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(e.g. CEDAW) must submit regular reports on progress towards implementing the treaty.
Shadow reports are a civil society critique of the government reports, highlighting
issues that may have been neglected or misrepresented in the government reports. In
cases where a government fails to submit a report or does not make its report available
to NGOs in time for a critique, alternative reports may be submitted (by NGOs) as a key
source of information on the issues that are important to the cause.
As part of its CEDAW knowledge resource site, International Women’s Rights Action
Watch Asia Pacific offers a 16-page guide on writing CEDAW shadow reports. Key
points are summarized and adapted below.
The same steps can be followed when preparing alternative reports to other monitoring
bodies, such as the Committee on the Rights of the Child, which monitors
implementation of the Convention on the Rights of the Child, or the Committee against
Torture, which monitors State progress on the Convention against Torture and Other
Cruel, Inhuman or Degrading Treatment or Punishment.
Main steps in writing a shadow or alternative report
1. Identify priorities within the provisions of the treaty (e.g. CEDAW) in a joint process
involving other interested groups. Try to find allies in relevant public institutions for
up-to-date information and tactical tips. If there is sufficient time and resources, write
a comprehensive shadow report covering all parts of the relevant treaty. If only a few
months’ time can be afforded and there is no dedicated staff for research and reportwriting,
it is more efficient to focus on a limited number of key issues.
2. Make it a joint effort. A single shadow report supported by a large alliance is more
powerful than scattered submissions. However, separate reports may be necessary
to address issues that a broad alliance cannot reach consensus on, or that need
extra attention, e.g. problems affecting specific groups (e.g. minority rights) or a
specific geographic area (e.g. war zones).
3. Gather and analyze information on priority issues. Evaluate the measures the
government has taken to address the parts of the treaty (e.g. CEDAW) relevant to
the issues – see also guidelines on policy analysis. Collect laws or government
policy documents that are in conflict with or fall short of the treaty. Make a note of
information that is applicable to other human rights treaties – the same report can be
sent to different monitoring bodies or information shared with other groups who work
on relevant alternative reports.
For a shadow report, refer to the government’s official report. Ask the government for a
copy. Reports that other governments have submitted can also be obtained from the
websites of the international monitoring bodies, e.g. the CEDAW Committee.
4. Write the report: Make sure everything in the report is clear, accurate and based on
verifiable evidence. The report will be more credible and accurate if it is the product
of collective writing involving a range of organizations working on the issues. If the
report is signed, endorsed by all those with experience on VAW, the treaty
Committee members and government would be compelled to take it into
consideration.
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Campaigns December 2011