Complementa la Convención de las Naciones Unidas Contra la Delincuencia
Organizada Transnacional y el protocolo Contra el Tráfico Ilícito de Migrantes
por Tierra, Mar y Aire, que Contempla la Convención de las Naciones Unidas
contra la Delincuencia Organizada Transnacional.
c.
¿Sanciona el Código Penal u otra normativa jurídica la violencia sexual dentro
del matrimonio?
R: La Ley panameña no regula específicamente este tema, no obstante de ocurrir
un hecho de violación puede presentarse la respectiva denuncia.
d.
¿Contemplan las normas vigentes el acceso a reparación para las mujeres
víctimas de la violencia?
R: La Ley N° 38 sobre Violencia Domestica y Maltrato al Niño Niña, y
Adolescente establece claramente en su artículo 20 que “El Tribunal de la
causa tomará las provisiones necesarias para que la víctima sobreviviente de
algunos de los delitos contemplados en esta Ley, reciba el tratamiento que le
permita su recuperación física y psicológica así, como su reintegración social,
lo cual debe ser sufragado por el agresor o agresora”.
En especial una de las Medidas de Protección (Capítulo II) en materia de
violencia doméstica establece en su acápite catorce (14): “Ordenar al presunto
agresor o presunta agresora, en caso de que existan graves indicios de
responsabilidad en su contra, cubrir el costo de la reparación de los bienes o de la
atención médica. Dicho costo será descontado, en caso de condena civil.
e.
¿Existe sanción para los/ las funcionarios/ as públicos que no cumplen con la
aplicación de las leyes de violencia? Si existe, ¿cuál es la sanción?
R: La Ley N° 38 sobre Violencia Domestica y Maltrato al niño niña, y
adolescente establece claramente en su articulo 215 E que el funcionario /a
público o el particular que tenga conocimiento de la ejecución de alguno de los
hechos de esta capítulo, y no lo haga del conocimiento de las autoridades, será
sancionado (a) con 50 a 150 días de multa.
f.
¿Existen programas de tratamiento para agresores o perpetradores de actos de
violencia?
R: La Ley N° 38 sobre Violencia Doméstica y Maltrato al niño niña, y
adolescente establece claramente en su artículo 215 C que cuando se trate de
agresora o agresor primario, el juez de la causa podrá sancionar con una medida
de seguridad curativa, consistente en un programa de tratamiento terapéutico
multidisciplinario, conforme al artículo 115 del Código Penal, debidamente
vigilado por el Departamento de Corrección del Ministerio de Gobierno y
Justicia.
g.
¿Existe alguna disposición legal o administrativa que haga obligatoria la
capacitación permanente en materia de género para funcionarios públicos?
R: La Ley N° 4 de 29 de enero de 1999 por la cual se Instituye la Igualdad de
Oportunidades para las Mujeres y su reglamentación mediante el Decreto
-5-
Ejecutivo N° 53 de 25 de junio de 2002, establece las medidas que deben
tomarse para lograr la igualdad y equidad de las mujeres, mediante la promoción
de las políticas públicas con enfoque de género.
Igualmente se cuenta con el Sistema Nacional de Capacitación en Género
(SNGG), creado mediante Decreto Ejecutivo N° 31 de16 de abril de 2001; la
finalidad del mismo es fortalecer mediante la capacidad y sensibilización en
materia de género, la capacidad de las instituciones gubernamentales y no
gubernamentales, para incorporar a corto, mediano y largo plazo la perspectiva
de género en la formulación, implementación, seguimiento y evaluación de las
políticas públicas, programas y proyectos dirigidos a sus poblaciones meta. Le
corresponde al Ministerio de Desarrollo Social como ente rector de la política
social del Estado, ejecutar políticas y programas de desarrollo social, con
énfasis en el desarrollo humano sostenible por vía de la organización y la
participación en igualdad de oportunidades, además le corresponde coordinar
planes, programas y acciones tendientes a mejorar la calidad de vida y la
convivencia solidaria de los grupos de población de atención prioritaria, en el
contexto de la familia y la comunidad.
2.
¿Se ha adoptado un plan de acción o una estrategia nacional para prevenir, sancionar y
erradicar la violencia contra la mujer?
R: En el año 2002 se elaboró el Plan Nacional Contra la Violencia Doméstica y
Políticas de Convivencia Ciudadana, mediante Decreto Ejecutivo No. 99 de 20 de noviembre
de 2000, el cual se ejecutará a través de cuatro (5) ejes principales como lo son: promoción,
prevención, detección, atención y de rehabilitación.
El Plan se encuentra en proceso de
operativización. Por otro lado, en el sector salud se cuenta con el Plan Institucional de Atención
y Prevención de la Violencia y Promoción de Formas de Convivencia Solidaria. Este Plan fue
evaluado y validado en el año 2004, a fin de poner en marcha la ejecución del mismo.
Cabe mencionar que la Ley N° 4 de 29 de enero de 1999, “Por la cual se Instituye la
Igualdad de Oportunidades para las Mujeres” establece en su capítulo VI, las acciones que en
materia de violencia contra las mujeres a través de la promoción de investigaciones que permitan
conocer el grado de los temas menos estudiados con respecto a la prostitución, incesto, acoso
sexual, entre otros. Además se deben programar campañas permanentes contra la violencia hacia
las mujeres, elaborar propuestas legislativas sobre políticas para la atención de la problemática,
promover la implementación de servicios, programas de capacitación en casos de violencia contra
las mujeres, la incorporación en los programas de estudios del tema de la educación sin violencia
y vigilar y dar seguimiento a las medidas propuestas para garantizar la eliminación de la violencia
en la vida de mujeres y en la sociedad.
2.1.
¿Cuál es el organismo encargado del diseño de dicho plan de acción o estrategia
general nacional?
R: La elaboración del Plan Nacional Contra la Violencia Domestica y
Políticas de Convivencia Ciudadana, fue coordinado desde la Dirección Nacional de la
Mujer, del Ministerio de Desarrollo Social (MIDES), con la Comisión Nacional para la
Elaboración del Plan Contra la Violencia Doméstica y Políticas de Convivencia
Ciudadana (creada mediante Decreto Ejecutivo N° 99 de 20 de noviembre de 2,000).
-6-
Esta Comisión está conformada por funcionarios /as públicos y representantes de
organizaciones no gubernamentales.
Desde el Ministerio de Desarrollo Social (MIDES), se coordinará el
cumplimiento e implementación de las acciones contempladas en dicho Plan, en conjunto
con todas las instancias gubernamentales y no gubernamentales y la comunidad en
general.
2.2.
¿Cuál es el organismo encargado de la aplicación de dicho plan de acción o
estrategia? ¿Existen estrategias intersectoriales integradas? Si existen, ¿qué
agencias participan en ellas?
R: El organismo encargado de coordinar y articular la estrategia para la
aplicación del Plan, es la Dirección Nacional de la Mujer, del Ministerio de Desarrollo
Social (MIDES). Este trabajo se hará en conjunto con las organizaciones
gubernamentales y no gubernamentales, la empresa privada, las instituciones
académicas, los clubes cívicos, los medios de comunicación social, las organizaciones
comunitarias, las personas afectadas por violencia y los organismos cooperantes de la
región.
El Plan Nacional propone como línea estratégica el desarrollo de Redes
Institucionales e Intersectoriales con participación social, en las que se analice y se
adopten soluciones al problema de la violencia doméstica. En la actualidad existen
Redes de Atención a la Violencia Doméstica / Intrafamiliar, ubicadas en el Distrito de
Soná, provincia de Veraguas y en el Distrito de San Miguelito, provincia de Panamá, las
cuales están integradas por:
Sector Comunitario: Líderes y liderezas de Organizaciones Comunitarias y
organismos no gubernamentales de los distritos de Soná, provincia de Veraguas
y en el Distrito de San Miguelito, provincia de Panamá.
Sector Educación: Docentes, supervisores/ as, personal técnico (psicólogo/ a,
trabajador/ a social, y padres y madres de familia), pertenecientes al Sector
Educativo de los Distritos de Soná y San Miguelito.
Sector Salud: Médicos/as, enfermeros/as, los y las auxiliares, los y las
promotores de salud, trabajadores /as sociales, psicólogos /as del Sector Salud del
MINSA y Caja de Seguro Social de los Distritos de Soná y San Miguelito.
Sector Judicial – Policial: Jueces(as) de Familia, defensores(as) de oficio,
personeros(as), los y las fiscales de familia, abogados(as) en ejercicio; los y las
representantes de la Policía Nacional de los Distritos de Soná y San Miguelito; y
otros(as) que forman parte del sector.
2.3.
¿Se han realizado evaluaciones del plan de acción o estrategias realizadas?
R: Si se han realizado, ¿qué resultados se han obtenido hasta el momento?
Si no se han realizado evaluaciones ¿está previsto realizarla? ¿En qué plazo?
No se han realizado evaluaciones del Plan Nacional Contra la Violencia
Doméstica y Convivencia Ciudadana, sin embargo en este momento se esta
llevando a cabo el diseño para la Operativización del Plan, a fin de formalizar su
ejecución.
-7-
2.4.
¿Está prevista una revisión periódica del plan de acción o estrategia en base a los
resultados obtenidos en las evaluaciones de su implementación?
R: El plan contempla dentro de sus acciones generales un monitoreo y
evaluación.
El mismo permitirá evaluar la ejecución de lo planificado, en
cuanto a los indicadores definidos para los objetivos, resultados, actividades y los
recursos que contemplaron en la matriz y el plan operativo.
2.5.
¿Cómo se articulan las estrategias a niveles provinciales y municipales?
R: Las estrategias se definen a partir de la coordinación con el sector
sectorial e intersectorial de los organismos del Estado que atienden las áreas de
salud, educación, jurídico policial y social, de las diferentes provincias y municipios
del país.
3.
¿Se ha establecido un mecanismo a nivel nacional para hacer el seguimiento de la
implementación de la Convención Belém do Pará?
R: Actualmente nuestro país tiene representación en el Comité de Expertas del
Mecanismo de Seguimiento de la Implementación de la Convención Interamericana para
Prevenir, sancionar y Erradicar la Violencia Contra la Mujer (MESECVI).
¿Cuál es el organismo encargado de hacer su seguimiento a nivel nacional?
R: El Ministerio de Desarrollo Social (MIDES), como ente rector de la política
social, es quien debe dar seguimiento a la implementación de la Convención Belém do Pará.
4.
Los legisladores, asesores y demás personal de las legislaturas ¿cuentan con
información acerca de temas de género y específicamente respecto de violencia?
¿Cómo se ha informado?
4.1.
¿Se han realizado seminarios de violencia contra la mujer destinados a dicha
audiencia?
R: La Asamblea Nacional de Diputados /as tiene una Comisión de Asuntos de la
Mujer, Derechos del Niño, la Juventud y la Familia, quien es la encargada de estudiar y
proponer proyectos de leyes y emitir conceptos sobre la situación real de la mujer en cuanto
al aspecto jurídico, cultural y social. Los y las legisladores /as que conforman la Asamblea
Legislativa en diferentes periodos se les ha capacitado en diferentes temas tales como:
Planificación Estratégica e Institucionalización del Análisis de Género; Ley 4 “Por la cual
se Instituye la Igualdad de oportunidades para las Mujeres”; Negociación y Liderazgo; Ley
27 (reformada por ley 38); Género; Formulación de Proyectos; Género; Población y
Pobreza; Legislación y Derecho de la Mujer, entre otros.
4.2.
¿Se han coordinado visitas de expertas/ os en violencia contra la mujer a las
legislaturas?
R: Lo que corresponde a este periodo legislativo que inició en septiembre del año
2004 todavía no se ha coordinado ningún tipo de visita de experto y / o experta en el tema
de violencia contra la mujer.
4.3.
¿Se ha distribuido información respecto de violencia contra la mujer a las
legislaturas nacionales, provinciales y locales?
-8-
R: A nivel nacional se han distribuido ejemplares de la Ley 38 sobre violencia
doméstica y maltrato al niño, niña y adolescente, igualmente información sobre violencia
doméstica (versión popular).
La Dirección Nacional de la Mujer y la Comisión de Asuntos de la Mujer,
Derechos del Niño, la Juventud y la Familia, actualmente realizan esfuerzos conjuntos a
fin de capacitar al personal de la Asamblea de Diputados (as).
4.4.
Otras formas (descríbalas)
R: En todas las actividades que se realizan con otras instituciones y ONG´s, se
convoca a la Asamblea de Diputados/ as, en especial la Comisión de Asuntos de la
Mujer, Derechos del Niño, la Juventud y la Familia.
5.
¿Existen comisiones legislativas especializadas en temas de género?
5.1.
¿Cómo opera su funcionamiento en el orden de las legislaturas nacionales?
R: Nuestro país cuenta a nivel de la Asamblea Legislativa de Diputados (as) con
la Comisión de Asuntos de la Mujer, Derechos del Niño, la Juventud y la Familia, quien
es la encargada de estudiar y proponer proyectos de leyes y emitir conceptos sobre la
situación real de la mujer en cuanto al aspecto jurídico, cultural y social.
5.2.
¿Cómo opera su funcionamiento en el orden de las legislaturas provinciales?
R: La Comisión de Asuntos de la Mujer, Derechos del Niño, la Juventud y la
Familia, esta representada por legisladores /as que conforman la Asamblea; en donde se
plantean anteproyectos y se aprueban proyectos.
II.
ACCESO A LA JUSTICIA
1.
¿Existen trámites expeditos y normados para garantizar la seguridad de las mujeres
víctimas de la violencia y la responsabilidad de los perpetradores de dicho actos de
violencia?
1.1
¿Ante qué autoridad debe realizarse la denuncia?
R: En materia de violencia doméstica las víctimas deben de acudir al Centro de
Recepción de Denuncias de la Policía Técnica Judicial (PTJ). Para efectos de solicitar
medidas de protección, en casos de violencia doméstica o maltrato de menores deben
acudir a las Corregidurías, Juzgados Nocturnos, en estos lugares igual se envía la
información a las Agencias de la Policía Técnica Judicial (PTJ), para la respectiva
investigación del caso. También se puede acudir a las Fiscalías de Asuntos de la Familia y
el Menor.
En materia de violencia sexual se debe acudir a la Policía Técnica Judicial
(PTJ) o Fiscalías de Circuito, del Ministerio Público.
1.2.
Las oficinas a cargo:
¿Son adecuadas a la cantidad de casos que deben atender, tanto en relación a su
cobertura geográfica como a la magnitud de los índices de violencia registrados
en esa localidad?
-9-
R: En cada provincia contamos con las instancias antes mencionadas en la que
acuden las víctimas; sin embargo es a nivel de la provincia de Panamá donde existe
mayor número de denuncias y mayor registro de casos de violencia doméstica, ya que la
mitad de la población esta concentrada en esta provincia y por ende la mayoría de los
casos.
1.3
¿Existen comisarías y otros servicios especializados en temas de la mujer que
cuenten con perfiles y protocolos de actuación para la atención de las víctimas en
sus propios idiomas?
R: Nuestro país no tiene Comisarías especializadas en temas de mujer; contamos
con un Servicio Contra la Violencia Familiar de la Policía Nacional y el mismo cuenta
con un protocolo de actuación y atención a víctimas de violencia doméstica /
intrafamiliar.
Además el Ministerio de Salud y la Caja de Seguro Social (CSS), cuentan con un
Manual de Normas y Procedimientos para la Atención Integral de la Violencia
Intrafamiliar y la Promoción de las Formas de Convivencia Solidaria en el Sistema
Nacional de Salud.
1.4
¿En promedio, ¿cuánto tiempo transcurre entre la recepción de la denuncia hasta
la adopción de medidas especiales de protección de la integridad física y psíquica
y la propiedad de las mujeres objeto de violencia?
R: La adopción de medidas de protección en los casos de violencia doméstica
deben ser aplicadas de inmediato, según lo estipula el artículo 9, capítulo III, de la Ley
38, en la que establece que los hechos de violencia que se presentasen en sus
jurisdicciones, los y las corregidores /as y los y las jueces nocturnos, deberán,
provisionalmente, tomar conocimiento del hecho, aplicar las medidas de protección
pertinentes y remitir el expediente incoado, en el que indicarán las medidas adoptadas, a
la instancia competente en un término no mayor de setenta y dos horas, contando a partir
del momento en que se aplica la medida aludida.
1.5.
¿Existen medidas para garantizar la seguridad de las mujeres víctimas de
violencia, familiares y testigos? Si existen, ¿cuáles son?
R: La Ley No. 38 sobre Violencia Doméstica y Maltrato al niño, niña y
adolescente dispone como medidas de protección:
1.
Ordenar el arresto provisional del agresor / a por un término que no
sobrepase las 24 horas.
2.
Ordenar al presunto agresor o la presunta agresora, que desaloje la casa
de habitación que comparte con la víctima sobreviviente,
independientemente de quien sea el propietario de la vivienda.
3.
Proceder al allanamiento con la finalidad de rescatar o socorrer
inmediatamente la presunta víctima sobreviviente del hecho de violencia,
de conformidad con las garantías constitucionales y legales.
4.
Autorizar a la víctima sobreviviente, si así lo solicita, a radicarse
provisionalmente en un domicilio diferente del común para protegerla de
agresiones futuras, respetando la confidencialidad del domicilio.
5.
Prohibir que se introduzca o se mantenga armas en el domicilio común,
así como incautarlas a fin de garantizar que no se utilicen para intimidar,
- 10 -
6.
7.
8.
9.
10.
11.
12.
13.
14.
1.6.
amenazar ni causar daño.
Prohibir al presunto agresor o la agresora acercarse al domicilio común o
aquel donde se encuentre la víctima sobreviviente, además del lugar de
trabajo, estudio u otro habitualmente frecuentado por ésta.
Reintegrar al domicilio común a la persona agredida que haya tenido que
salir de él, si así lo solicita, y, en consecuencia, deberá aplicar de
inmediato la medida establecida en el numeral 1 de este artículo.
Suspender al presunto agresor o a la presunta agresora la guarda y
crianza de sus hijos o hijas menores de edad, atendiendo a la gravedad de
los hechos de violencia y / o al daño o peligro directo o indirecto al que
estuvieren sometidos los menores de edad. La autoridad competente
podrá dar en primera opción la guarda protectora del niño, niña,
adolescente, al progenitor no agresor.
Suspender la reglamentación de visitas al presunto o la presunta
agresora, atendiendo a la gravedad de los hechos de violencia y/ o al
daño o peligro directo o indirecto al que estuvieren sometidos los
menores de edad.
Oficiar notas a las autoridades de migración, y embarque, en las cuales se
ordena el impedimento de salida del país a los hijos e hijas menores de
edad de las partes.
Levantar el inventario de bienes muebles del núcleo habitacional, para
asegurar el patrimonio común.
Otorgar en uso exclusivo a la persona agredida, los bienes muebles
necesarios para el funcionamiento adecuado del núcleo familiar.
Comunicar de inmediato a la autoridad competente para que fije
provisionalmente la pensión alimenticia a favor de la víctima
sobreviviente, en los casos que se amerite en función de las medidas de
protección aplicadas.
Ordenar al presunto agresor o presunta agresora, en caso de que existan
graves indicios de responsabilidad en su contra, cubrir el costo de la
reparación de los bienes o la atención médica. Dicho costo será
descontado, en caso de condena civil. Cuando la violencia sea reiterada
la autoridad competente ordenará una protección especial para la víctima
sobreviviente, a cargo de las autoridades de la Policía Nacional. Esta
protección especial podrá ser efectiva donde la víctima sobreviviente lo
solicite.
¿Existe asesoría legal gratuita a la que puedan acceder las mujeres víctimas de
violencia?
R: Sí, existen Organizaciones No Gubernamentales de Mujeres, que brindan
asesoría legal, social y psicológica a las mujeres víctimas de violencia como lo son: la
Fundación para la Promoción de la Mujer (FUNDAMUJER), Centro para el Desarrollo
de la Mujer (CEDEM), y el Centro de Apoyo a la Mujer Maltratada (CAMM). Algunas
de estas organizaciones reciben subsidios estatales para estos programas de atención.
Además el Órgano Judicial tiene un Centro de Atención a Víctimas, aunque cabe señalar
que no es exclusivo para casos de violencia contra la mujer.
- 11 -
1.7.
¿Se fomenta la creación de grupos de profesionales que presten colaboración a
las víctimas de violencia para la realización de los trámites pertinentes destinados
a la protección de la mujer y la sanción del agresor?
R: No existen agrupaciones profesionales que se dediquen de forma exclusiva
para esto. No obstante se están fortaleciendo la creación de redes locales de prevención
y atención de la violencia doméstica, actualmente ya se cuenta con en San Miguelito,
ciudad de Panamá y Soná, provincia de Veraguas, respectivamente, que dan atención y
acompañamiento a las víctimas de violencia doméstica / intrafamiliar a nivel comunitario.
Está prevista la creación de redes en el Municipio de Colón y David.
1.8.
¿Existen modelos de intervención para aquellas personas que han perpetrado
actos de violencia contra la mujer?
R: En el artículo 215 C , de la Ley 38 se establece que en los casos de agresora o
agresor primario, el juez de la causa podrá sancionar con una medida de seguridad
curativa, consistente en un programa de tratamiento terapéutico multidisciplinario,
conforme al artículo 115 del Código Penal, debidamente vigilado por el Departamento
de Corrección del Ministerio de Gobierno y Justicia, o con servicio comunitario
supervisado por la autoridad competente dentro del corregimiento en que reside.
En caso de incumplimiento de la medida de seguridad curativa o del servicio
comunitario supervisado, el juez deberá sustituirla por la pena de prisión correspondiente.
2.
Los /as funcionarios/ as encargados/ as de atender las denuncias de violencia contra la
mujer, ¿cuentan con preparación en materia de perspectiva de género con respecto de
la prevención, sanción y erradicación de la violencia?
R: Tal como lo hemos señalado desde la Dirección Nacional de la Mujer del Ministerio
de Desarrollo Social (MIDES), como la Escuela Judicial, del Órgano Judicial y otras instancias,
se realizan jornadas de capacitación en esta materia.
Si la respuesta es afirmativa:
2.1.
¿Se efectúa una supervisión de los/ as funcionarios/ as encargados/ as de atender
y dar curso a los procesos sobre violencia contra la mujer?
R: En materia de violencia doméstica se han dado algunos esfuerzos en miras a
supervisar el trabajo que se realiza en las distintas instancias.
El año pasado
específicamente la Dirección de Protección de los Derechos Humanos de la Mujer, de la
Defensoría del Pueblo realizó a nivel nacional una gira para verificar el tratamiento de
estos casos, en lo relativo a la aplicación de medidas de protección por parte de los y las
corregidores /as.
2.2.
¿Están informados/ as de las penas de las que son posibles en caso de inacción
y/o faltas de conducta respecto de los procesos de violencia contra la mujer?
R: En general existen sanciones para los funcionarios/ as públicos que no
cumplen con sus obligaciones, en especial el artículo 215 E de la Ley 38 de 2001, que
establece: el funcionario o la funcionaria o el particular que tenga conocimiento de la
ejecución de alguno de los hechos en este Título, y no lo haga del conocimiento de las
autoridades, será sancionado con 50 a150 días de multa.
- 12 -
En caso de aprobarse la comisión de delito, el funcionario o la funcionaria o el
particular quedará exento de cualquier responsabilidad legal por razones de la denuncia.
2.3.
¿Los/ as funcionarios/ as encargados de procesar las denuncias de violencia
reciben capacitación en materia de perspectiva de género y sobre prevención,
sanción y erradicación de la violencia?
R: El Ministerio de Desarrollo Social (MIDES) como ente rector de las políticas
públicas en materia de violencia doméstica coordina, promueve y ejecuta jornadas,
seminarios y / o talleres de capacitación y sensibilización a autoridades encargados/as de
procesar las denuncias. En este sentido, actualmente el Gobierno Nacional lleva a cabo
una Campaña Comunicacional denominada: Basta de Violencia Doméstica, cuyo objetivo
es orientar y correponsabilizar a la ciudadanía sobre la prevención, atención, denuncia y
sanción de los delitos de abuso sexual contra niños, niñas y adolescentes y violencia
doméstica. Esta Campaña fue lanzada por el Presidente de la República, el pasado mes
de enero.
En el marco de esta Campaña se han elaborado una serie de productos entre los
cuales se encuentran: cuñas publicitarias, anuncios de prensa, vallas publicitarias, mupis,
banners, afiches y diseño de página web, entre otros.
3.
¿Existe un sistema de apoyo diseñado para atender las necesidades inmediatas de las
mujeres víctimas de violencia?
Si la respuesta es afirmativa:
3.1.
¿Existen líneas telefónicas gratuitas de emergencia para asesorar a mujeres
víctimas de violencia en todo el país?
R: Contamos con tres líneas gratuitas de emergencia para socorrer u orientar a las
víctimas de violencia doméstica y maltrato a niños, niñas y adolescentes a través de la
línea 147, en el Ministerio de Desarrollo Social (MIDES), en el Albergue Nueva Vida la
línea: 2216252, la cual funciona 24 horas y en el Ministerio Público a través de la línea:
800-0014; este último no es exclusivo para víctimas de violencia doméstica /
intrafamiliar, sino para atender todo tipo de delitos.
3.2.
¿Existen refugios distribuidos geográficamente destinados a mujeres víctimas de
violencia y al cuidado de sus hijos/ as? Si existen, ¿son de carácter público,
privado o ambos?
R: Nuestro Ministerio cuenta con la Casa Albergue Nueva Vida, quien recibe
mujeres con sus hijos e hijas, víctimas de violencia doméstica / intrafamiliar, ubicado, en
la ciudad de Panamá. La Casa Albergue es de carácter público. Cabe destacar que a
nivel nacional existen Casas Hogares e Instituciones de Protección, que albergan
temporalmente a niños, niñas y adolescentes en situaciones de maltrato infantil y abuso
sexual.
3.3.
¿La distribución geográfica de los refugios, ¿es apropiada a la cantidad de
denuncias de violencia recibidas?
R: El Hogar Albergue Nueva Vida, se encuentra en la ciudad capital, en un área
céntrica, considerando que la mayoría de las víctimas son de estas áreas geográficas.
- 13 -
No obstante, hay propuestas en este sentido, para abrir albergues en otras provincias
donde hay alta incidencia de casos de violencia doméstica.
3.4.
¿Se fomenta la creación de grupos de autoayuda de mujeres afectadas por la
violencia?
R: Sí, existen Organizaciones No Gubernamentales de Mujeres que fomentan
grupos de autoayuda como lo son: la Fundación para la Promoción de la Mujer
(FUNDAMUJER), el Centro de atención a la Mujer Maltratada (CAMM) y el Centro
para el Desarrollo de la Mujer (CEDEM); cuentan con programas dirigidos a la atención
de las victimas de violencia doméstica, mediante asistencia psicológica, trabajo social y
legal. En la provincia de Panamá, existen grupos de autoayuda, que funcionan desde el
Centro de Salud, del corregimiento de Juan Díaz, ciudad de Panamá.
3.5.
¿Qué tipo de servicios de orientación familiar gratuito hay disponibles en el país?
R: Se cuenta con programas de orientación familiar como es el caso de la
Universidad Santa María la Antigua (USMA), quienes ofrecen terapia familiar, en el
marco de la Maestría en Familia. A nivel gubernamental se encuentra el Programa de
Paido Psiquiatría, quien en forma integral atiende la problemática de adolescentes, en
conjunto con la familia y en la Caja de Seguro Social (CSS).
3.6
¿Qué tipo de programas de rehabilitación de la mujer víctima de violencia se
implementan?
R: El Ministerio de Salud cuenta con una serie de programas dirigidos a la
población que acuden a los Centros de Salud a nivel de las diversas Regiones de Salud
que existen a nivel provincial y comarcal. En dichos Centros se brindan programas de
atención tales como los servicios de trabajo social y el programa de salud mental.
3.7
¿Señale otros sistemas de apoyo existentes.
R: Las Organizaciones No Gubernamentales de Mujeres igualmente desarrollan
programas de formación para el fortalecimiento de actitudes y valores positivos como
forma de integrar a la mujer a la sociedad, a través de la capacitación en temas tales
como: género, autoestima, derecho de familia, derecho laboral, seguridad social, entre
otros.
A nivel del Ministerio de Desarrollo Social se cuenta con programas de
orientación inicial psicosocial y legal a la víctimas de violencia doméstica intrafamiliar.
3.8
¿Existen programas sociales para la atención de las necesidades básicas de las
mujeres víctimas de violencia?
R: El Plan Nacional Contra la Violencia Doméstica y Políticas de Convivencia
Ciudadana, conlleva el desarrollo de algunas acciones en la cual se propone como línea
estratégica sensibilizar a la autoridades nacional en la necesidad de fomentar políticas
públicas que estimulen la participación en igualdad de oportunidades de la población;
que fomenten un crecimiento económico de amplia base; que combatan las causas
estructurales de la pobreza que por ende incidan en la disminución de la violencia
doméstica en Panamá.
Entre las acciones a desarrollar se encuentran: estudios sociales; dirigidos a
valorar las necesidades y recursos de apoyo requeridos por la población afectada por la
- 14 -
violencia, promover desarrollo de proyectos de generación de empleo para grupos de
víctimas de violencia, revisar y presentar modificaciones a las normas sobre derecho a
propiedad de tierra y otros bienes, en el caso de las víctimas de violencia.
4.
¿Existe un mecanismo de control, evaluación y seguimiento de los procesos de
empoderamiento de las mujeres víctimas de violencia?
R: Formalmente no se cuenta con un sistema de control, evaluación y seguimiento, en
este ámbito inicialmente se trabaja a nivel de la prevención por medio de capacitación, dirigidas a
la comunidad, que incluyen temas que contribuyen a lograr el empoderamiento de las mujeres en
general.
5.
¿Existe una política penal con objetivos a alcanzar respecto de la prevención,
sanción y erradicación del femicidio?
R: No existe una política penal con objetivos específicos. Actualmente en nuestro país,
estamos más bien en una etapa de sensibilización y capacitación en materia de violencia contra la
mujer y uno de ellos es el tema del femicidio.
III.
PRESUPUESTO NACIONAL
1.
¿Existen partidas en el presupuesto nacional y local destinadas a financiar acciones
frente a la violencia contra las mujeres?
Si: ● No
Si la respuesta es afirmativa:
1.1
¿Existen partidas en el presupuesto nacional destinadas al fortalecimiento del
ente rector o estrategia nacional sobre violencia contra las mujeres y para el
desarrollo del plan nacional sobre la violencia contra las mujeres? ¿En qué monto
y porcentaje?
R: El monto de la partida destinado al fortalecimiento del plan nacional sobre la
violencia contra las mujeres, oscila en B/. 100,000.00, que constituye el 0.42% del
presupuesto total del Ministerio de Desarrollo Social (MIDES). (Departamento de
Presupuesto de la Dirección Administrativa del Ministerio de Desarrollo Social
(MIDES)).
1.2
¿Cuál es el porcentaje del Producto Interno Bruto que se invierte para prevenir,
erradicar y sancionar la violencia contra la mujer?
R: El Producto Interno Bruto que se invierte para prevenir, erradicar y sancionar
la violencia contra la mujer, es de 0.76%. (Departamento de Presupuesto de la Dirección
Administrativa del Ministerio de Desarrollo Social (MIDES)).
1.3
¿Cuál es la inversión anual en dólares destinada a las comisarías de la mujer y/o a
la protección policial de mujeres víctimas de violencia, su familia y testigos?
(dividir dicho monto por la cantidad de personas protegidas de forma tal de
obtener información per cápita)
- 15 -
R: Por el momento no se cuenta con comisarías dedicadas a la protección policial
de mujeres víctimas de violencia, su familia y testigos, ya que las medidas destinadas a la
protección policial de mujeres víctimas de violencia, su familia y testigos son tramitadas
a través de las Corregidurías, Fiscalías y la Policía Técnica Judicial, las mismas no son
exclusivas para atender casos de violencia contra la mujer, sino también le corresponde
atender delitos en general.
1.4
¿Cuál es la inversión calculada en dólares destinada a líneas telefónicas de
emergencia? (dividir dicho monto por la cantidad de llamadas recibidas de forma
tal de obtener información por llamada)
R: Mediante Acuerdo el Ministerio de Desarrollo Social (MIDES), el Ministerio
Público y la Compañía Cable & Wireless (compañía telefónica), se proporcionaron líneas
de auxilio completamente gratis, a fin de denunciar el maltrato infantil y la violencia
doméstica. El costo que le corresponde al Estado, oscila en B/. 779,720.00, en el último
año 2005 y dos meses del año 2006.
1.5
¿Cuál es la inversión calculada en dólares destinada a refugios? (dividir dicho
monto por la cantidad de personas albergadas de forma tal de obtener
información per cápita)
R: Actualmente el Ministerio de Desarrollo Social (MIDES), destina B/.
60,000.00 anuales. El consumo per cápita asciende a B/. 240.00 por persona; incluyendo
atención psicológica, legal y alimentación.
1.6
¿Cuál es la inversión anual en dólares destinada a los programas de rehabilitación
de víctimas? (dividir dicho monto por la cantidad de participantes en los
programas de forma tal de obtener información per cápita)
R: No se tiene una cifra a nivel nacional. Existen algunos casos identificados por
áreas como el Estudio Costo, Magnitud y Factores de Riesgo de la Violencia
Intrafamiliar en las Comunidades de Soná y San Miguelito- año 2004, de las
provincias de Veraguas y Panamá respectivamente, señala que el Ministerio de Salud, no
cuenta con un presupuesto nacional exclusivo para la rehabilitación de víctimas, sino que
hay un presupuesto general para diversos programas que lleva a cabo esta instancia.
Dicha situación se debe entre otras, a la carencia de registros adecuados para la
atención de estos casos, ya que no se lleva una contabilidad de costos de servicios
médicos, entre otros. Sin embargo, el Estudio señala que el costo estimado de la
violencia doméstica en San Miguelito es de B/. 1,795,751.36; tanto a nivel del sector
público y privado (centros de salud y clínicas privadas).
En relación al costo estimado de la violencia doméstica en el distrito de Soná,
provincia de Veraguas es de B/. 38,159.76, estimado en el número de casos según la
población que asisten a las instituciones públicas y privadas.
1.7
¿Cuál es la inversión anual en dólares destinada a solventar la investigación y
recopilación estadística respecto de la violencia contra la mujer?
R: El Ministerio de Desarrollo Social (MIDES) ha realizado investigaciones por
un monto de B/. 104,580.00; en concepto de investigaciones para:
- 16 -
a)
b)
c)
2.
Diseño y Elaboración del Plan Nacional Contra la Violencia Doméstica y
Formas de Convivencia Ciudadana,
Investigación sobre Costos, Magnitud y Factores de Riesgo de la
Violencia Intrafamiliar de los distritos de Soná y San Miguelito,
provincias de Veraguas y Panamá y
Procesos de Consulta y Asistencia Técnica para la elaboración del
Programa de Fortalecimiento de la Gestión Local y para el Diseño del
Plan Local Contra la Violencia Doméstica / Intrafafimiliar en San
Miguelito y Soná.
¿Existen partidas en el presupuesto nacional y local destinadas a programas de
capacitación enfocados a prevenir la violencia contra la mujer?
Si ● No
Si la respuesta es afirmativa, se cuenta con información sobre:
2.1
¿Cuál es la inversión anual en dólares destinada a programas de sensibilización
de maestros a nivel primario, profesores a nivel secundario y universitario?
(dividir dicho monto por la cantidad de maestros y profesores receptores de los
programas de forma tal de obtener información per cápita)
R: La inversión anual en dólares destinados a programas de sensibilización a
docentes en el 2,005 es de B/. 983.00 y la inversión per cápita es de B/.2.23 por docente.
2.2.
¿Cuál es la inversión anual en dólares destinada a programas de capacitación de
prestatarios de servicios? (dividir dicho monto por la cantidad de prestatarios de
servicios receptores de los programas de forma tal de obtener información per
cápita
R: El Ministerio de Desarrollo Social (MIDES), en su presupuesto de inversión
en el año 2005, destinó B/. 1,716,200.00, distribuido en trece (13) proyectos, elevando
cada uno de ellos un componente de sensibilización y capacitación, que
aproximadamente constituye el 40% de dicho presupuesto total.
El componente de sensibilización y capacitación dirigido a los y las usuarios /as
de Ministerio se enmarca en las políticas públicas de desarrollo social, hacia los grupos
de atención como lo son los y las niños /as, los y las jóvenes, adultos/as mayores y las
mujeres.
3.
¿Existen partidas en el presupuesto nacional destinadas a financiar programas de
sensibilización sobre la violencia contra la mujer?
Si.●
No
Si la respuesta es afirmativa, se cuenta con información sobre:
3.1.
¿Cuál es la inversión anual en dólares destinada a programas de sensibilización
de niños/as, jóvenes y adultos? (dividir dicho monto por la cantidad de receptores
de los programas de forma tal de obtener información per cápita)
R: Un 40% del presupuesto de inversión anual del Ministerio de Desarrollo
Social (MIDES) a programas de capacitación, sensibilización dirigidos niños/as, jóvenes
y adultos.
- 17 -
4.
¿Existe una práctica de cooperación entre los organismos oficiales y las
organizaciones no gubernamentales focalizadas en temas de género?
R: Efectivamente, se realizan acciones conjuntas entre organismos oficiales y
organizaciones no gubernamentales en temas de género.
IV.
INFORMACIÓN Y ESTADÍSTICAS
1.
¿Existe recopilación estadística sobre trámites judiciales de denuncia, procesos y
sentencias de violencia contra la mujer?
Si: ● No
Si la respuesta es afirmativa, se cuenta con información sobre:
1.1
¿Cuántas denuncias se realizaron el último año ante las instancias oficiales de
recepción de denuncias en razón de la violencia contra la mujer?
R: En el año 2005 se realizaron alrededor de 1349 denuncias de mujeres
víctimas de violencia doméstica / intrafamiliar. Dichos datos fueron brindados por la
Policía Técnica Judicial (PTJ). Por otro lado el Órgano Judicial nos informa que de los
casos ingresados de violencia doméstica contra mujeres, en el año 2004 suman alrededor
de 7,435, de los cuales de 5,699 fueron resueltos.
1.2
¿Cuántas detenciones se realizaron el último año en razón de la violencia contra
la mujer?
R: Los datos obtenidos por el Centro de Estadísticas del Órgano Judicial de la
República de Panamá, nos señalan que en las dependencias judiciales existen un total de
2,878 detenidos, que comprende el año 2,004. Sin embargo, la fuente nos señala que el
número de detenidos no especifica los tipos de delitos.
1.3
¿Cuántos juicios se realizaron y cuántos se finalizaron con condenas en los tres
últimos años en razón de la violencia contra la mujer?
R: Los datos obtenidos por el Centro de Estadísticas Judiciales, del Órgano
Judicial de la República de Panamá, hacen referencia a los años 2003- 2004, en la que
11,562 juicios sobre violencia doméstica se realizaron y de estos 829 tuvieron una
sentencia condenatoria.
1.4.
¿Qué número de personal policial o administrativo se destina a la protección de
mujeres víctimas y sobrevivientes violencia?
R: Por el momento no se puede precisar la cifra, ya que el personal destinado a la
protección policial o administrativa de mujeres víctimas y sobrevivientes de violencia,
atienden además otros tipos de delitos que son tramitados a través de las Corregidurías,
Fiscalías y la Policía Técnica Judicial.
2.
¿Existe investigación y recopilación estadística sobre asistencia a la mujer víctima de
violencia?
- 18 -
2.1
¿Cuántas llamadas atendieron en el último año las líneas telefónicas de
emergencia?
R: En la línea de emergencia 147 que pertenece al Ministerio de Desarrollo
Social se han atendido 154,855 llamadas telefónicas, que comprende desde el 5 de julio
de 2005 hasta la fecha. De igual forma, el Ministerio Público ha atendido alrededor de
286 llamadas, en un periodo que va del 17 de diciembre de 2005 al 17 de enero de 2006;
a través de 800-0014.
2.2
¿Qué cantidad de refugios y con qué capacidad se encuentran disponibles en el
país?
R: En el ámbito nacional contamos con un albergue denominado “Nueva Vida”,
dirigido a mujeres víctimas de violencia doméstica, como hemos señalado existen otros
hogares para niños, niñas y adolescentes.
2.3
¿Qué porcentaje de los refugios son de carácter público y qué porcentaje son de
carácter privado?
R: El Albergue Nueva Vida es de carácter público y lo administra una ONG de la
localidad y es subsidiado a través de una partida institucional que le ofrece el Ministerio
de Desarrollo Social (MIDES).
2.4
¿Qué porcentaje de los casos ingresados en los hospitales se deben a violencia
contra la mujer?
R: Según el Departamento de Análisis de Situación y Tendencias de Salud,
Registros Médicos y Estadísticas de Salud, el total de mujeres atendidas por sospecha de
violencia intrafamiliar y maltrato al menor, durante el 2,005 es de 2,476, que constituye
el 78.9%.
3.
¿Existe investigación y recopilación estadística sobre muerte de mujeres a causa de
violencia?
3.1
¿Cuántas mujeres han sido víctimas de homicidio por agresión o como
consecuencia de una agresión de parte de sus parejas o ex parejas (femicidio)?
(proporcionar datos por año desde los diez años anteriores a la entrada en
vigencia de la Convención Belém do Pará hasta la fecha)
R: Existen un total de 171 muertas por homicidio por agresión o como
consecuencia de una agresión de parte de sus parejas o ex parejas (femicidio), según
datos suministrados por la Policía Técnica Judicial (PTJ). Dicha cifra comprende los
años 1999 hasta agosto de 2,005.
3.2
¿Cuántos casos de denuncia han terminado en el homicidio de las denunciantes
(femicidio)?
R: Esta información no está procesada de tal manera que se puede contar con la
misma cifra.
3.3
¿Cuántos de los casos de femicidio han resultado en sentencias condenatorias del
agresor?
R: No se cuenta actualmente con estas cifras.
- 19 -
4.
¿Existe investigación y recopilación estadística sobre otros datos respecto de la
situación de la mujer?
4.1
¿Cuándo se realizó el último censo nacional? ¿Se incluyeron preguntas relativas
a violencia basada en género?
El último Censo Nacional fue realizado en el año 2,000. No se consideraron
variables sobre violencia basada en género.
4.2
¿Cuál es el número de mujeres en el país? (tramos de edad: 0-14 (niñas); 15-29
(jóvenes); 30-44; 45 –59 (adultas); 60 y más (adulta mayor)
R: La distribución porcentual de mujeres en el país de acuerdo al último censo se
desglosa de la siguiente manera:
TRAMOS DE EDADES
0-14
15-29
30-44
45-59
60 Y MÁS
NÚMERO DE MUJERES
299,817
253,186
194,075
110,583
123,798
4.3
¿Qué porcentaje representan sobre el total de la población?
R: La población panameña se distribuye igualitariamente por sexo. El 51%
de la población está conformada por hombres y el restante 49%.
4.4
¿Qué porcentaje de la población femenina habita en áreas rurales? Indicar tramos
de edad.
R: El mayor porcentaje de la población reside en áreas urbanas; siendo el
43.3% de la población, es decir, 1,250.880 personas las que viven en áreas rurales. En
el área rural residen 657,873 hombres y 593,000 mujeres, lo que indica que son menos
las mujeres que viven en las áreas rurales del país. Ello permite establecer que en el
área rural disminuye el porcentaje de mujeres (47.4 %), con relación al porcentaje en el
ámbito nacional (49.5%).
En el Censo de Población del año 2000, se observó un incremento de un 2.1
puntos porcentuales en comparación con el censo de 1990 es decir, existe una mayor
propensión de las mujeres a trasladarse hacia áreas urbanas.
4.5
¿Qué porcentaje de la población femenina habita en ciudades? Indicar tramos de
edad.
R:
Tramo de edades
Porcentaje
Menores de 1 año
1-4
5-9
10-14
2.0
7.9
8.8
9.0
- 20 -
15-19
20-24
25-29
30-34
35-39
40-44
45-49
50-54
55-59
60-64
65-69
70-74
75-79
80-84
85 y más
No declarada
9.5
9.4
9.1
8.5
7.7
6.3
5.2
4.3
3.2
2.5
2.0
1.6
1.2
0.9
0.8
0.0
Fuente: Censos Nacionales de Población y Vivienda 14 de mayo de 2,000. pág 43 .
4.6
¿Qué porcentaje de la población femenina vive bajo la línea de pobreza?
R: Al comparar el nivel de ingreso que viven en situación de pobreza, se
encuentra que 29 de cada 100 hogares que tiene una mujer como la proveedora de la
familia, viven con menos de B/. 1.22 diario y 39 de cada 100 hogares con estas
características viven con B/. 0.73 centavos al día para cubrir todas sus necesidades.
La tasa de participación de las mujeres de 15 años y más, según su nivel de
pobreza, es de: pobreza total: 35.4% y pobreza extrema 34.8%.
En relación a la jefatura de hogar tenemos que las mujeres presentan niveles de
pobreza total de 17.4% y pobreza extrema de 13.5%, comparándola con los hombres es
menor, pobreza total 82.6% y extrema 84.7%. Estos datos proceden de la Encuesta de
Niveles de Vida (2003) del Ministerio de Economía y Finanzas.
4.7
¿Qué porcentaje de la población femenina es analfabeta? Indicar tramos de edad.
R:
Edad
Porcentaje %
Total
145.10%
10-14
7.3
15- 19
5.1
20-24
5.3
25-29
5.8
30-34
7.9
35-39
10.5
40-44
13.7
45-49
16.6
50-54
20.5
- 21 -
55-59
60 y más
23.6
28.8
Fuente: Censo de Población 2,000.
4.8
¿Qué porcentaje de la población femenina completó la escuela primaria?
R: La población femenina que completó el nivel de instrucción primaria es de
39.90%, según el censo de 2,000.
4.9
¿Qué porcentaje de la población femenina completó la escuela secundaria?
R: La población femenina que completó el nivel de instrucción secundaria fue de
32.93%, según el censo de 2,000.
4.10
¿Qué porcentaje de la población femenina completó la educación terciaria y/ o
universitaria?
R: La población femenina que completó el nivel de instrucción universitaria fue
de 9.97%, según el censo de 2,000.
4.11
¿Cuál es el número de mujeres privadas de libertad?
R: El número de mujeres privadas de libertad hasta el 30 de enero de 2006 es de
773.
4.12. ¿Qué porcentaje de la población femenina es económicamente activa?
R: La población económicamente activa incluye unas 483,156 mujeres, que
representan el 36.7% de la PEA total en el año 2003. En trece años la misma creció en
66.4% (290,436 en 1991 a 483, 156 en 2003). Esto representa un incremento promedio
anual de 5.1% en contraste con el crecimiento de la PEA masculina que fue de 3.6%
anual en el mismo periodo.
5
¿Existe recopilación estadística sobre programas de capacitación para la prevención,
sanción y erradicación de la violencia contra la mujer?
5.1
¿Qué porcentaje sobre el total de los maestros primarios, secundarios y
profesores universitarios recibe capacitación sobre violencia contra la mujer?
R: En el año 2,005 413 maestros/as de educación primaria y secundaria han
recibido capacitación en violencia doméstica.
5.2.
¿Qué porcentaje sobre el total de los prestatarios de servicios sociales y judiciales
recibe capacitación de género y sobre violencia contra la mujer?
R: Corresponde a la Escuela Judicial de Panamá capacitar al personal que
compone el Órgano Judicial y el Ministerio Público. Entre los temas que se han impartido
en estas capacitaciones tenemos: Género y Derecho; Normativa Internacional en Materia
de Género; Paternidad Responsable; Jurisdicción Igualitaria; Violencia Doméstica;
Derechos Humanos; Hacia una Jurisdicción Igualitaria.
- 22 -
6.
¿Cómo se difunden los datos estadísticos? ¿Son de acceso fácil y público?
R: Los datos estadísticos se difunden a través de varias vías: base de datos en Sitios Web;
sin embargo la mayoría de las veces se obtiene mediante la solicitud de información proveniente
de los diversos Departamentos de Estadísticas que existen en las centros de investigación e
instituciones públicas. En su gran mayoría son de acceso público.
7.
¿Qué capacitación sobre género reciben quienes elaboran y aplican instrumentos para
recoger estadísticas?
R: Desde la Dirección Nacional de la Mujer, del Ministerio de Desarrollo Social
(MIDES), se brinda capacitación a las funcionarios /os de instancias gubernamentales, entre ellos
a quienes se encargan del procesamiento de los datos estadísticos.
8.
¿El Estado cuenta con un observatorio ciudadano contra la violencia hacia las
mujeres? ¿Cuál es su impacto?
R: El Estado no cuenta con un observatorio ciudadano contra la violencia doméstica
hacia las mujeres, sin embargo el Estado lleva cabo una serie de programas, acciones y proyectos
destinados a la atención, prevención, detección y rehabilitación de víctimas de violencia
doméstica a nivel comunitario y políticas de Estado, como es el Plan Nacional Contra la
Violencia Domestica y Políticas de Convivencia Ciudadana.
- 23 -
COUNTRY REPORT APPOVED BY THE COMMITTEE OF EXPERTS
ON VIOLENCE (CEVI)
EXECUTIVE SUMMARY
Violence against women is a growing concern in the Inter-American System of the OAS,
particularly at the MESECVI. Many important achievements have been attained within the
framework of many activities in the implementation of the provisions of the Convention of Belém
do Pará in the international as well as in the domestic arenas. Success has been attained through
the advancement of the internal judicial order of the State Parties and the development of the
policies, programs and plans implemented by the National Mechanisms of Women and other
institutions and public and private agencies.
In this sense, this report is structured taking into consideration the General Criteria of
the Methodology applied in the Preliminary Report of the MESECVI: Egalitarian
Treatment and Functional Equivalence.
Measures taken by the State regarding the application of the specific provisions of the
Convention to determine if they are complying with its obligations and purposes
SPECIFIC CRITERIA:
Level of advancement in the implementation of the Convention
Evaluate the progress made, and if any, the areas which require advances in the
implementation of the Convention. Evaluate the existence and perspectives of a judicial
framework and/or other measures taken by the States.
Structure of the Preliminary Report, taking into consideration the following Methodology:
Executive summary or synthesis; Four corresponding chapters to the responses given to
the Basic Questionnaire by the National Authority of the State, indicating the advances, obstacles
and drawbacks; General and Specific Recommendations based on the provisions of the
Convention, taking into consideration the information presented by the country.
In this sense, it is observed that regarding the themes which have been referred to, the
Panamanian legislation, has successfully developed, with the approval of the approved
legislation, that have been complementary regulations and constitute valuable judicial national
support regarding the internal adaptation of the Convention of Belém do Pará, and the principles
and purposes of the same such as : Law Number 4 "Equality of opportunities for women", of
1999; Law Number 17 of March 28, 2001, by which the Professional Protocol of the Convention
for the Elimination of all forms of Discrimination against Women” is approved; Law Number 38
of July 10, 2001; which reforms and adds articles to the Penal and Judicial Codes and to the
Domestic Violence and Mistreatment to boys, girls, adolescents, abolishes articles of Law
Number 27 of 1995; to give a better judicial protection to women victims of any form of violence
based on gender.
- 24 -
The legislative reforms and/or modifications comprised in Law 38, of 2001, have also
been reforms and additions to the Articles to the Penal and Judicial Codes, referred to the themes
of domestic violence and mistreatment to boys, girls, and adolescents, which at the same time
abolishes articles of Law 27 of 1995 and dictates other provisions.
I.
I.
PROGRESS, OBSTACLES AND SETBACKS
LEGISLATION. EXISTING REGULATIONS. NATIONAL PLANS.
The basis of the specialized technical analysis on the issues of violence against women or
violence based on gender, in the private as in the public sectors, has been analyzed as shown in
this report, in the context of the implementation of the policy parameters of the Inter-American
Convention on the Prevention, Punishment and Eradication of Violence Against Women, the
Convention of Belem do Pará, in general and specifically with regard to the Articles 1, 2, 3, 4, 5,
6, 7, 8, 9,10,11,12 there under, which are part of and enshrined in the national legal system of the
State of the Republic of Panama, because it has ratified this important regional treaty of the interAmerican system, and because Panama also has special national legislation in this regard.
The State of Panama by ratifying the mentioned Convention adapted its national
legislation through the adoption of the Law Number 27 in June 1995, which categorized
domestic violence and abuse of minors as crimes, and therefore, organized the establishment of
specialized units to care for the victims of these crimes. Also, several provisions were reformed
and added to the Panamanian Penal and Judicial Code.
PROGRESS
The range of fundamental rights covered by the Convention of Belém do Pará creates the
need to monitor the actions of State Parties through the MESECVI follow-up mechanism, and
conduct a comprehensive review of existing national rules and their effectiveness, with the aim of
achieving effective and complete integration of special regulations already in force with other
branches of national laws already in place, such as Criminal and Procedural, Administrative, Civil
and Family Law.
Optional protocol of the Convention on the Elimination of all the Forms of
Discrimination
In this sense, Panamanian law, in reference to the subject mentioned, has evolved
positively by introducing complementary regulations that both support national legislation and
adapt it to the Convention of Belem do Pará, and its principles and purposes. These regulations
include Law no. 4 "Equal Opportunities for Women", from 1999; Law Nº 17 from March 28,
2001, that approved the Optional Protocol of the Convention on the “Elimination of all forms of
discrimination against women”; Law No. 38 of July 10, 2001, which amends and expands the
Criminal and Judicial Codes’ articles regarding domestic violence and child and adolescents
- 25 -
abuse, and repeals certain articles of Law no. 27 1995 to provide better legal protection to
women as victims of any form of gender-based violence.
Reforms and / or legislative changes included in Law 38 from 2001 have also been
reforms and additions to the Articles of the Criminal and Judicial Code that address domestic
violence and abuse toward children and adolescents, which in turn repeals articles of the Act 27,
1995 and enacts other provisions.
In this sense, the analysis of the answers provided by the National Authority in regards to
the Base Questionnaire sent to the representatives of MESECVI and the additional information
that has been reviewed reveal that the scourge of domestic violence has been regulated in a most
appropriate manner through the reform of 2001, but only in relation to the women as family
members though not as rights bearers, as required by the Convention of Belém Do Pará from the
State parties. These are asked to enforce the principles of the Convention and perform their
corresponding state duties.
We have come to know both through the national statistics, as well as the shadow reports
from NGOs on human rights and women's organizations, that women in the national and regional
context are the most serious victims of gender-based violence, both in the public and private
sectors. This is the subject of our review of the legal and regulatory aspects.
It should be underscored that the reform under review is drafted using non-sexist
language and introduced the term domestic violence (previously called intra-family violence),
substituting the term abuse of boys, girls and adolescents for the term child abuse, in line with the
regulatory requirements of the Convention on Children’s Rights.
The lack of definitions in general and especially regarding the concept of intra-family
violence (now called domestic violence) is corrected. It is noted that the terms are defined to
provide greater clarity so the regulations can be better interpreted and enforced.
Reforms define who is an aggressor (male or female) and terms such as cohabitation;
abuse; protective measures; couple relationships; surviving victim; domestic violence and its
various manifestations, i.e. physical, patrimonial (property), sexual and psychological.
Law 38, the most important part of this reform, creates the regulatory structure that
establishes protective measures, which can be used regardless of whether they were starting or
continuing any judicial process, whether civil, criminal, family or administrative.
OBSTACLES AND SETBACKS
OBSTACLES
This regulatory legislation, however, still fails to provide the systemic type of legislation
which can be achieved through a special law. It merely introduces criminal legislation and other
rules of a general nature that do not belong to the specific area of enforcement of the primary
principle cited at the Convention, based on Articles. 3 and 4, which state: "Every woman has the
right to a life free from violence, both in the public and private sectors."
- 26 -
In addition, "every woman has the right to the acknowledgement, enjoyment, exercise
and protection of all human rights and freedoms enshrined in regional and international
instruments on human rights. These rights include, among others, the right of respect to life, the
right of respect for their physical, psychological and moral integrity, the right to freedom and
personal security, the right not to be subjected to torture; the right to respect their inherent
personal dignity and to the protection of their family, the right to equal protection before the law
and by the law, the right to a simple and fast decision before competent courts, so as to be
protected against acts that violate their rights, the right to freedom of association, the right to
freedom to exercise their religion and beliefs within the law, the right to equal access to public
services of their country and to participate in public affairs, including decision-making."
It should be further noted that with respect to criminal sanctions to the aggressor for
threats or harassment to the integrity of the victim, included in Articles 215 and 220 of the
Criminal Code, the sanction is limited to terms of 1 to 3 years in prison for crimes of domestic
violence and sexual harassment, without providing any kind of legal mechanisms to monitor the
effectiveness of these sanctions, by the justice administrators, since penal/criminal law. Criminal
laws require complementary penitentiary law to provide adequate rehabilitative programs for
offenders and protection to the victims.
We know how complex the rehabilitation of aggressors can be. If the aggressors do not
count with complete programs including evaluation and follow up, criminal sanctions will hardly
be effective. In addition, usually these sentences are considered minor or negligible by
penal/criminal legislation, and range from 1 to 3 years that may be served outside of jail. They
may also be subject to conciliation, which is not the most appropriate procedure to be followed in
cases of private or domestic violence against women.
In addressing the analysis of criminal sanctions, which have been the basis for the
reforms introduced since the ratification of the Convention, we see that both the legislator and the
judicial official who enforces the rules considers these crimes as less important, pointing to the
remaining regulatory barriers and inadequate legal measures to deal with the social issues at hand.
This regulatory context signals therefore a reversal for and an obstacle to the
implementation of the Treaty, as it is clear that the crimes against property or connected to other
social crimes carry greater punishment and protection to their victims.
We see that various reforms and adaptations of the criminal code are required by the
Convention of Belem do Pará to address the reduced importance afforded by existing regulations
to serious offences and crimes in this realm. The failure of existing measures, strategies and
public policies to prevent and punish the crime of violence against women reveals the need for a
comprehensive review of existing laws and regulations to prevent, address, punish and eradicate
gender violence, not only at the domestic level but also in the public environment, generally.
Since criminal law, by itself, does not guarantee the eradication of this scourge, unless it
is accompanied by legislation to create a specialized care system for women victims of this
scourge together with public policies and plans for its prevention, control and eradication, a
recommendation is made to create and adopt special laws on the issue.
This is the intent of the comments made here about the legal and judicial issues addresses
- 27 -
in the report, as with Article 7 of the Convention of Belém do Pará, called the DUTIES OF
STATES. The integral nature of the legislative, executive and judicial measures is essential to
prevent and address violence against women, and to provide the protection they need along their
life stages when they may be subject to violence.
We know that gender-based violence exceeds general regulatory structures, so
comprehensive mechanisms are required connecting sectors and institutions based on the
parameters and guidelines provided by the Convention.
We must therefore create a structure to provide comprehensive protection to women in
the private and public spheres to strengthen national legislation not only within the family but
also in society at large.
GENERAL RECOMMENDATIONS.
SPECIFIC RECOMMENDATIONS.
CHAPTER I:
The approach to human rights and a gender perspective must be enforced by the State
through the monitoring of national legislation and public policies, plans and programs for
prevention, care and protection in the various areas responsible for the implementation of the
Convention of Belém do Pará, as well as existing and binding national laws to create a functional
structure, not only for the implementation of protective measures, but also for the other actions
that should lead to the complete systematic monitoring of cases.
If we start with the current legislation only addressing domestic violence, through
criminal law in a general context, we can establish that this legal mechanism, judicial and other
defined actions and strategies are not an adequate and optimal intervention by the State to address
the social problems under review.
Art. 7 paragraph c)reads as follows: " (States shall)include in their domestic legislation
criminal and other regulations as well as other properties that may be necessary to prevent, to
punish and eradicate violence against women and to adopt appropriate administrative measures as
necessary";
g)
Establish the judicial and administrative mechanisms to ensure that women subjected to
violence have effective access to restitution, reparations for damage or other means of
fair and effective compensation" and,
h)
Adopt legislation or other measures as may be necessary to provide effectiveness to this
Convention. "
Priorities must be set for the care and protection of women victims, as rights bearers both
within the family, and in the public social context, as provided by the Convention in Article 6
"The right of every woman to a life free of violence which includes, among others:
a)
b)
Women’s right to be free from all forms of discrimination, and
Women’s right to be valued and educated free of stereotyped behavior patterns and
- 28 -
social and cultural practices based on concepts of inferiority or subordination. "
To overcome re-victimizing of women victims, they should be provided legal protection
by strengthening legal systems. These systems still lack the integrated support stemming from
comprehensive public policies or the preventive attention from local to national entities.
Likewise, the administrative laws and comprehensive care programs to develop preventive and
protective laws catering to women’s public safety must be reinforced, with an emphasis on a
comprehensive security policy to develop a cross-cutting approach to gender issues with a focus
on basic human rights.
In this article we should recommend the establishment of a comprehensive regulatory
special system, which has control of the application of special laws through the creation of
PROTOCOLS OF SPECIAL LAW ENFORCEMENT and A MECHANISM OF LAW
INDICATORS, as well as the development of policies for prevention, care and protection
(decentralized)premises, which are developed by municipalities and civil society.
We must understand that the cycle of violence oftentimes unfortunately overflows all the
proposed and established regulations, from the domestic legislation to the implementation and
application of special support regulations in the justice system.
We must overcome the inadequate interpretation and vision of the Convention from a
purely domestic-family focus on gender-based violence enshrined in local laws.
This viewpoint has hampered assertive actions and strategies of prevention, protection,
care, punishment and eradication relating to violence, from a medium and long term standpoint.
We still have a limited approach to women’s rights and we have not adequately invested in any
actions by the state to minimize the impact of systematic discrimination. This affects women at
different stages of their lives, due to entrenched cultural and social prejudices and stereotypes. It
prevents their overcoming the lack of knowledge of their rights and hampers their access to
system, and results in institutional weakness to address the public safety of women especially in
cities, communities and family groups.
In this regard, States are recommended to adapt their national legislation to the
parameters that enable creating a system for the comprehensive and effective legal protection of
the subjects of the Convention, with women as victims of violence, pursuant to Article 7 of the
Convention, as follows: "The States Parties condemn all forms of violence against women and
agree to take without delay all appropriate means and policies to prevent, punish and eradicate
such violence and to carry out the following:
a)
Refrain from any violent act or practice against women and ensure that the authorities,
officials, personnel and agents and institutions behave in conformance with this obligation;
b)
Act with due diligence to prevent, investigate and punish violence against women;
g)
Include in their domestic legislation all criminal, civil and administrative and other
regulations as required to prevent, punish and eradicate violence against women and to
adopt appropriate administrative measures as necessary;
- 29 -
h)
To adopt legal measures to order the aggressor to refrain from harassing, intimidating,
threatening, damaging or endangering the lives of women in any way harming their
integrity or their property;"
Based on this recommendation it seems necessary to strengthen national existing
legislation, and to follow up recent reforms, so as to provide quality care to the victims of
violence through Specialized Units included in a comprehensive structure that meets the needs of
women victims and survivors of violence, pursuant to national legislation and the Convention.
The regulatory sanctions that apply to perpetrators of sexual harassment towards women
are relative and incomplete because no effective preventive measures have been drawn up to
control this type of violence at work and other public places. This leads to a multiplicity of types
of this form of violence.
The existing measures do not make jointly responsible the businesses and public entities
where these crimes are committed, and the public entities that deal with this problem do so in an
incipient manner, without guaranteeing the fundamental rights of the victims.
We know that measures against this discriminatory social practice must not only
comprise the criminalization of sexual harassment, but include a proper and comprehensive
legislation for the workplace, schools and society at large. This however is no found in the
existing Labor Code of the Republic of Panama. Nor have specific measures been taken to
overcome this problem. This situation is derived from the discrimination and gender-based
violence simultaneously suffered by women in the public sector. Their public security is still at
its infancy making them very vulnerable. Nor does national legislation address the issues of
prevention, care, protection and appropriate sanctions in the labor, procedural and criminal areas.
A Special Law Against Sexual Harassment in the work, school and social environments
is recommended because Law 4, of January 29, 1999, which establishes Equal Opportunity for
Women, in article 8, paragraph 10, includes only a reference to the crime of sexual harassment,
leaving penal laws as the only way to punish this crime.
This is a widespread practice in the region, because most existing national laws have
penalized the crime of sexual harassment but have not used the full range of special
administrative and civil schemes available in labor regulations.
We know that unfortunately the penalty for this offence has not yielded the expected
results because it has not directly involved the employers, leaving the burden of proof to the
female victim of sexual and moral harassment, which re-victimizes them and threatens their job
security and their survival.
Due to the fact that the unequal power balance stemming from the relationship between
the victim and the harasser, in most of the cases it is not possible to have the sufficient and
necessary evidence to deal with the criminal process, which directly involves the calling of
witnesses and other evidence in support of the alleged crime but since in most cases these facts
fail to be proven and documented, women are dismissed and denounced for slander by the bullies
themselves, leaving women without proper legal protection.
Therefore the criminal provision that have been mentioned must be integrated into a new
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special regulation, which will ensure the protection of women starting with prevention, because
this is a form of discrimination and violence based on the socio-cultural stereotypes still
prevailing in the employment and educational sector, and obvious in schools, universities,
recreational centers, churches and other public and private sectors.
Therefore, an analysis and a study should be performed regarding a reform that will allow
to comprehensively address this form of violence against women in the public sector. This
legislation is important because it implicitly recognizes that the vast majority of sexual
harassment hurts women.
It is recommended to pass legislation on sexual harassment and / or amend the Labor
Code, by creating a special chapter, which will adequately reform the Criminal Code to include
sexual harassment as an offence, in a much broader sense. In regards to the Labor Code, start by
defining behaviors of and establishing economic and administrative penalties for the perpetrators
of this directly and indirectly discriminatory social practice.
Therefore, legislation against sexual harassment must necessitate and include mandatory
training on the issue, as a factor in prevention, as well as procedures, for the entities responsible
to investigate complaints of sexual harassment, as well as compensation that may result from
such behavior.
All of these mechanisms must be known to women. The internal regulations of private
companies and governmental institutions must address sexual harassment and overcome hostile
work environments and discrimination on grounds of gender, as serious misconduct that can be
grounds for dismissal.
Sex trade
It is important to mention regulatory developments in this area, including comprehensive
criminal penalties and administrative sanctions and fines for various forms of transnational crimes
of violence against women, as is Commercial Sexual Exploitation. This is a very significant
achievement in Panamanian law.
The criminal penalties relating to marital sexual violence, outlined in the Base
Questionnaire, are not specifically regulated and do not constitute an aggravated circumstance
with respect to this type of sexual violence. Instead, a recommendation is included to address
marital sexual violence as a priority in Art. 7, paragraphs e) and f) of the Convention of Belém do
Pará, which state:
e)
"take all appropriate measures, including legislative measures, to modify or abolish
existing laws and regulations or to modify legal or customary practices that support
persistence or tolerance of violence against women;
f)
"establish fair and effective legal procedures for women who have been subjected to
violence which include, among others, protective measures, a timely trial and effective
access to such procedures."
Sexist marital violence against women, within or outside wedlock, must be considered in
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regards to the specific circumstances of marital or partnership unbalanced power relationships of
unequal, together with the burden of accepted stereotypes and prejudices of family and social
practices that involve subordination and subjugation of women to their partners; other multiple
circumstances ranging from the systematic cycle of violence; the hierarchical relations within
families set up in the family group; and the lack of an adequate legal monitoring system to protect
women.
With regard to legal measures to compensate or repair the damage done to women
victims of violence, the report states that the Court hearing the case will ensure adequate
treatment for their physical, psychological and emotional recovery and their social reintegration,
borne by the aggressor.
When evaluating legislation, we must take into account that national laws against gender
violence in the region have been confined to family protection, and have not adopted the
fundamental principle of the Convention of Belém do Pará, which under Article 3 of the
Convention states that: "Every woman has the right to a life free of violence, both in the public
and private sectors."
This fundamental human right must be a part of the normative-legal analysis and national
laws, not only as a crucial component of family law but also be adopted across the entire
secondary legislation.
A gender-driven women’s human rights approach cutting across the criminal/penal, labor
and administrative regulations and procedures, must be adopted to improve enforcement of the
regulations and expand the reach of the remedies provided for the damage caused, not only within
the family-private sector, but also in public and social life too, and so the various government
instances can afford women victims better protection and guarantee their safety, both in the social
and family environments.
It is recommended to specifically analyze the legal term used. The law’s language
misleadingly holds women victims of violence should be reintegrated to their communities. This
is misleading language since, due to the social dynamics of discrimination which women are
subjected to, they are not to be blamed for being assaulted.
We know that the system of social and family rules allows and naturalizes abuse,
discrimination and violence against women in its different, which points to the reasons why the
aggressors should be reintegrated or rehabilitated into society and their families, through
specialized programs that will weave a new profile of masculinity into the social fabric.
II.
ACCESS TO JUSTICE
PROGRESS
With regard to the sanctions for government officials who do not comply with the
implementation of the laws of violence against women and other related rules, the penalty from
50 to 150 days' fine, in the administrative field, is comparatively acceptable, due to the fact that
not only should there be provisions made for the financial penalty, but efforts should be made to
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provide quality and appropriate care to the victims, either in the justice system or in the
administrative field.
OBSTACLES
In treatment programs, aggressors are given a remedial curative measure. But this
regulation has not been effective. It should be regarded as a complement to a number of
alternative actions, which should be subject to systematic monitoring. The Therapeutic Treatment
Multidisciplinary Program should include a measure of performance in providing comprehensive
care based on which treatment for aggressors could be redefined.
In this sense, it is important to accompany this system with a re-education in regards to
addressing masculinity and their ways of relating to other people, through the elimination of
discrimination, violence and self-imposed parameters, thus restoring the social fabric and family
through programs of masculinity, where a different form of treatment is built, both as a
preventive tool, as well as protective, which will help since there is increasing attention to the
problem of men and the difficulty of dealing with violence of gender.
Treatment should go hand in hand with reeducation programs to address masculinity and
the ways men relate to other persons. It should aim at eliminating discrimination, violence and
male-centered parameters governing coexistence, restore the social fabric and families, and acting
as both preventive and protection tools to increase attention to the growing problem of male’s
gender-driven violence.
The strategy has focused on the environment where men are brought up. The ideas,
images and the standards to which men are exposed from birth play a crucial role in shaping their
behavior.
Right to Access the Justice System
General Recommendations
A structure for systematic evaluation both locally and nationally, strengthened by the
State institutions, should be put in place because regulatory breaches weaken the legal framework
and public policies. The Judiciary’s, the Councils of the Judiciary’s and other government
agencies’ Evaluation Units must be strengthened, or set up where they do not exist, whenever
they are involved in victim care, including the police forces, shelters, and walk-through and
follow-up of protection, prevention and care measures.
Specific Recommendations
The Report does not address how witnesses of acts of direct or indirect violence can alert
the police to interrupt the cycle of violence. The regulations in this regard should be reviewed so
that alerts can be sent before a final complaint is filed, and thereby immediately stop aggression.
This issue could be addressed by preparing profiles of ideal candidates to fill government
positions, and adopting law enforcement indicators and protocols focusing on breaches of the
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legal process, which take into account the barriers faced by women to have justice served.
Men who witness or are victims of abuse during their childhood and adolescence are
more likely to abuse their female partners. Programs should be in place to examine the role of
men in gender violence. These programs may fall roughly into three categories: education
campaigns (including promotion in the media); working with the perpetrators, and programs
addressing masculinity.
We must bear in mind that those programs that are directed at the aggressors have always
been a controversial, though generally successful, initiative.
There is no mention in the report if the offices catering to victims are suitable so they will
not be re-victimized by the justice system. The report reveals allegations filed in the province of
Panama are more numerous but no information is provided about cases or allegations in other
provinces in the interior, or about the suburban, rural or indigenous population.
More information is needed about the care provided to female victims of violence. A
nation-wide statistical data base, for both the security and justice systems, can help to ensure
follow up, monitoring and evaluation of the care provided, and thereby improve care to the
victims of violence and prevent their re-victimization.
The Report does not specify or detail what is considered special protection in the cases of
women who denounce acts of repeated, systematic and / or recurring violence. It does not
mention whether there are criminal or administrative sanctions for the failure to deliver protective
measures established by court order. In these cases, when there is repetition of gender-based
violence, there should be sanctioning by the court for the lack of compliance with the court order.
What is observed is that monitoring should be improved so that the justice system’s
measures are effective and responsive to the victims’ needs. So it is recommended to determine
judicially, how to deal with the repeated failure to deliver special protection measures, to protect
the lives and integrity of women and their security as citizens.
With regard to institutional comprehensive free advice, limitations exist in the direct and
indirect care system, the prevention and punishment of gender violence, through the entities
empowered to intervene in this issue, which is subsidized through non-governmental
organizations NGOs and private enterprise.
We know the importance decentralizing public services to the municipalities to
modernize the state, but in these cases it is important to assess the quality and control of the
comprehensive advice provided, as the involvement of the state is a priority mentioned among the
fundamental principles of the Convention of Belem do Pará where Article 8 reads: "State parties
agree to introduce, in a progressive manner, specific measures and programs to provide
specialized services appropriate for the necessary care of women subjected to violence through
public or private sector entities, including shelters, family counseling, and, where appropriate,
and care and custody of affected children."
With this coordinated vision, the national entity it is recommended to create a
coordinated care system to further support and help women who are victims of violence, to care
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for their emotional integrity and prevent them from being re-victimized for this lack.
It was also noted that the Judiciary operates a victims center but this is not exclusively for
women victims and survivors of violence. For this reason we propose in this area especially, to
introduce the measures identified in Arts. 7 and 8 of the Convention.
It is also recommended to undertake a comprehensive strategy with the justice system
and the higher education system, consisting of universities, colleges and professional associations
of the legal and social sciences, to train professionals on these issues, as well as with professional
groups, that can help in dialing with these issues, and to set up specialized training programs for
the treatment of aggressors, a very complex task that requires delving into several forms of
socialization derived from hegemonic masculinities and the patriarchal system.
For this reason a plan or a specialized program has been recommended, designed by the
universities or professional associations to approach the issues of care, prevention and protection
for women victims and survivors of violence from a holistic viewpoint. These efforts should
provide adequate care, free from stereotypes and cultural biases. They should help to eliminate
the trend to make invisible this problem, so culturally and socially ingrained in the justice system
and other services such as institutional care operators, ombudsman offices, private and public
security officers and other personnel of the care and protection system who, because of their
social and professional training, do not deal adequately with these issues so that, in the end,
women are hurt and re-victimized.
The central government’s focus prevails as regards women’s access to administrative and
judicial protection, as there is no detailed data at the national, or regional level, in order to
determine whether the services provided by institutional or private media are open or not to all
women, whether they are from urban or rural areas, or nationwide.
Citizen and institutional support networks are a commendable initiative, but they still we
seem to have very limited impact on communities. In this regard, we consider important to create
a mechanism or system of regional and provincial community networks with a focus on rights
and involving state agencies, private companies, municipalities, service clubs and other important
social sectors; and further develop and strengthen networks of the municipalities of Colón and
David, which are mentioned in the report.
There are modules for direct intervention for aggressors who have perpetrated gender
driven acts of violence. However, it is not mentioned whether there are prevention modules to
eradicate this kind of violence among young men. Starting with boys and young men would
improve intervention strategies and make them more effective against discrimination and
violence.
It is important to mention that in addition to the comprehensive analysis of the subject,
officials in charge of responding to violence must also be trained. This should have a positive
impact on the comprehensive care to the victim. Indicators must be in place to enable systematic
training, and its monitoring and evaluation. It is advisable to do so on a regular basis because
many times the legal standard is not applied properly. Academic training of different professions
must include integral training to provide complete care, especially on women's right to effective
access to the justice system, and for the protection of their fundamental human rights, specifically
in terms of their security.
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Another important recommendation is to include systematic supervision on the part of the
authorities legally empowered to address this issue. In this regard, officers in charge of
processing violence will feel supported and consequently improve the care and protection. The
respective entities are encouraged to continue with these institutional efforts.
Also, the respective entities are encouraged to collect information using IT technologies
so statistical reports will facilitate oversight to improve care. The present report does not include
national or provincial data that can allow internal monitoring and evaluating, despite their
importance in protecting the integrity and the lives of women survivors of violence. Such
monitoring and evaluation needs to be properly regulated.
Based on Art. 215 E under Law 38 of 2001, a recommendation is made to request greater
coherence on legal punishment for failure to comply with established labor duties, either because
of breach or mere inefficiency. This is not only in reference to the imposition of administrative
fines, but should be linked to the development of institutional functions, so that the powers
assigned to the officer or employee are deemed mandatory, and also to reflect the importance of
job descriptions of officers and enforcers of the system so they will respond appropriately to
women’s needs. For what is sought out is to review labor regulations of the various entities
responsible and effect change.
We note that this is a breakthrough in Panamanian law, which leads to strengthening
prevention of gender-driven violence. A recommendation is made to allocate a budget to
institutions and programs focusing on gender awareness, human rights and the eradication of
violence, but also on the study of the role of men in gender violence, and studies on masculinities,
reflecting the concern, both academic-scientific and ideological, to build democratic models of
human coexistence. The topics of research and analysis offered by this vast field of study include
the social construction of masculinities, of manliness, of machismo and manhood, affective
fatherhood, its challenges and difficulties, and equitable couple relationships.
NATIONAL PLANS.
PROGRESS, OBSTACLES AND SETBACKS.
GENERAL RECOMMENDATIONS
SPECIFIC CHAPTER RECOMMENDATIONS
PROGRESS.
The involvement of the National Women's Bureau under the Ministry of Social
Development MIDES, and its national commission, is worth underscoring. It raises the level of
management in this area and thus strengthens the rule of Law while recognizing the right of
women to security due to their condition as citizens. A call is made also to the justice system ro
be more actively involved in the investigation and prevention of crime, because of the multiple
causes of gender-driven violence.
The institutional value of implementing the National Plan must be mentioned. Therefore,
the State of Panama is encouraged to enforce nationwide because as mentioned in the report, the
plan has been enforced only regionally and locally so far. Furthermore, in compliance with the
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constitutional principle of formal equality of all persons, the plan must reach all women who are
victims and survivors of violence throughout the country.
It is important to establish deadlines to introduce the systematic mechanisms for
enforcing programs for victims and aggressors, for the purpose of monitoring and evaluation.
This in turn contributes to improving services, actions and strategies, and to improve the public
policies to improve the quality of care to women victims.
OBSTACLES, SETBACKS:
No appropriate institutional structure exists to coordinate provincial and municipal
strategies where alliances must be built that can be coordinated and elevated to a political agenda
for local governments, the justice system and the mechanism for the advancement of women.
The increase in the budgets for these entities would contribute to the strengthening of the strategic
actions of the national action plans in the short, medium and long terms.
GENERAL RECOMMENDATIONS.
It is recommended that there be an institutional structure for a defined national
monitoring mechanism of the Convention of Belem do Pará, to determine State-wide tracking,
monitoring and evaluating the implementation of the Convention at all levels of government from
the Government, Parliament and the justice systems, in relation to judicial decisions or
administrative action with respect to the fundamental human right to live a life free of violence.
SPECIFIC RECOMMENDATIONS.
It is recommended that as soon as possible the evaluation and systematic monitoring of
the plan should be carried out to establish thereafter the administrative procedures to measure
their effectiveness by means of measurable and achievable indicators that will reflect the various
forms of violence against women.
Coordination must be comprehensive and create the necessary tools to assess the real
impact of the implementation of the Convention regarding the rules in force and implementation
of a public policy in this area.
III. NATIONAL BUDGET.
PROGRESS.
The specific work of the Parliamentary Committee is valuable because when it analyzes its
legislative management with regard to violence against women, the Committee is the main
transversal ink to assess the focus on rights of women without disregard for the impact generated
by the autonomy of these rights.
Thus, it strengthens the group of women parliamentarians through their initiatives and
national and regional agendas, and women's political forums, in order to share best practices and
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develop a fluid legislative communication system. This allows them to establish a regional
agenda to legislate with a human rights approach on issues relating to the eradication of all forms
of violence against women, and gender-based violence.
Commendable efforts noted in the report include a campaign targeting the general
population called STOP DOMESTIC VIOLENCE NOW.
OBSTACLES, SETBACKS:
With regard to the Parliamentary agenda, it becomes necessary to institutionally
strengthen this important Parliamentary Committee, because the gender integrated-transversal
approach is not applied in Parliament’ other committees.
No institutional plan is in place for the systematic training of parliamentarians. The
existence of a Legislative Committee does not in itself mean comprehensive compliance with
international commitments will be enforced regarding the rights of women when drawing up laws
and legislative reforms. In this regard, support to this Parliamentary Committee is very important
because of its high level political agenda.
GENERAL RECOMMENDATIONS.
In support of this Committee, it is recommended that through the internal organization of
Parliament, political agreements can be created to achieve the necessary consensus to adopt
national legislation to protect women's rights and eradicate gender violence, through the
implementation of protocols to support internal understanding and adoption of comprehensive
regulations required in terms of care, prevention, protection and punishment of violence and
discrimination against women.
It is recommended that parliamentarians and parliament itself establish a Legislative
Gender Equity protocol that enhances the human rights of women, gender equity and inclusive
approach to the rights of families, women, children, adolescents, senior citizens and adult persons
with disabilities.
SPECIFIC RECOMMENDATIONS
As mentioned earlier with regard to the implementation of training sessions, seminars and
workshops, to achieve the necessary impact of these events it is important to measure the system
and evaluate strategic change among officials, which means these initiatives should become
permanent components of their institutions, and that trained officials should also become
facilitators together with other officials and violence-related care givers. In this sense the
preparation of manuals for law enforcement to address the theme of violence against women
strengthens the methodology of these workshops driving the process of unifying standards for the
care and protection for women, in an appropriate manner. This dynamic of skill building will
improve the quality and scope of care, and reduce the operator's discretion in the protection
system created to mediate and care for the immediate needs of women.
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In this dynamic, it is recommended, based on good practices and experiences involving
officials and other workers responsible for the response, protection, prevention and punishment in
cases of violence toward women, to discuss and coordinate communication and responsibility
actions and strategies with those who deal with the protection of women to adopt a protection and
human rights approach that relates to democratic governance. It is also recommended to
implement a forum for exchanges of social experience (community, families, municipalities) to
strengthen institutional networks already in place and to regard the prevention of violence from a
gender perspective as an achievable goal, which will strengthen inter-sector links.
We must ensure that telephone hotlines are connected to the general system of public
safety emergencies nationwide, both in urban and in rural areas, to care for the immediate safety
for women who report to or warn the system.
A public shelter known as New Life Shelter accepts battered women and their families in Panama
City and addresses the needs of women. These shelters must be made available to women
throughout the nation to protect them from the cycle and impact of violence.
It is recommended to have self-help groups for women to interact with the NGOs, as well
as with the bodies empowered to respond, based on the need for the State to raise the level of
care, and protection from this scourge, because government bodies have been able to generate
significant changes in care and protection, which gives them the financial, technical and
infrastructure resources and higher technology needed that not all NGOs have the financial to
address this scourge. A call is made for creating these self-help groups within both the judiciary
sector and the health system at the national level in a decentralized manner, pursuant to Art. 8 of
the Convention.
There is a need to strengthen free of charge national family counseling services. As
noted in the report the existing services and programs are limited to urban sectors. The
government service is run only by the Social Security, which means that the most disadvantaged
women and those living in extreme poverty and their families have less chances of getting help.
In this regard, there are valuable legislative experiences elsewhere in the region where these
services are attached to the Family Courts. There are plans to expand and improve this service
through the Judges of the Peace, the Attorney General and the Mechanisms for the Advancement
of Women.
State agencies are recommended to expand their social services to support women
survivors of violence, expand coverage of the various government bodies, setting up a
coordinating structure for a comprehensive protection system, to ensure no women are revictimized and to care for aggressive people, in coordination with the executive, justice sector,
municipalities, community-local networks, private enterprise and other social actors.
The report mentions the National Plan Against Domestic Violence and for Policies of
Peaceful Coexistence includes some actions to fight poverty and reduce violence. However, for
our specific purposes we propose that sustainable strategies for the development of women and
men should be designed. It is therefore advisable to increase the state’s social budget, but also the
national budget should see to the specific needs of both sexes through institutional strengthening
and local development.
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INFORMATION AND STATISTICS.
PROGRESS, OBSTACLES, SETBACKS: RECOMMENDATIONS
SPECIFIC RECOMMENDATIONS.
PROGRESS
Strategies to strengthen this area are commendable, for example; Despite limited
resources, investment in the year 2005 was satisfactory, and reached 40% of the total budget,
mainly addressed to the care, prevention of violence against women, children, adolescents and
youth, thus revealing outstanding government institutional practice by the State of Panama.
OBSTACLES.
The budget for the strengthening of the National Plan on Violence against Women is a
hundred thousand dollars, or only 0.76% of GDP. This data evidences the need to increase
funding under this heading. Advocacy with the executive branch, which develops public policy,
and Parliament, which approves the budget, is recommended so as to increase the funding for
such plans and programs.
STATISTICAL INFORMATION.
Data from the entities such as the police and judicial officials are dispersed. There were
1349 women’s complaints, while courts reported 7435 cases of which 5699 were acquitted. This
data reflects the decline in complaints or notices to the police and an increased burden of judicial
complaints. The data about acquittals pose a complex problem. Nor is there follow up on cases of
recidivism.
There is also data on arrests in 2004 which totaled 2878 but this data does not specify the
types of crimes. The report mentions 11562 trials for domestic violence and with only 829
sentences passed, reflecting issues in sustaining evidence or with parameters or normative criteria
used, which fail to classify gender-based violence as a serious crime. Thus, this practice is seen
in the light of legal androcentric accepted approaches, still ingrained in discriminatory and social
customs and practices. This same institutional setup is however intended to give adequate
protection to women, but the figures of police personnel that handle these cases is not provided,
because such care is generally for all crimes.
2.
There is a high percentage of complaints via telephone, which are not served by the
justice system (police, judicial) totaling 154855. Previous data did not reflect these cases
were being taken care of through protective measures. Underreporting is a serious issue
because only data from the institutional and administrative system is analyzed but not that
from the police or judicial protection system.
2.2.
The number of complaints above does reflect the need for more shelters
nationwide as has been recommended.
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2.3.
Also there is a high percentage of cases of violence against women and child
abuse in hospitals (2476), which represents 78.9% of the total. Care for these
cases are not coordinated with other relevant for which reason it seems advisable
to set up a comprehensive system of care complaints through computer networks
and protocols of care to be used by all the entities to overcome the problem of
underreporting.
With regard to femicides (171), data identified in the report did not accurately reflect how
many cases of complaints have ended in murders, nor brought convictions for female murderers;
likewise recommended is the creation of an adequate system of integrated records to have reliable
data to help us properly investigate the issue.
GENERAL RECOMENDATIONS.
A recommendation is made to specifically promote preparing indicators for a system to
monitor and assess the protection and empowerment of women victims and survivors of violence
using electronic technology, currengly not available as mentioned by the report, and that would
serve to systematize and correct deficiencies in the care and give greater protection to women
victims.
A multiple focus approach to public security underscores the need of a system to monitor
the protective measures for citizens and women in particular as well as for violations by
aggressors.
A recommendation is made to create, develop, and implement a policy that would
prevent crime by adopting cross cutting gender strategies and actions in a new approach to
criminal investigation. The rise of femicides requires innovative proposals, such as public safety
of women from a multi-cause approach, a comprehensive approach including the justice system,
criminal investigation and a system for comprehensive protection for women victims of violence,
with a focus on gender.
SPECIFIC RECOMMENDATIONS
It is recommended to develop a system of indicators to determine the actual annual
investment needs for police protection for women, to strengthen care initiatives, as they are
currently not unique to the theme of women violence but address crimes in general; an invitation
is made to create an inter-agency structure that will be strengthened through effective
coordination, a reasonable budget that provides protection starting with the initial warning and
complaint through compliance with various measures and court rulings.
It is proposed as in the preceding item to create strategic alliances and increase financial
and technical resources to strengthen institutions and expand budgets to expand still limited
national coverage of the urban and rural hotlines, involving agreements with telephone companies
to provide free services. These contributions may be encouraged by providing tax incentives.
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Another suggestion concerns setting up provincial or regional shelters nationwide to
address the issue of women not filing complaints for lack of means and ways to get protection
from aggressors.
It is recommended to increase funding for programs to rehabilitate victims, presently
available in only two provinces as pilot schemes. This should be a national service available in
the women’s own towns.
Funding to both entities of the state and the municipalities should be increased to gather
reliable statistics, research and systematization of updated data as tools against the scourge of
women’s violence.
Paragraphs 2 and 4 of the report, including sections 2.1,2.2,3.1 and 4, reflect the need for
increased financial resources for all activities above.
A cross cutting approach to statistics gathering and use is recommended as it would allow
mainstreaming the gender perspective.
With respect to item 4, regarding the status of women, the 2000 census does not include
questions about violence based on gender. Panama has more men than women (51% 49%).
Census data points to a growing migration of women from rural areas to urban areas, as
well as the complex and difficult task of overcoming gender gaps to overcome poverty and create
access to development.
With regard to training programs for prevention, punishment and eradication, it was noted
that there is no comprehensive system that provides consistent feedback at all levels, and it was
noted, for example, that only a small number of teachers (413) from all levels of education are
being trained about the justice system by the Judicial School of Panama. No breakdown of these
figures is available.
It is recommended to set up a Local (decentralized) Citizen Observatories at
municipalities with the assistance of the Human Rights Prosecutor, or another appropriate agency,
in compliance with national legislation. An agency is needed to monitor the state´s activities
regarding the human rights of women, the initiatives of public and private bodies, and the
strategies for the prevention, care, protection, punishment and eradication of the various forms of
gender-driven violence.
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OBSERVATIONS BY THE COMPETENT NATIONAL AUTHORITY (CNA)
Regarding the Preliminary Report on the Follow-up Mechanism for the Implementation of
the Provisions of the inter-American Convention to Prevent, Punish and Eradicate Violence against
Women, the National Women’s Bureau of the Ministry of Social Development considers relevant to
make the following comments:
In subsection I, Progress, it says that Law Nº 38 of July 2001 “… provides better legal
protection to women as victims of any form of gender-based violence”. The truth is that Law Nº 38
(2001) does not use the term gender-based violence. Because these reports must strictly reflect the
reality of the analyzed countries, we reiterate that Law Nº 38 is restricted to the protection of
domestic violence victims and boys, girls and adolescents who are victims of abuse, but not victims
of gender-based violence.
Also, in subsection I, Obstacles, it says:
“It should be further noted that with respect to criminal penalties to the
aggressor for threats or harassment against the victim’s personal safety,
included in Articles 215 and 220 of the Criminal Code, the penalty is
limited to imprisonment of 1 to 3 years for crimes of domestic violence
and sexual harassment, without providing any kind of legal mechanisms
to monitor the effectiveness of these sanctions by the justice
administrators, since criminal laws require complementary penitentiary
laws to provide adequate rehabilitative programs for offenders and
protection to the victims.”
In this sense, we consider important to clarify that Law Nº 38 (2001) includes not only the
classification of criminal offences regarding domestic violence, but also includes a number of articles
that outline the framework of the State’s policies regarding domestic violence. Article 13 of such law
reads:
Article 13. Chapter V of Title V of the Criminal Code reads:
Chapter V. Domestic Violence and Abuse of Boys, Girls and Adolescents.
Article 215 A. Any person who physically, sexually, patrimonially or sociologically
attacks or harasses someone else shall be punished with imprisonment of 1 to 3 years
or with a remedial security measure consisting of a multidisciplinary therapeutic
treatment program with specialized care service and approved by the appropriate
court.
From the preceding article, it can be concluded that the penalty established for domestic
violence, in its simple form, contemplates the application of a remedial measure with a
multidisciplinary approach.
Likewise, Article 13 includes the following article into the Criminal Code:
Article 215 C.
In the case of primary assailants, the judge shall punish them with the application of a
remedial security measure through a multidisciplinary therapeutic treatment program, in
- 44 -
accordance with Article 115 of the Criminal Code, which shall be duly supervised by the
Department of Correction of the Ministry of Government and Justice, or with community
service supervised by the competent authority within the corresponding jurisdiction.
If the remedial security measure or the community service is not completed, the judge
may replace them with the corresponding imprisonment term.
In this way, we insist that, regarding domestic violence, imprisonment is not the only
response from the State.
The report also points out:
“We know how complex the rehabilitation of aggressors can be. If the
aggressors do not count with comprehensive programs including evaluation and
follow-up, criminal sanctions will hardly be effective. Additionally, since these
sentences are usually considered to be minor by the criminal legislation as they
range from 1 to 3 years, aggressor may be released from prison…”
In this point, it is worth mentioning that, even though imprisonment can replaced with
remedial security measures as a procedural benefit in cases of domestic violence regarded as
“simple”, the truth is that the forms of domestic violence established in article 215 B of the Criminal
Code, ad amended by Law Nº 38 of 2001, do not reach such benefit.
The report reads:
“… there is the need for a comprehensive review of existing laws and
regulations to prevent, address, punish and eradicate gender-based
violence, not only within the family but also in the public environment in
general. Since criminal legislation by itself does not guarantee the
eradication of this scourge, unless it is accompanied by regulations
aimed at creating a specialized care system for women who are victims
of this scourge together with public policies and national plans for its
prevention, control and eradication, a recommendation is made to create
and adopt special laws on the issue.
The National Women's Bureau of the Ministry of Social Development reiterates its position
regarding Law Nº 38 of 2001, saying that instead of being a legislation that only categorizes domestic
violence as a crime, it also includes appropriate measures of state public policy against this type of
violence, as pointed out by articles 20 to 31 of said legislation under the title “Public Policies”.
Likewise, we reiterate the existence of the National Plan against Domestic Violence and
for Policies of Citizen Coexistence. The plan’s goal is to “be a guide for key actors of the
Panamanian society so as to decrease domestic violence and its bio-psychosocial, economic, judicial,
legal and spiritual consequences as well as promoting and strengthening policies and actions of
citizen coexistence” based on a group of ethical principles supported by national and international
regulations and employing an ecological model as its design conceptual tool.
Its design includes the participation and identification of key actors such as governmental
organizations, non-governmental organizations, private entities, academic institutions, the media,
community organizations, affected population and international organizations.
- 45 -
It has five components: Promotion component, prevention component, detection component, care
component and rehabilitation component.
Each component include actions that deal with six elements: 1) Attention to social issues; 2)
Training; 3) Research; 4) Network organization; 5) Social and community participation; and 6)
Funding.
The expert’s report in Section “Specific Recommendations” regarding Chapter I read as
follows:
“We should recommend the establishment of a comprehensive special regulation
system having control of the application of special laws through the creation of
PROTOCOLS OF SPECIAL LAW ENFORCEMENT and A MECHANISM
OF LAW INDICATORS, as well as the development of prevention, care and
protection (decentralized) local policies developed by municipalities and civil
society.”
We deem necessary to clarify that the Ministry of Social Development together with the
Mixed Funds for Hispano Panamanian Cooperation has participated in the design and reproduction of
30.000 copies of “Decálogo de bolsillo de actuación policial con víctimas de violencia de género”
(A Pocket Guide to Police Response Regarding Gender-based Violence Victims) and 5.000
copies of “Manual de Procedimientos Policiales en materia de violencia de género, violencia
doméstica y maltrato al niño, niña y adolescentes”(Police Operations in Case of Gender-based
Violence, Domestic Violence and Child and Adolescent Abuse) and “Manual de Consulta
Jurídica en materia de violencia de género, doméstica y maltrato al niño, niña y adolescente”
(Legal Reference Manual in Gender-based Violence, Domestic Violence and Child and
Adolescent Abuse Matters).
Therefore, the Republic of Panama has three inputs of exponential value regarding this
subject:



A pocket guide to police response regarding gender-based violence victims
A legal reference manual in gender-based violence, domestic violence and child and
adolescent abuse matters; and
Best practices guide to the care of gender-based violence victims by justice operators
Likewise, we must point out that the Judiciary, with the support of the Gender and Justice
Fund, UNFPA-UNIFEM and MIDES, prepared a Protocol for the Application of the Law
against Domestic Violence.
Regarding the need for creating law mechanism indicators, the National Women’s Bureau
informs that the Panama gender-indicator system (SIEGPA), which constitutes a database that offers
various indicators showing the demographic, social, economic and political situation of women in
Panama in relation to men, has been reactivated with gender-based violence as one of topics.
The information is accessible through the Comptroller General of the Republic of Panama’s
website: www.contraloria.gob.pa.
- 46 -
In the expert’s report it is required the creation and execution of actions at a local level
through municipalities and civil society.
In this regard we must point out that the National Women’s Bureau has executed the Project
for the Prevention and Care Domestic Violence in the districts of Soná and San Miguelito. Such
program, specifically designed for the creation of the Local Plans against Intra-family Violence
Project, started in October 2002 and ended in November 2004. The by-then Ministry of Youth,
Women, Children and Family, through the National Women’s Bureau (DINAMU), together with the
San Miguelito and Soná Municipalities were responsible for its execution.
From July to December 2003, UNFPA supported this process by hiring a consultant in IntraFamily Violence, mainly to support the “Intra-Family Violence Costs, Magnitude and Risk Factors”
research. Likewise, an “Inventory of Institutional and Community Resources” was prepared within
the Local Plan framework.
The goal of the project was:




To strengthen management and technical capacities of pilot communities for the
design and implementation of local plans for intra-family violence prevention;
To design and execute a valid model of intervention for intra-family violence at local
level so as to be used as input for preparing a National Plan in order to strengthen
management and technical capacities of pilot communities;
To design and implement local plans for intra-families violence prevention;
To develop a valid model of intra-family violence intervention at local level and that,
at the same time, it can be used as input into the preparation of a National Plan
against Intra-Family Violence and Policies of Citizen Coexistence.
At the end of the Program we found the following results:






Studies of Intra-Family Violence Costs, Magnitude and Risk Factors in each pilot
community;
Study of Institutional Resources at local level in each pilot community;
Designed Local Plans for Intra-Family Violence Prevention ;
Training Plan for the Local Plan Implementation in each pilot community;
Execution of the Training Plan in each pilot community;
Diffusion and awareness of adopted measures in Local Plans for Prevention and
Care against Intra-family Violence.
MIDES, through the National Women’s Bureau and with the support of the Inter-American
Development Bank, carried out a consultancy so as to start the Execution Process of the
Organizational Structure for the Implementation of Local Plans. This process caused the
preparation of the 2005 Year Operation Plan Design for Prevention and Care against Intrafamily Violence in the Soná District. The proposal of the 2005 Year Operation Plan was presented
during the Seminar organized by DINAMU in collaboration with the Soná Municipality and the
Veraguas Province Regional Municipality to define the Operative Structures of the Local Plan
Execution Network.
- 47 -
In September 2006, the MIDES National Women’s Bureau requested the UNFPA’s approval
for the Project “Public Policies for the Prevention and Care of Gender-based Violence in the
Republic of Panama”. The project’s goal is implementing a pilot model of comprehensive attention
of the domestic violence issue in the Soná District. The project contributed to the equipment,
enabling and conformation of an interdisciplinary team for comprehensive care of surviving victims.
Later, MIDES granted a subsidy in order to strengthen the actions of the comprehensive
model for the promotion, prevention and care against domestic violence in the Soná district. Such
subsidy took place from September 2005 until March 2006 for the sum of B/.10,000.00.
Subsequently, an extension was granted from April 2006 to December 2006 for the sum of B/.
24,000.00. Nowadays the center is an institution that provides support and psychosocial and legal
guidance. It channels surviving victims to the places in charge of receiving reports or providing
physical and psychological care (health centers and hospitals), where the cases are coordinated and
monitored through inter-institutional service coordination; it also gives information on children and
adolescents’ rights.
Due to the success in implementing the execution process of the organizational structure for
local plans against domestic violence, the Republic of Panama has nowadays Local Networks
against Domestic Violence in the following local governments:








San Miguelito District, Province of Panama;
Chepo District, Province of Panama;
Arraiján District, Province of Panama;
Colón District, Province of Colón;
Las Tablas District, Province of Los Santos;
Las Minas; Province of Herrera;
La Chorrera, Province of Panama,
Soná, Province of Veraguas.
Regarding sexual harassment in the workplace, the preliminary report reads:
“... because Law 4 of January 29, 1999, which establishes equal
opportunities for women, in article 8, paragraph 10, includes the only
reference to the crime of sexual harassment, leaving its only punishment
for criminal laws.”
We must point out that sexual harassment was incorporated into the Panamanian legislation
as a crime under Law Nº 38 of 2001, specifically in article 15.
On the other hand the report reads:
“... it must not only comprise the outlaw of sexual harassment, but
include proper and comprehensive regulations for workplaces, schools
and society at large. This, however, is not found in the existing Labor
Code of the Republic of Panama. No specific measures have been taken
to overcome this problem. This situation is derived from discrimination
and gender-based violence simultaneously suffered by women in the
public sector, where their citizen security is still at its infancy, making
them very vulnerable. National legislation does not address the issues of
- 48 -
prevention, care, protection and appropriate punishment in the
work/administrative, procedural and criminal areas.
In this regard it is necessary to mention that the Labor Code of the Republic of Panama
includes several articles that make reference to sexual harassment:
Article 127: Workers are prohibited from:
12.
Performing sexual harassment acts.
Article 213: Justified causes for an employer terminating an employment relation:
15.
Sexual harassment, immoral or criminal behavior by the worker during the
provision of services.
Article 138: Employers are prohibited from:
15.
Performing sexual harassment acts.
Article 139: Infringement of the provisions under this chapter shall be punished with
fines from 25 to 250 balboas, imposed by the competent authority.
From the abovementioned articles it can be concluded that the legal response of the Republic
of Panama is far from being only criminal as the treatment of this type of conducts is included in the
labor legislation, making it clear that such actions are not only punished in the Criminal Code, but
also with suspension of work contracts and pecuniary fines for workers and employers who perform
them.
In the section Access to Justice, regarding obstacles, the expert's report reads:
“In this sense, it is important to accompany it with a re-education system
for addressing masculinity and its ways of relating to other people
through elimination of discrimination, violence and self-imposed
parameters, thus restoring the fabric of society and family through
programs of masculinity, where a different form of treatment is built,
both as a preventive and protective tool that will help since increasing
attention is being given to the problem of men and the difficulty of
dealing with violence of gender.”
We reiterate the existence of the National Plan against Domestic Violence and for Policies of
Citizen Coexistence. The plan starts from a group of ethical principles supported by national and
international regulations. The main principles of the National Plan are: a) Being based on human
rights of domestic violence victims; b) Practicing universal ethic and moral values; c) Promoting
equality; and, d) Promoting quality care and comprehensive and sustainable efforts.
On the other hand, such plan aims at:
“Being a guide for the Panamanian society key actors so as to decrease
domestic violence and its biopsychosocial, economic, legal and spiritual
consequences as well as the promotion and strengthening of policies and
actions for citizen coexistence”.
- 49 -
The National Plan against Domestic Violence is a national public policy instrument against
domestic violence that recognizes the need of dealing with domestic violence with a
multidisciplinary and interdisciplinary approach, and with joint actions of prevention and care,
reiterating the need of structural changes. Accordingly its justification points out that:
“Domestic violence goes beyond violent behavior, it implies a system of
learned values, believes, attitudes and conducts that are transmitted from
generation to generation. That is why measures should strive to be wide
and with long-term effects as a way to ensure a permanent impact that
will produce changes in family and social group’s behavior.“
The report continues making reference to the need of making and executing comprehensive
public policies regarding violence against women.
In this sense, the report reads:
“The ideas, images and regulations to which men are exposed since they
are born play a crucial role in the way their behavior is shaped.”
The national legislation has the same concern. Therefore, in Law Nº 38 of 2001 on domestic
violence and child and adolescent abuse, it establishes the following:
Article 23. The Ministry of Government and Justice together with Ministry of
Youth, Women, Childhood and Family [currently MIDES] will coordinate,
promote, develop and monitor promotion programs through the media so as to
prevent and eradicate violence. They will also promote and encourage programs
for the dissemination of this Law.
Besides the abovementioned laws, Law No. 4 (1999) on equal opportunity for women reads:
Article 18. The image of women projected by the media seems to be stereotyped
and there are few that represent their condition and social role. Therefore,
women’s traditional image is transmitted showing discriminatory behaviors
between both sexes that do not reflect women’s reality or social participation
and put in jeopardy their individual and collective aspirations. Broadcasting
and incorporating a dignified image of women in the media could represent an
advance in getting over traditional stereotypes and contributing to public opinion
awareness regarding the need for adapting behavior and social structure to the
transformation of women’s role in society.
Article 19. The State’s public policy aimed at promoting a dignified social
image of women in the media will be implemented by the following actions:
1.
Investigating the types of messages, content and values in the media
regarding women and disseminating the results.
- 50 -
2.
Building up campaigns through the media that analyze the most relevant
problems of women.
3.
Raising awareness among the executives, technicians and professional
unions in the media so as to create enough spaces for promoting a
respectful image of women.
4.
Encouraging the advertisement market to project images with contents of
equality between professional women, house wives, students and of their
participation in political, cultural and social life.
5.
Training social communicators in a gender perspective.
6.
Developing research on the situation of professional women working in
the media.
7.
Systematically releasing, through the media, achievements of women in
the different fields of their daily living.
8.
Avoiding stereotyped models, scripts, advertisement and images that
imply women or men’s superiority or inferiority in programs.
9.
Encouraging women's point of view and increasing their participation in
programs where social issues are analyzed or discussed.
10.
Stimulating the creation of alternative mass media such as radio shows,
TV programs, magazines, bulletins and local and student newspapers
that focus on women’s development.
11.
Providing guidance to the Press Department in order to implement legal
regulations on the media and women’s social situation.
Section “Specific recommendations” regarding Access to Justice reads:
The Report does not address how witnesses of acts of direct or indirect
violence can alert the police to interrupt the cycle of violence. The
regulations in this regard should be reviewed so that alerts can be sent
before a report is filed and thereby immediately stopping aggression.
In this regard, it is worth mentioning that article 13 of Law Nº 38 of 2001 establishes
sanctions for male and female officials and individuals who do not report domestic violence,
harassment and abuse of minors:
Article 215 E. Any official or individual who is aware of any of the facts
described under this Title and do not report them to the authorities shall be
punished with a fine of 50 to 150 days. In case that the crime is not proved, the
official or individual shall be exempted from any legal responsibility due to the
report.
- 51 -
Likewise, the expert indicates that there are limitations on the subject of comprehensive
gratuitous institutional consultancy, quoted as stating:”… this situation is subsidized by nongovernmental organizations and the private sector.”
The Ministry of Social Development has taken care of 454 women for physical violence,
484 for psychological violence and 74 for sexual violence in the Center for Guidance and
Comprehensive Care gratuitously from January to October 2007, which totals 1012 women treated
for different types of violence. The Center for Guidance offers legal, psychological and social
services gratuitously.
Likewise, “147” phone line gives legal, psychological and social services to whoever needs
it, anonymously.
On the other hand, the Ministry of Social Development manages the shelter Nueva Vida for
victims of domestic violence. This center offers accommodations, food, legal, psychological and
social services gratuitously to women who are victims of domestic violence and their children under
12 years old. From January to October 2007, a total of 46 women, 41 girls and 34 boys were
admitted.
-1I.
I.
PROGRESS,
Legislation.
OBSTACLES
Existing
Regulations.
AND
SETBACKS
National
Plans.
The basis of the specialized technical analysis on the issues of violence against women or violence
based on gender, in the private as in the public sectors, has been analyzed as shown in this report, in
the context of the implementation of the policy parameters of the Inter-American Convention on the
Prevention, Punishment and Eradication of Violence Against Women, the Convention of Belem do
Pará, in general and specifically with regard to the Articles 1, 2, 3, 4, 5, 6, 7, 8, 9,10,11,12 there
under, which are part of and enshrined in the national legal system of the State of the Republic of
Panama, because it has ratified this important regional treaty of the inter-American system, and
because Panama also has special national legislation in this regard.
The State of Panama by ratifying the mentioned Convention adapted its national legislation
through the adoption of the Law Number 27 in June 1995, which categorized domestic
violence and abuse of minors as crimes, and therefore, organized the establishment of
specialized units to care for the victims of these crimes. Also, several provisions were
reformed and added to the Panamanian Penal and Judicial Code.
PROGRESS.
The range of fundamental rights covered by the Convention of Belém do Pará creates the
need to monitor the actions of State Parties through the MESECVI follow-up mechanism, and
conduct a comprehensive review of existing national rules and their effectiveness, with the aim
of achieving effective and complete integration of special regulations already in force with
other branches of national laws already in place, such as Criminal and Procedural,
Administrative, Civil and Family Law.
Optional protocol of the Convention on the Elimination of all the Forms of Discrimination
In this sense, Panamanian law, in reference to the subject mentioned, has evolved positively by
introducing complementary regulations that both support national legislation and adapt it to the
Convention of Belem do Pará, and its principles and purposes. These regulations include Law no. 4
"Equal Opportunities for Women", from 1999; Law Nº 17 from March 28, 2001, that approved the
Optional Protocol of the Convention on the “Elimination of all forms of discrimination against
women”; Law No. 38 of July 10, 2001, which amends and expands the Criminal and Judicial
Codes’ articles regarding domestic violence and child and adolescents abuse, and repeals certain
articles of Law no. 27 1995 to provide better legal protection to women as victims of any form of
gender-based violence.
Reforms and / or legislative changes included in Law 38 from 2001 have also been reforms and
additions to the Articles of the Criminal and Judicial Code that address domestic violence and abuse
toward children and adolescents, which in turn repeals articles of the Act 27, 1995 and enacts other
provisions.
In this sense, the analysis of the answers provided by the National Authority in regards to the Base
Questionnaire sent to the representatives of MESECVI and the additional information that has been
reviewed reveal that the scourge of domestic violence has been regulated in a most appropriate
-2manner through the reform of 2001, but only in relation to the women as family members though
not as rights bearers, as required by the Convention of Belém Do Pará from the State parties. These
are asked to enforce the principles of the Convention and perform their corresponding state duties.
We have come to know both through the national statistics, as well as the shadow reports from
NGOs on human rights and women's organizations, that women in the national and regional context
are the most serious victims of gender-based violence, both in the public and private sectors. This
is the subject of our review of the legal and regulatory aspects.
It should be underscored that the reform under review is drafted using non-sexist language and
introduced the term domestic violence (previously called intra-family violence), substituting the
term abuse of boys, girls and adolescents for the term child abuse, in line with the regulatory
requirements of the Convention on Children’s Rights.
The lack of definitions in general and especially regarding the concept of intra-family violence
(now called domestic violence) is corrected. It is noted that the terms are defined to provide greater
clarity so the regulations can be better interpreted and enforced.
Reforms define who is an aggressor (male or female) and terms such as cohabitation; abuse;
protective measures; couple relationships; surviving victim; domestic violence and its various
manifestations, i.e. physical, patrimonial (property), sexual and psychological.
Law 38, the most important part of this reform, creates the regulatory structure that establishes
protective measures, which can be used regardless of whether they were starting or continuing any
judicial process, whether civil, criminal, family or administrative.
OBSTACLES
AND
SETBACKS
OBSTACLES
This regulatory legislation, however, still fails to provide the systemic type of legislation which can
be achieved through a special law. It merely introduces criminal legislation and other rules of a
general nature that do not belong to the specific area of enforcement of the primary principle cited
at the Convention, based on Articles. 3 and 4, which state: "Every woman has the right to a life free
from violence, both in the public and private sectors."
In addition, "every woman has the right to the acknowledgement, enjoyment, exercise and
protection of all human rights and freedoms enshrined in regional and international instruments on
human rights. These rights include, among others, the right of respect to life, the right of respect for
their physical, psychological and moral integrity, the right to freedom and personal security, the
right not to be subjected to torture; the right to respect their inherent personal dignity and to the
protection of their family, the right to equal protection before the law and by the law, the right to a
simple and fast decision before competent courts, so as to be protected against acts that violate their
rights, the right to freedom of association, the right to freedom to exercise their religion and beliefs
within the law, the right to equal access to public services of their country and to participate in
public affairs, including decision-making."
It should be further noted that with respect to criminal sanctions to the aggressor for threats or
harassment to the integrity of the victim, included in Articles 215 and 220 of the Criminal Code, the
sanction is limited to terms of 1 to 3 years in prison for crimes of domestic violence and sexual
-3harassment, without providing any kind of legal mechanisms to monitor the effectiveness of these
sanctions, by the justice administrators, since penal/criminal law. Criminal laws require
complementary penitentiary law to provide adequate rehabilitative programs for offenders and
protection to the victims.
We know how complex the rehabilitation of aggressors can be. If the aggressors do not count with
complete programs including evaluation and follow up, criminal sanctions will hardly be effective.
In addition, usually these sentences are considered minor or negligible by penal/criminal legislation,
and range from 1 to 3 years that may be served outside of jail. They may also be subject to
conciliation, which is not the most appropriate procedure to be followed in cases of private or
domestic violence against women.
In addressing the analysis of criminal sanctions, which have been the basis for the reforms
introduced since the ratification of the Convention, we see that both the legislator and the judicial
official who enforces the rules considers these crimes as less important, pointing to the remaining
regulatory barriers and inadequate legal measures to deal with the social issues at hand.
This regulatory context signals therefore a reversal for and an obstacle to the implementation of the
Treaty, as it is clear that the crimes against property or connected to other social crimes carry
greater punishment and protection to their victims.
We see that various reforms and adaptations of the criminal code are required by the Convention of
Belem do Pará to address the reduced importance afforded by existing regulations to serious
offences and crimes in this realm. The failure of existing measures, strategies and public policies to
prevent and punish the crime of violence against women reveals the need for a comprehensive
review of existing laws and regulations to prevent, address, punish and eradicate gender violence,
not only at the domestic level but also in the public environment, generally.
Since criminal law, by itself, does not guarantee the eradication of this scourge, unless it is
accompanied by legislation to create a specialized care system for women victims of this scourge
together with public policies and plans for its prevention, control and eradication, a
recommendation is made to create and adopt special laws on the issue.
This is the intent of the comments made here about the legal and judicial issues addresses in the
report, as with Article 7 of the Convention of Belém do Pará, called the DUTIES OF STATES. The
integral nature of the legislative, executive and judicial measures is essential to prevent and address
violence against women, and to provide the protection they need along their life stages when they
may be subject to violence.
We know that gender-based violence exceeds general regulatory structures, so comprehensive
mechanisms are required connecting sectors and institutions based on the parameters and guidelines
provided by the Convention.
We must therefore create a structure to provide comprehensive protection to women in the private
and public spheres to strengthen national legislation not only within the family but also in society at
large.
GENERAL
SPECIFIC
CHAPTER I:
RECOMMENDATIONS.
RECOMMENDATIONS.
-4The approach to human rights and a gender perspective must be enforced by the State through the
monitoring of national legislation and public policies, plans and programs for prevention, care and
protection in the various areas responsible for the implementation of the Convention of Belém do
Pará, as well as existing and binding national laws to create a functional structure, not only for the
implementation of protective measures, but also for the other actions that should lead to the
complete systematic monitoring of cases.
If we start with the current legislation only addressing domestic violence, through criminal law in a
general context, we can establish that this legal mechanism, judicial and other defined actions and
strategies are not an adequate and optimal intervention by the State to address the social problems
under review.
Art. 7 paragraph c)reads as follows: " (States shall)include in their domestic legislation criminal
and other regulations as well as other properties that may be necessary to prevent, to punish and
eradicate violence against women and to adopt appropriate administrative measures as necessary";
g) Establish the judicial and administrative mechanisms to ensure that women subjected to violence
have effective access to restitution, reparations for damage or other means of fair and effective
compensation" and,
h) Adopt legislation or other measures as may be necessary to provide effectiveness to this
Convention. "
Priorities must be set for the care and protection of women victims, as rights bearers both within
the family, and in the public social context, as provided by the Convention in Article 6 "The right
of every woman to a life free of violence which includes, among others:
a) Women’s right to be free from all forms of discrimination, and
b) Women’s right to be valued and educated free of stereotyped behavior patterns and social and
cultural practices based on concepts of inferiority or subordination. "
To overcome re-victimizing of women victims, they should be provided legal protection by
strengthening legal systems. These systems still lack the integrated support stemming from
comprehensive public policies or the preventive attention from local to national entities. Likewise,
the administrative laws and comprehensive care programs to develop preventive and protective laws
catering to women’s public safety must be reinforced, with an emphasis on a comprehensive
security policy to develop a cross-cutting approach to gender issues with a focus on basic human
rights.
In this article we should recommend the establishment of a comprehensive regulatory special
system, which has control of the application of special laws through the creation of PROTOCOLS
OF SPECIAL LAW ENFORCEMENT and A MECHANISM OF LAW INDICATORS, as well as
the development of policies for prevention, care and protection (decentralized)premises, which are
developed by municipalities and civil society.
We must understand that the cycle of violence oftentimes unfortunately overflows all the proposed
and established regulations, from the domestic legislation to the implementation and application of
special support regulations in the justice system.
We must overcome the inadequate interpretation and vision of the Convention from a purely
domestic-family focus on gender-based violence enshrined in local laws.
-5-
This viewpoint has hampered assertive actions and strategies of prevention, protection, care,
punishment and eradication relating to violence, from a medium and long term standpoint. We still
have a limited approach to women’s rights and we have not adequately invested in any actions by
the state to minimize the impact of systematic discrimination. This affects women at different stages
of their lives, due to entrenched cultural and social prejudices and stereotypes. It prevents their
overcoming the lack of knowledge of their rights and hampers their access to system, and results in
institutional weakness to address the public safety of women especially in cities, communities and
family groups.
In this regard, States are recommended to adapt their national legislation to the parameters that
enable creating a system for the comprehensive and effective legal protection of the subjects of the
Convention, with women as victims of violence, pursuant to Article 7 of the Convention, as
follows: "The States Parties condemn all forms of violence against women and agree to take
without delay all appropriate means and policies to prevent, punish and eradicate such violence and
to carry out the following:
a) Refrain from any violent act or practice against women and ensure that the authorities, officials,
personnel and agents and institutions behave in conformance with this obligation;
b) Act with due diligence to prevent, investigate and punish violence against women;
g) Include in their domestic legislation all criminal, civil and administrative and other regulations as
required to prevent, punish and eradicate violence against women and to adopt appropriate
administrative measures as necessary;
h) To adopt legal measures to order the aggressor to refrain from harassing, intimidating,
threatening, damaging or endangering the lives of women in any way harming their integrity or
their property;"
Based on this recommendation it seems necessary to strengthen national existing legislation, and to
follow up recent reforms, so as to provide quality care to the victims of violence through
Specialized Units included in a comprehensive structure that meets the needs of women victims and
survivors of violence, pursuant to national legislation and the Convention.
The regulatory sanctions that apply to perpetrators of sexual harassment towards women are relative
and incomplete because no effective preventive measures have been drawn up to control this type of
violence at work and other public places. This leads to a multiplicity of types of this form of
violence.
The existing measures do not make jointly responsible the businesses and public entities where
these crimes are committed, and the public entities that deal with this problem do so in an incipient
manner, without guaranteeing the fundamental rights of the victims.
We know that measures against this discriminatory social practice must not only comprise the
criminalization of sexual harassment, but include a proper and comprehensive legislation for the
workplace, schools and society at large. This however is no found in the existing Labor Code of the
Republic of Panama. Nor have specific measures been taken to overcome this problem. This
situation is derived from the discrimination and gender-based violence simultaneously suffered by
women in the public sector. Their public security is still at its infancy making them very
vulnerable. Nor does national legislation address the issues of prevention, care, protection and
appropriate sanctions in the labor, procedural and criminal areas.
-6A Special Law Against Sexual Harassment in the work, school and social environments is
recommended because Law 4, of January 29, 1999, which establishes Equal Opportunity for
Women, in article 8, paragraph 10, includes only a reference to the crime of sexual harassment,
leaving penal laws as the only way to punish this crime.
This is a widespread practice in the region, because most existing national laws have penalized the
crime of sexual harassment but have not used the full range of special administrative and civil
schemes available in labor regulations.
We know that unfortunately the penalty for this offence has not yielded the expected results because
it has not directly involved the employers, leaving the burden of proof to the female victim of
sexual and moral harassment, which re-victimizes them and threatens their job security and their
survival.
Due to the fact that the unequal power balance stemming from the relationship between the victim
and the harasser, in most of the cases it is not possible to have the sufficient and necessary evidence
to deal with the criminal process, which directly involves the calling of witnesses and other
evidence in support of the alleged crime but since in most cases these facts fail to be proven and
documented, women are dismissed and denounced for slander by the bullies themselves, leaving
women without proper legal protection.
Therefore the criminal provision that have been mentioned must be integrated into a new special
regulation, which will ensure the protection of women starting with prevention, because this is a
form of discrimination and violence based on the socio-cultural stereotypes still prevailing in the
employment and educational sector, and obvious in schools, universities, recreational centers,
churches and other public and private sectors.
Therefore, an analysis and a study should be performed regarding a reform that will allow to
comprehensively address this form of violence against women in the public sector. This legislation
is important because it implicitly recognizes that the vast majority of sexual harassment hurts
women.
It is recommended to pass legislation on sexual harassment and / or amend the Labor Code, by
creating a special chapter, which will adequately reform the Criminal Code to include sexual
harassment as an offence, in a much broader sense. In regards to the Labor Code, start by defining
behaviors of and establishing economic and administrative penalties for the perpetrators of this
directly and indirectly discriminatory social practice.
Therefore, legislation against sexual harassment must necessitate and include mandatory training on
the issue, as a factor in prevention, as well as procedures, for the entities responsible to investigate
complaints of sexual harassment, as well as compensation that may result from such behavior.
All of these mechanisms must be known to women. The internal regulations of private companies
and governmental institutions must address sexual harassment and overcome hostile work
environments and discrimination on grounds of gender, as serious misconduct that can be grounds
for dismissal.
Sex trade
It is important to mention regulatory developments in this area, including comprehensive criminal
penalties and administrative sanctions and fines for various forms of transnational crimes of
-7violence against women, as is Commercial Sexual Exploitation.
achievement in Panamanian law.
This is a very significant
The criminal penalties relating to marital sexual violence, outlined in the Base Questionnaire, are
not specifically regulated and do not constitute an aggravated circumstance with respect to this type
of sexual violence. Instead, a recommendation is included to address marital sexual violence as a
priority in Art. 7, paragraphs e) and f) of the Convention of Belém do Pará, which state:
e)"take all appropriate measures, including legislative measures, to modify or abolish existing laws
and regulations or to modify legal or customary practices that support persistence or tolerance of
violence against women;
f) "establish fair and effective legal procedures for women who have been subjected to violence
which include, among others, protective measures, a timely trial and effective access to such
procedures."
Sexist marital violence against women, within or outside wedlock, must be considered in regards to
the specific circumstances of marital or partnership unbalanced power relationships of unequal,
together with the burden of accepted stereotypes and prejudices of family and social practices that
involve subordination and subjugation of women to their partners; other multiple circumstances
ranging from the systematic cycle of violence; the hierarchical relations within families set up in the
family group; and the lack of an adequate legal monitoring system to protect women.
With regard to legal measures to compensate or repair the damage done to women victims of
violence, the report states that the Court hearing the case will ensure adequate treatment for their
physical, psychological and emotional recovery and their social reintegration, borne by the
aggressor.
When evaluating legislation, we must take into account that national laws against gender violence
in the region have been confined to family protection, and have not adopted the fundamental
principle of the Convention of Belém do Pará, which under Article 3 of the Convention states that:
"Every woman has the right to a life free of violence, both in the public and private sectors."
This fundamental human right must be a part of the normative-legal analysis and national laws, not
only as a crucial component of family law but also be adopted across the entire secondary
legislation.
A gender-driven women’s human rights approach cutting across the criminal/penal, labor and
administrative regulations and procedures, must be adopted to improve enforcement of the
regulations and expand the reach of the remedies provided for the damage caused, not only within
the family-private sector, but also in public and social life too, and so the various government
instances can afford women victims better protection and guarantee their safety, both in the social
and family environments.
It is recommended to specifically analyze the legal term used. The law’s language misleadingly
holds women victims of violence should be reintegrated to their communities. This is misleading
language since, due to the social dynamics of discrimination which women are subjected to, they
are not to be blamed for being assaulted.
We know that the system of social and family rules allows and naturalizes abuse, discrimination and
-8violence against women in its different, which points to the reasons why the aggressors should be
reintegrated or rehabilitated into society and their families, through specialized programs that will
weave a new profile of masculinity into the social fabric.
II. ACCESS TO JUSTICE
PROGRESS
With regard to the sanctions for government officials who do not comply with the implementation
of the laws of violence against women and other related rules, the penalty from 50 to 150 days' fine,
in the administrative field, is comparatively acceptable, due to the fact that not only should there be
provisions made for the financial penalty, but efforts should be made to provide quality and
appropriate care to the victims, either in the justice system or in the administrative field.
OBSTACLES
In treatment programs, aggressors are given a remedial curative measure. But this regulation has
not been effective. It should be regarded as a complement to a number of alternative actions, which
should be subject to systematic monitoring. The Therapeutic Treatment Multidisciplinary Program
should include a measure of performance in providing comprehensive care based on which
treatment for aggressors could be redefined.
In this sense, it is important to accompany this system with a re-education in regards to addressing
masculinity and their ways of relating to other people, through the elimination of discrimination,
violence and self-imposed parameters, thus restoring the social fabric and family through programs
of masculinity, where a different form of treatment is built, both as a preventive tool, as well as
protective, which will help since there is increasing attention to the problem of men and the
difficulty of dealing with violence of gender.
Treatment should go hand in hand with reeducation programs to address masculinity and the ways
men relate to other persons. It should aim at eliminating discrimination, violence and male-centered
parameters governing coexistence, restore the social fabric and families, and acting as both
preventive and protection tools to increase attention to the growing problem of male’s genderdriven violence.
The strategy has focused on the environment where men are brought up. The ideas, images and the
standards to which men are exposed from birth play a crucial role in shaping their behavior.
Right
to
Access
the
Justice
System
General Recommendations
A structure for systematic evaluation both locally and nationally, strengthened by the State
institutions, should be put in place because regulatory breaches weaken the legal framework and
public policies. The Judiciary’s, the Councils of the Judiciary’s and other government agencies’
Evaluation Units must be strengthened, or set up where they do not exist, whenever they are
involved in victim care, including the police forces, shelters, and walk-through and follow-up of
protection, prevention and care measures.
Specific
Recommendations
-9-
The Report does not address how witnesses of acts of direct or indirect violence can alert the police
to interrupt the cycle of violence. The regulations in this regard should be reviewed so that alerts
can be sent before a final complaint is filed, and thereby immediately stop aggression.
This issue could be addressed by preparing profiles of ideal candidates to fill government positions,
and adopting law enforcement indicators and protocols focusing on breaches of the legal process,
which take into account the barriers faced by women to have justice served.
Men who witness or are victims of abuse during their childhood and adolescence are more likely to
abuse their female partners. Programs should be in place to examine the role of men in gender
violence. These programs may fall roughly into three categories: education campaigns (including
promotion in the media); working with the perpetrators, and programs addressing masculinity.
We must bear in mind that those programs that are directed at the aggressors have always been a
controversial, though generally successful, initiative.
There is no mention in the report if the offices catering to victims are suitable so they will not be revictimized by the justice system. The report reveals allegations filed in the province of Panama are
more numerous but no information is provided about cases or allegations in other provinces in the
interior, or about the suburban, rural or indigenous population.
More information is needed about the care provided to female victims of violence. A nation-wide
statistical data base, for both the security and justice systems, can help to ensure follow up,
monitoring and evaluation of the care provided, and thereby improve care to the victims of violence
and prevent their re-victimization.
The Report does not specify or detail what is considered special protection in the cases of women
who denounce acts of repeated, systematic and / or recurring violence. It does not mention whether
there are criminal or administrative sanctions for the failure to deliver protective measures
established by court order. In these cases, when there is repetition of gender-based violence, there
should be sanctioning by the court for the lack of compliance with the court order.
What is observed is that monitoring should be improved so that the justice system’s measures are
effective and responsive to the victims’ needs. So it is recommended to determine judicially, how to
deal with the repeated failure to deliver special protection measures, to protect the lives and
integrity of women and their security as citizens.
With regard to institutional comprehensive free advice, limitations exist in the direct and indirect
care system, the prevention and punishment of gender violence, through the entities empowered to
intervene in this issue, which is subsidized through non-governmental organizations NGOs and
private enterprise.
We know the importance decentralizing public services to the municipalities to modernize the state,
but in these cases it is important to assess the quality and control of the comprehensive advice
provided, as the involvement of the state is a priority mentioned among the fundamental principles
of the Convention of Belem do Pará where Article 8 reads: "State parties agree to introduce, in a
progressive manner, specific measures and programs to provide specialized services appropriate for
the necessary care of women subjected to violence through public or private sector entities,
including shelters, family counseling, and, where appropriate, and care and custody of affected
- 10 children."
With this coordinated vision, the national entity it is recommended to create a coordinated care
system to further support and help women who are victims of violence, to care for their emotional
integrity and prevent them from being re-victimized for this lack.
It was also noted that the Judiciary operates a victims center but this is not exclusively for women
victims and survivors of violence. For this reason we propose in this area especially, to introduce
the measures identified in Arts. 7 and 8 of the Convention.
It is also recommended to undertake a comprehensive strategy with the justice system and the
higher education system, consisting of universities, colleges and professional associations of the
legal and social sciences, to train professionals on these issues, as well as with professional groups,
that can help in dialing with these issues, and to set up specialized training programs for the
treatment of aggressors, a very complex task that requires delving into several forms of
socialization derived from hegemonic masculinities and the patriarchal system.
For this reason a plan or a specialized program has been recommended, designed by the
universities or professional associations to approach the issues of care, prevention and protection for
women victims and survivors of violence from a holistic viewpoint. These efforts should provide
adequate care, free from stereotypes and cultural biases. They should help to eliminate the trend to
make invisible this problem, so culturally and socially ingrained in the justice system and other
services such as institutional care operators, ombudsman offices, private and public security officers
and other personnel of the care and protection system who, because of their social and professional
training, do not deal adequately with these issues so that, in the end, women are hurt and revictimized.
The central government’s focus prevails as regards women’s access to administrative and judicial
protection, as there is no detailed data at the national, or regional level, in order to determine
whether the services provided by institutional or private media are open or not to all women,
whether they are from urban or rural areas, or nationwide.
Citizen and institutional support networks are a commendable initiative, but they still we seem to
have very limited impact on communities. In this regard, we consider important to create a
mechanism or system of regional and provincial community networks with a focus on rights and
involving state agencies, private companies, municipalities, service clubs and other important social
sectors; and further develop and strengthen networks of the municipalities of Colón and David,
which are mentioned in the report.
There are modules for direct intervention for aggressors who have perpetrated gender driven acts of
violence. However, it is not mentioned whether there are prevention modules to eradicate this kind
of violence among young men. Starting with boys and young men would improve intervention
strategies and make them more effective against discrimination and violence.
It is important to mention that in addition to the comprehensive analysis of the subject, officials in
charge of responding to violence must also be trained. This should have a positive impact on the
comprehensive care to the victim. Indicators must be in place to enable systematic training, and its
monitoring and evaluation. It is advisable to do so on a regular basis because many times the legal
standard is not applied properly. Academic training of different professions must include integral
- 11 training to provide complete care, especially on women's right to effective access to the justice
system, and for the protection of their fundamental human rights, specifically in terms of their
security.
Another important recommendation is to include systematic supervision on the part of the
authorities legally empowered to address this issue. In this regard, officers in charge of processing
violence will feel supported and consequently improve the care and protection. The respective
entities are encouraged to continue with these institutional efforts.
Also, the respective entities are encouraged to collect information using IT technologies so
statistical reports will facilitate oversight to improve care. The present report does not include
national or provincial data that can allow internal monitoring and evaluating, despite their
importance in protecting the integrity and the lives of women survivors of violence. Such
monitoring and evaluation needs to be properly regulated.
Based on Art. 215 E under Law 38 of 2001, a recommendation is made to request greater coherence
on legal punishment for failure to comply with established labor duties, either because of breach or
mere inefficiency. This is not only in reference to the imposition of administrative fines, but should
be linked to the development of institutional functions, so that the powers assigned to the officer or
employee are deemed mandatory, and also to reflect the importance of job descriptions of officers
and enforcers of the system so they will respond appropriately to women’s needs. For what is
sought out is to review labor regulations of the various entities responsible and effect change.
We note that this is a breakthrough in Panamanian law, which leads to strengthening prevention of
gender-driven violence. A recommendation is made to allocate a budget to institutions and
programs focusing on gender awareness, human rights and the eradication of violence, but also on
the study of the role of men in gender violence, and studies on masculinities, reflecting the concern,
both academic-scientific and ideological, to build democratic models of human coexistence. The
topics of research and analysis offered by this vast field of study include the social construction of
masculinities, of manliness, of machismo and manhood, affective fatherhood, its challenges and
difficulties, and equitable couple relationships.
NATIONAL
PROGRESS,
PLANS.
OBSTACLES
AND
SETBACKS.
GENERAL RECOMMENDATIONS
SPECIFIC CHAPTER RECOMMENDATIONS
PROGRESS.
The involvement of the National Women's Bureau under the Ministry of Social Development
MIDES, and its national commission, is worth underscoring. It raises the level of management in
this area and thus strengthens the rule of Law while recognizing the right of women to security due
to their condition as citizens. A call is made also to the justice system ro be more actively involved
in the investigation and prevention of crime, because of the multiple causes of gender-driven
violence.
The institutional value of implementing the National Plan must be mentioned. Therefore, the State
of Panama is encouraged to enforce nationwide because as mentioned in the report, the plan has
- 12 been enforced only regionally and locally so far. Furthermore, in compliance with the constitutional
principle of formal equality of all persons, the plan must reach all women who are victims and
survivors of violence throughout the country.
It is important to establish deadlines to introduce the systematic mechanisms for enforcing
programs for victims and aggressors, for the purpose of monitoring and evaluation. This in turn
contributes to improving services, actions and strategies, and to improve the public policies to
improve the quality of care to women victims.
OBSTACLES,
SETBACKS:
No appropriate institutional structure exists to coordinate provincial and municipal strategies where
alliances must be built that can be coordinated and elevated to a political agenda for local
governments, the justice system and the mechanism for the advancement of women. The increase
in the budgets for these entities would contribute to the strengthening of the strategic actions of the
national action plans in the short, medium and long terms.
GENERAL
RECOMMENDATIONS.
It is recommended that there be an institutional structure for a defined national monitoring
mechanism of the Convention of Belem do Pará, to determine State-wide tracking, monitoring and
evaluating the implementation of the Convention at all levels of government from the Government,
Parliament and the justice systems, in relation to judicial decisions or administrative action with
respect to the fundamental human right to live a life free of violence.
SPECIFIC
RECOMMENDATIONS.
It is recommended that as soon as possible the evaluation and systematic monitoring of the plan
should be carried out to establish thereafter the administrative procedures to measure their
effectiveness by means of measurable and achievable indicators that will reflect the various forms
of
violence
against
women.
Coordination must be comprehensive and create the necessary tools to assess the real impact of the
implementation of the Convention regarding the rules in force and implementation of a public
policy in this area.
III.
National
Budget.
PROGRESS.
The specific work of the Parliamentary Committee is valuable because when it analyzes its
legislative management with regard to violence against women, the Committee is the main
transversal ink to assess the focus on rights of women without disregard for the impact generated by
the autonomy of these rights.
Thus, it strengthens the group of women parliamentarians through their initiatives and national and
regional agendas, and women's political forums, in order to share best practices and develop a fluid
legislative communication system. This allows them to establish a regional agenda to legislate with
a human rights approach on issues relating to the eradication of all forms of violence against
- 13 women, and gender-based violence.
Commendable efforts noted in the report include a campaign targeting the general population
called STOP DOMESTIC VIOLENCE NOW.
OBSTACLES,
SETBACKS:
With regard to the Parliamentary agenda, it becomes necessary to institutionally strengthen this
important Parliamentary Committee, because the gender integrated-transversal approach is not
applied
in
Parliament’
other
committees.
No institutional plan is in place for the systematic training of parliamentarians. The existence of a
Legislative Committee does not in itself mean comprehensive compliance with international
commitments will be enforced regarding the rights of women when drawing up laws and legislative
reforms. In this regard, support to this Parliamentary Committee is very important because of its
high level political agenda.
GENERAL
RECOMMENDATIONS.
In support of this Committee, it is recommended that through the internal organization of
Parliament, political agreements can be created to achieve the necessary consensus to adopt national
legislation to protect women's rights and eradicate gender violence, through the implementation of
protocols to support internal understanding and adoption of comprehensive regulations required in
terms of care, prevention, protection and punishment of violence and discrimination against women.
It is recommended that parliamentarians and parliament itself establish a Legislative Gender Equity
protocol that enhances the human rights of women, gender equity and inclusive approach to the
rights of families, women, children, adolescents, senior citizens and adult persons with disabilities.
SPECIFIC RECOMMENDATIONS
As mentioned earlier with regard to the implementation of training sessions, seminars and
workshops, to achieve the necessary impact of these events it is important to measure the system
and evaluate strategic change among officials, which means these initiatives should become
permanent components of their institutions, and that trained officials should also become
facilitators together with other officials and violence-related care givers. In this sense the
preparation of manuals for law enforcement to address the theme of violence against women
strengthens the methodology of these workshops driving the process of unifying standards for the
care and protection for women, in an appropriate manner. This dynamic of skill building will
improve the quality and scope of care, and reduce the operator's discretion in the protection system
created to mediate and care for the immediate needs of women.
In this dynamic, it is recommended, based on good practices and experiences involving officials and
other workers responsible for the response, protection, prevention and punishment in cases of
violence toward women, to discuss and coordinate communication and responsibility actions and
strategies with those who deal with the protection of women to adopt a protection and human rights
approach that relates to democratic governance. It is also recommended to implement a forum for
exchanges of social experience (community, families, municipalities) to strengthen institutional
networks already in place and to regard the prevention of violence from a gender perspective as an
achievable goal, which will strengthen inter-sector links.
We must ensure that telephone hotlines are connected to the general system of public safety
- 14 emergencies nationwide, both in urban and in rural areas, to care for the immediate safety for
women who report to or warn the system.
A public shelter known as New Life Shelter accepts battered women and their families in Panama
City and addresses the needs of women. These shelters must be made available to women
throughout the nation to protect them from the cycle and impact of violence.
It is recommended to have self-help groups for women to interact with the NGOs, as well as with
the bodies empowered to respond, based on the need for the State to raise the level of care, and
protection from this scourge, because government bodies have been able to generate significant
changes in care and protection, which gives them the financial, technical and infrastructure
resources and higher technology needed that not all NGOs have the financial to address this
scourge. A call is made for creating these self-help groups within both the judiciary sector and the
health system at the national level in a decentralized manner, pursuant to Art. 8 of the Convention.
There is a need to strengthen free of charge national family counseling services. As noted in the
report the existing services and programs are limited to urban sectors. The government service is
run only by the Social Security, which means that the most disadvantaged women and those living
in extreme poverty and their families have less chances of getting help. In this regard, there are
valuable legislative experiences elsewhere in the region where these services are attached to the
Family Courts. There are plans to expand and improve this service through the Judges of the Peace,
the Attorney General and the Mechanisms for the Advancement of Women.
State agencies are recommended to expand their social services to support women survivors of
violence, expand coverage of the various government bodies, setting up a coordinating structure for
a comprehensive protection system, to ensure no women are re-victimized and to care for
aggressive people, in coordination with the executive, justice sector, municipalities, communitylocal networks, private enterprise and other social actors.
The report mentions the National Plan Against Domestic Violence and for Policies of Peaceful
Coexistence includes some actions to fight poverty and reduce violence. However, for our specific
purposes we propose that sustainable strategies for the development of women and men should be
designed. It is therefore advisable to increase the state’s social budget, but also the national budget
should see to the specific needs of both sexes through institutional strengthening and local
development.
INFORMATION
PROGRESS,
SPECIFIC
AND
OBSTACLES,
SETBACKS:
STATISTICS.
RECOMMENDATIONS
RECOMMENDATIONS.
PROGRESS
Strategies
to
strengthen
this
area
are
commendable,
for
example;
Despite limited resources, investment in the year 2005 was satisfactory, and reached 40% of the
total budget, mainly addressed to the care, prevention of violence against women, children,
adolescents and youth, thus revealing outstanding government institutional practice by the State of
- 15 Panama.
OBSTACLES.
The budget for the strengthening of the National Plan on Violence against Women is a hundred
thousand dollars, or only 0.76% of GDP. This data evidences the need to increase funding under
this heading. Advocacy with the executive branch, which develops public policy, and Parliament,
which approves the budget, is recommended so as to increase the funding for such plans and
programs.
STATISTICAL INFORMATION.
Data from the entities such as the police and judicial officials are dispersed. There were 1349
women’s complaints, while courts reported 7435 cases of which 5699 were acquitted. This data
reflects the decline in complaints or notices to the police and an increased burden of judicial
complaints. The data about acquittals pose a complex problem. Nor is there follow up on cases of
recidivism.
There is also data on arrests in 2004 which totaled 2878 but this data does not specify the types of
crimes. The report mentions 11562 trials for domestic violence and with only 829 sentences passed,
reflecting issues in sustaining evidence or with parameters or normative criteria used, which fail to
classify gender-based violence as a serious crime. Thus, this practice is seen in the light of legal
androcentric accepted approaches, still ingrained in discriminatory and social customs and
practices. This same institutional setup is however intended to give adequate protection to women,
but the figures of police personnel that handle these cases is not provided, because such care is
generally for all crimes.
2. There is a high percentage of complaints via telephone, which are not served by the justice
system (police, judicial) totaling 154855. Previous data did not reflect these cases were being taken
care of through protective measures. Underreporting is a serious issue because only data from the
institutional and administrative system is analyzed but not that from the police or judicial protection
system.
2.2. The number of complaints above does reflect the need for more shelters nationwide as has been
recommended.
2.3. Also there is a high percentage of cases of violence against women and child abuse in hospitals
(2476), which represents 78.9% of the total. Care for these cases are not coordinated with other
relevant for which reason it seems advisable to set up a comprehensive system of care complaints
through computer networks and protocols of care to be used by all the entities to overcome the
problem of underreporting.
With regard to femicides (171), data identified in the report did not accurately reflect how many
cases of complaints have ended in murders, nor brought convictions for female murderers; likewise
recommended is the creation of an adequate system of integrated records to have reliable data to
help us properly investigate the issue.
GENERAL RECOMENDATIONS.
- 16 A recommendation is made to specifically promote preparing indicators for a system to monitor and
assess the protection and empowerment of women victims and survivors of violence using
electronic technology, currengly not available as mentioned by the report, and that would serve to
systematize and correct deficiencies in the care and give greater protection to women victims.
A multiple focus approach to public security underscores the need of a system to monitor the
protective measures for citizens and women in particular as well as for violations by aggressors.
A recommendation is made to create, develop, and implement a policy that would prevent crime by
adopting cross cutting gender strategies and actions in a new approach to criminal investigation.
The rise of femicides requires innovative proposals, such as public safety of women from a multicause approach, a comprehensive approach including the justice system, criminal investigation and
a system for comprehensive protection for women victims of violence, with a focus on gender.
SPECIFIC RECOMMENDATIONS
It is recommended to develop a system of indicators to determine the actual annual investment
needs for police protection for women, to strengthen care initiatives, as they are currently not
unique to the theme of women violence but address crimes in general; an invitation is made to
create an inter-agency structure that will be strengthened through effective coordination, a
reasonable budget that provides protection starting with the initial warning and complaint through
compliance with various measures and court rulings.
It is proposed as in the preceding item to create strategic alliances and increase financial and
technical resources to strengthen institutions and expand budgets to expand still limited national
coverage of the urban and rural hotlines, involving agreements with telephone companies to provide
free services. These contributions may be encouraged by providing tax incentives.
- 17 -
Another suggestion concerns setting up provincial or regional shelters nationwide to address the
issue of women not filing complaints for lack of means and ways to get protection from aggressors.
It is recommended to increase funding for programs to rehabilitate victims, presently available in
only two provinces as pilot schemes. This should be a national service available in the women’s
own towns.
Funding to both entities of the state and the municipalities should be increased to gather reliable
statistics, research and systematization of updated data as tools against the scourge of women’s
violence.
Paragraphs 2 and 4 of the report, including sections 2.1,2.2,3.1 and 4, reflect the need for increased
financial resources for all activities above.
A cross cutting approach to statistics gathering and use is recommended as it would allow
mainstreaming the gender perspective.
With respect to item 4, regarding the status of women, the 2000 census does not include questions
about violence based on gender. Panama has more men than women (51% 49%).
Census data points to a growing migration of women from rural areas to urban areas, as well as the
complex and difficult task of overcoming gender gaps to overcome poverty and create access to
development.
With regard to training programs for prevention, punishment and eradication, it was noted that there
is no comprehensive system that provides consistent feedback at all levels, and it was noted, for
example, that only a small number of teachers (413) from all levels of education are being trained
about the justice system by the Judicial School of Panama. No breakdown of these figures is
available.
It is recommended to set up a Local (decentralized) Citizen Observatories at municipalities with the
assistance of the Human Rights Prosecutor, or another appropriate agency, in compliance with
national legislation. An agency is needed to monitor the state´s activities regarding the human
rights of women, the initiatives of public and private bodies, and the strategies for the prevention,
care, protection, punishment and eradication of the various forms of gender-driven violence.