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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 95 | las Mujeres, las Agendas de Igualdad y el Plan Nacional de Erradicación de la Violencia contra las Mujeres, Niñas, Niños y Adolescentes. Esta normativa, en términos generales, dispone la promoción y garantiza la participación equitativa de las mujeres en los procesos de elección popular, instancias de dirección y decisión en el ámbito público, administración de justicia y organismos de control, entre otros frentes. Se reconoce el trabajo no remunerado de autosustento y de cuidado humano como labor productiva, incluyendo el derecho a la seguridad social de las mujeres. De igual manera, se prohíbe la discriminación directa e indirecta o los crímenes de odio que tengan por objeto o por resultado vulnerar derechos humanos, y se especifica el deber del Estado para tomar medidas de acción afirmativas para lograr una igualdad real y su obligación de prevenir, eliminar y sancionar todas las formas de violencia que se cometan contra la población, | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 96 | crímenes de odio que tengan por objeto o por resultado vulnerar derechos humanos, y se especifica el deber del Estado para tomar medidas de acción afirmativas para lograr una igualdad real y su obligación de prevenir, eliminar y sancionar todas las formas de violencia que se cometan contra la población, especialmente contra mujeres, niñas, niños y adolescentes. Como se puede observar, a través de esta breve descripción, la construcción de un enfoque de género en el ámbito constitucional expresa la clara necesidad de cerrar la brecha de desigualdad histórica al contar con un marco capaz de amparar el reconocimiento de la especificidad de las violencias contra la mujer, niños, niñas y adolescentes. En este sentido, el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica del Ministerio del Interior, incorpora el enfoque de género para que, en el marco de su competencias y responsabilidades, contribuya en la elaboración de la | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 97 | la especificidad de las violencias contra la mujer, niños, niñas y adolescentes. En este sentido, el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica del Ministerio del Interior, incorpora el enfoque de género para que, en el marco de su competencias y responsabilidades, contribuya en la elaboración de la política pública necesaria que trate y transforme la naturalización de todo tipo de violencia contra las mujeres —por el hecho de serlo—, NNA y contra las personas no heterosexuales en razón de su diversidad mediante la territorialización de la normalización de la violencia y su abordaje en coherencia con el radio de acción vinculante a la presencia de la Policía Nacional9, del Ministerio del Interior, las Gobernaciones, Intendencias Generales y Comisarías Nacionales de Policía, Tenencias Políticas y el resto de instituciones estatales que han asumido un compromiso similar, de acuerdo a la competencia de cada una. Con la finalidad de | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 98 | radio de acción vinculante a la presencia de la Policía Nacional9, del Ministerio del Interior, las Gobernaciones, Intendencias Generales y Comisarías Nacionales de Policía, Tenencias Políticas y el resto de instituciones estatales que han asumido un compromiso similar, de acuerdo a la competencia de cada una. Con la finalidad de visibilizar los principales espacios en los que este Plan adopta y aplica el enfoque de género, se detallan a continuación las prácticas de resistencia y resilencia, la discriminación y desigualdad heteronormativa, la necesidad de mejorar las rutas de atención interinstitucional, la promoción del rol de la mujer en las instituciones, el continuum de la violencia devenida a femicidio y la vulnerabilidad de las mujeres privadas de libertad10.
2.1 Espacios para la incorporación del enfoque de género en la seguridad
2.1.1 Resistencia y resilencia de las mujeres en las prácticas comunitarias En el Ecuador, la naturalización de la violencia de género 9 Como | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 99 | el continuum de la violencia devenida a femicidio y la vulnerabilidad de las mujeres privadas de libertad10.
2.1 Espacios para la incorporación del enfoque de género en la seguridad
2.1.1 Resistencia y resilencia de las mujeres en las prácticas comunitarias En el Ecuador, la naturalización de la violencia de género 9 Como se verá oportunamente en las fases de diagnóstico e implementación del Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica, se espera en el lapso de tiempo que cubre (2019 a 2030), que el involucramiento interinstitucional consiga formar una red que permita disminuir el papel eminentemente punitivo que ha tenido hasta el momento la institución policial y las acciones de judicialización, llevando estas últimas a una participación porcentual más equilibrada, en función de un cambio paulatino en la sociedad y sus acciones frente a las causas objetivas, subjetivas y estructurales de los diversos tipos de violencia.
10 Antes que un análisis | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 100 | hasta el momento la institución policial y las acciones de judicialización, llevando estas últimas a una participación porcentual más equilibrada, en función de un cambio paulatino en la sociedad y sus acciones frente a las causas objetivas, subjetivas y estructurales de los diversos tipos de violencia.
10 Antes que un análisis exhaustivo de temas tan amplios, lo que proponemos en esta Fase de Formulación del Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica como política pública, es considerar los escenarios de participación femenina y no heterosexual que hasta el momento han sido más proclives a ser tratados desde prácticas securitistas en el contexto de la realidad ecuatoriana. 48 49
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
es un fenómeno vinculado de forma inexorable a las diferencias étnicas, la racialización y las concepciones diversas de los territorios, enraizados por las costumbres, formas de justicia, | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 101 | en el contexto de la realidad ecuatoriana. 48 49
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
es un fenómeno vinculado de forma inexorable a las diferencias étnicas, la racialización y las concepciones diversas de los territorios, enraizados por las costumbres, formas de justicia, vestimentas, lenguas e idiomas diversos que influencian este proceso. En otras palabras, esta violencia se enmarca dentro de una geopolítica tejida junto a identidades complejas, que desafían las dicotomías y cuyas dinámicas que se presentan entre las zonas urbanas y rurales, contribuyen hacia la desigualdad a partir de la constitución de nuevas dinámicas socio-económicas, culturales y tecnológicas. Uno de estos cambios – considerado además el más profundo en la contemporaneidad comunitaria – es el rol de las mujeres al interior de sus respectivos grupos étnicos. En este marco, la aplicación del enfoque de género en la seguridad obliga observar al | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 102 | de nuevas dinámicas socio-económicas, culturales y tecnológicas. Uno de estos cambios – considerado además el más profundo en la contemporaneidad comunitaria – es el rol de las mujeres al interior de sus respectivos grupos étnicos. En este marco, la aplicación del enfoque de género en la seguridad obliga observar al patriarcado como aquel fenómeno histórico, ideológico y socioeconómico que da predominancia a la figura del varón protector y padre y que lo ha constituido por antonomasia en una voz de autoridad absoluta y suprema sobre aquellos a quienes ‘protege’, domina y subordina. Y ese mismo enfoque reconoce que la arbitrariedad de este poder no tiene las mismas magnitudes ni se ejerce de manera homogénea en todos los grupos sociales. Por ende, el Plan considera que la naturalización de la superioridad masculina toma matices y contextos distintos de acuerdo con los modelos de organización social y comunitarios propios de cada contexto. | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 103 | de este poder no tiene las mismas magnitudes ni se ejerce de manera homogénea en todos los grupos sociales. Por ende, el Plan considera que la naturalización de la superioridad masculina toma matices y contextos distintos de acuerdo con los modelos de organización social y comunitarios propios de cada contexto. Sin territorio no hay cultura. Básicamente para quienes habitamos en el Norte de Esmeraldas, sean los hermanos Afro, los hermanos Chachi, Epera, Awá, para todos nosotros es clarísimo que el cuidado del territorio es lo principal. Nosotros como comunidades Negras hemos vivido por muchos años la lucha para que las mineras, las madereras no ingresen a nuestro territorio y nos hemos amparado en eso en los derechos de ancestralidad del territorio. Ahora si usted me dice, qué esa ancestralidad, pues yo le digo que esos ancestros somos nosotros mismos. Nosotros. La gente. Nosotros estamos aquí porque tuvimos unos ancestros y | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 104 | mineras, las madereras no ingresen a nuestro territorio y nos hemos amparado en eso en los derechos de ancestralidad del territorio. Ahora si usted me dice, qué esa ancestralidad, pues yo le digo que esos ancestros somos nosotros mismos. Nosotros. La gente. Nosotros estamos aquí porque tuvimos unos ancestros y en nosotros se hace presente ese ancestro. Y eso es lo que muchos hermanos no han entendido. Como mujeres Negras, afrodescendientes nosotras apoyamos a nuestros compañeros en sus luchas pero nos queda claro que la organización estuvo en manos por muchos años de líderes que transaron con gerentes y personas de afuera para la venta del bosque. Ahora que tenemos un liderazgo con mujeres a la cabeza de la organización, la conciencia de lo que es el territorio sí cambia, porque nuestra relación con el cuidado de estos árboles, de este río, de estos animales, de estos ancestros es diferente. | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 105 | de afuera para la venta del bosque. Ahora que tenemos un liderazgo con mujeres a la cabeza de la organización, la conciencia de lo que es el territorio sí cambia, porque nuestra relación con el cuidado de estos árboles, de este río, de estos animales, de estos ancestros es diferente. Es una práctica de nuestro interés, que nosotras hemos hecho por siglos atrás. (Entrevista realizada a activista para el encuentro Cultura Viva Comunitaria, Ibarra, 2017). Como lo expone la activista, hay prácticas de resistencia y resilencia comunitarias que se han gestado en los territorios que no solo promueven una construcción de lo que es vivir en comunidad —a lo que apunta el Plan— sino que denotan cómo se han ido edificado procesos de seguridad autóctonos a los cuales el Plan debe fortalecer por medio de las políticas y directrices. Esto es de vital importancia al considerar que las mismas prácticas | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 106 | de lo que es vivir en comunidad —a lo que apunta el Plan— sino que denotan cómo se han ido edificado procesos de seguridad autóctonos a los cuales el Plan debe fortalecer por medio de las políticas y directrices. Esto es de vital importancia al considerar que las mismas prácticas de resistencia y resilencia surgen por la desigualdad y discriminación que se da en la sociedad. Si estas últimas no existieran, mujeres, niñas y adolescentes hubieran tenido un acceso a la posesión de tierras y a los emprendimientos a lo largo de su vida. Al tomar en cuenta que la dinámica que enlaza la producción de una idea y su materialización es lo que configura un hecho histórico, la desigualdad hombres/mujeres en las comunidades y sociedades evidencia cómo al privarse a las mujeres el acceso a la propiedad territorial y material, se limita su posibilidad de historicidad, quedando sus vivencias | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 107 | dinámica que enlaza la producción de una idea y su materialización es lo que configura un hecho histórico, la desigualdad hombres/mujeres en las comunidades y sociedades evidencia cómo al privarse a las mujeres el acceso a la propiedad territorial y material, se limita su posibilidad de historicidad, quedando sus vivencias y aportes sumidos en los componentes de una esfera doméstica y ancestral. Justamente, es en este punto en el que la universalidad de la preferencia de lo masculino sobre lo femenino se transforma en violencia naturalizada; en justificación per-se de las bajas o nulas oportunidades de las mujeres. Por otro lado, al ser los varones los que tienen mayores posibilidades de acceso a la propiedad de la tierra o a la producción del dinero, su participación en la esfera económica es más activa tanto a nivel local como no-local. Esto ha llevado a que su participación en el espacio público | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 108 | lado, al ser los varones los que tienen mayores posibilidades de acceso a la propiedad de la tierra o a la producción del dinero, su participación en la esfera económica es más activa tanto a nivel local como no-local. Esto ha llevado a que su participación en el espacio público sea preponderante y abra un nuevo campo de desventaja para las mujeres, quienes no solo no participan de estos diálogos y sus resultados, sino que sufren directamente las consecuencias de la enajenación. La misma se acrecienta con las mujeres 50 51
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
del sector rural y periférico, a quienes la propia situación de sus comunidades las expulsa de su entorno en condiciones de mayor vulnerabilidad y extrema pobreza y las desplaza a trabajar en la ciudad, transformándolas en el objetivo de bandas y organizaciones delincuenciales, entre las | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 109 | Seguridad Ciudadana y Convivencia Social Pacífica
del sector rural y periférico, a quienes la propia situación de sus comunidades las expulsa de su entorno en condiciones de mayor vulnerabilidad y extrema pobreza y las desplaza a trabajar en la ciudad, transformándolas en el objetivo de bandas y organizaciones delincuenciales, entre las que se destaca el negocio de la trata de personas, con especial deferencia para fines de explotación sexual, algo que el Plan procura enfrentar. A pesar de que en términos históricos, la discriminación y la desigualdad han impedido el reconocimiento de las mujeres en esferas políticas y económicas, la incorporación del enfoque de género en el ámbito de la seguridad aboca también al reconocimiento del cuestionamiento a los roles que les han sido social y comunitariamente impuestos y se reconozcan los tipos de violencia que enfrentan y los ámbitos en donde estas se presentan. Ejemplo de ello es lo que | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 110 | del enfoque de género en el ámbito de la seguridad aboca también al reconocimiento del cuestionamiento a los roles que les han sido social y comunitariamente impuestos y se reconozcan los tipos de violencia que enfrentan y los ámbitos en donde estas se presentan. Ejemplo de ello es lo que acaece en comunidades de la Sierra del Ecuador en donde la violencia en el ámbito intrafamiliar sobre las mujeres demarca que, a pesar de que la dimensión de la vida pública no se desentiende del todo de la vida privada, la esfera íntima, que atañe directamente a las relaciones de pareja, se configura como un modelo de relaciones que se interpreta como secreta por naturaleza. Según investigaciones etnográficas, mientras más aceptado se encuentra el velo del secreto en las prácticas aceptadas como moralmente adecuadas dentro de las comunidades, más posibilidades existen de que se cometan abusos sobre las mujeres (ONU | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 111 | pareja, se configura como un modelo de relaciones que se interpreta como secreta por naturaleza. Según investigaciones etnográficas, mientras más aceptado se encuentra el velo del secreto en las prácticas aceptadas como moralmente adecuadas dentro de las comunidades, más posibilidades existen de que se cometan abusos sobre las mujeres (ONU MUJERES, 2011). Esto es reflejo de un contexto donde la impunidad, como único contenido real de la práctica de la justicia, ha permitido que se naturalicen los crímenes de violación a mujeres indígenas, caracterizados por daños físicos, emocionales y de otros tipos. Si bien es cierto esto avivó la lucha de lideresas como Mercedes Cacuango o Tránsito Amaguaña, y la activa participación de las mujeres en las jornadas de levantamientos indígenas, no se puede pasar por alto que la situación de las mujeres indígenas es la que más discriminación atraviesa, tanto por su condición de género como por su condición | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 112 | de lideresas como Mercedes Cacuango o Tránsito Amaguaña, y la activa participación de las mujeres en las jornadas de levantamientos indígenas, no se puede pasar por alto que la situación de las mujeres indígenas es la que más discriminación atraviesa, tanto por su condición de género como por su condición étnica. El caso de las mujeres de la Amazonía tiene una tónica parecida. Al igual que en el resto de pueblos y nacionalidades, los sistemas sociales y de justicia —que algunas de sus lideresas abanderan en sus intervenciones públicas locales, nacionales e internacionales, al ser partícipes activas de la defensa de su territorio— reflejan la dificultad que tienen las mujeres a la hora de desempeñarse como lideresas, caracterizada por un cuadro general en el que la participación de las autoridades externas muchas veces resulta cómplice de los abusos y la perpetuación de la violencia.
2.1.2 Diversidad de los géneros Del enfoque | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 113 | de su territorio— reflejan la dificultad que tienen las mujeres a la hora de desempeñarse como lideresas, caracterizada por un cuadro general en el que la participación de las autoridades externas muchas veces resulta cómplice de los abusos y la perpetuación de la violencia.
2.1.2 Diversidad de los géneros Del enfoque de género en el presente plan visibiliza que hay un continuum de todos los tipos de violencia en diferentes ámbitos, y esto no se da como un hecho aislado, sino como un fenómeno social que afecta a las personas en razón de sus identidades. Ejemplo primigenio de ello es la violencia que se ejerce sobre la población LGBTI, la cual —heterogénea en su composición, pero homogénea en su lucha— enfrenta discriminación y afectación en sus prácticas cotidianas y actividades rutinarias en espacios públicos y privados (CNIG, 2017). A continuación los Gráficos del 1 al 4 muestran evidencia de esta realidad.
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 114 | violencia que se ejerce sobre la población LGBTI, la cual —heterogénea en su composición, pero homogénea en su lucha— enfrenta discriminación y afectación en sus prácticas cotidianas y actividades rutinarias en espacios públicos y privados (CNIG, 2017). A continuación los Gráficos del 1 al 4 muestran evidencia de esta realidad.
Gráfico 1. Experiencias de discriminación en diversos entornos.
Fuente: Primera Investigación LGBTI, INEC, 2013
Discriminación
Justicia
Salud
Educativo
Laboral
Espacios privados
Espacios públicos
23,0%
33,7%
40,0%
43,8%
55,8%
50,5% 52 53
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica Esta realidad se fundamenta en cómo las relaciones de poder se ejercen, es decir, por medio de la fuerza y los medios institucionales, los cuales han ido configurando a las identidades de la población LGBTI como anormales 11 o antinaturales 12, en un marco heteronormativo enfocado en la protección de los supuestos valores defendidos bajo la cosmovisión de la familia tradicional, construida dogmáticamente como la única posible13. Por ende, | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 115 | y los medios institucionales, los cuales han ido configurando a las identidades de la población LGBTI como anormales 11 o antinaturales 12, en un marco heteronormativo enfocado en la protección de los supuestos valores defendidos bajo la cosmovisión de la familia tradicional, construida dogmáticamente como la única posible13. Por ende, el derecho penal, así como las prácticas de las instituciones estatales estuvieron caracterizadas por la carencia de enfoques y la falta de capacitación y sensibilización frente al tema por parte de los servidores públicos. Los juicios de valor y actos de discriminación y rechazo hacia las personas LGBTI se utilizaron erróneamente como herramientas de control y sanción efectivos para todo acto o conducta considerada ‘desviada’ del orden moral dominante de una sociedad en donde sus instituciones tanto ejecutivas como comunitarias y sociales —Estado, familia, religión entre otros— han concebido al tema de la orientación sexual y la identidad de género | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 116 | erróneamente como herramientas de control y sanción efectivos para todo acto o conducta considerada ‘desviada’ del orden moral dominante de una sociedad en donde sus instituciones tanto ejecutivas como comunitarias y sociales —Estado, familia, religión entre otros— han concebido al tema de la orientación sexual y la identidad de género como un tabú. En ese marco, la población LGBTI, al ser considerada como inferior por su condición sexual y al estar al margen de la ley, tuvo que luchar por décadas y ejercer resistencia y resilencia para que se le reconozcan sus derechos humanos (CNIG, 2014) frente a una heteronormatividad que, por medio de reglas jurídicas, sociales y culturales, obligaba a las personas a actuar conforme a patrones heterosexuales dominantes e imperantes.
11 Recién la Constitución de 1998 dejó de considerar a la homosexualidad como un delito. Art. 23, numeral 3.
12 La Organización Mundial de la Salud en 1990 retiró a | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 117 | que, por medio de reglas jurídicas, sociales y culturales, obligaba a las personas a actuar conforme a patrones heterosexuales dominantes e imperantes.
11 Recién la Constitución de 1998 dejó de considerar a la homosexualidad como un delito. Art. 23, numeral 3.
12 La Organización Mundial de la Salud en 1990 retiró a la homosexualidad de su lista de enfermedades mentales.
13 Aquí, la relación de dominio que se encuentra —supuestamente— inscrita en lo biológico y que más bien funciona como una construcción social biologizada (Bourdieu, 1999) ha restringido el ámbito de la sexualidad humana a tal punto que todo lo que no se vincula con la vida reproductiva o la heterosexualidad fue caracterizado como un delito o una enfermedad mental acogido en la normativa nacional, en el caso de Ecuador y diversos países de la región o en el trabajo de las organizaciones internacionales. Gráfico 2. Experiencias de exclusión en diversos entornos.
Fuente: Primera | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 118 | vincula con la vida reproductiva o la heterosexualidad fue caracterizado como un delito o una enfermedad mental acogido en la normativa nacional, en el caso de Ecuador y diversos países de la región o en el trabajo de las organizaciones internacionales. Gráfico 2. Experiencias de exclusión en diversos entornos.
Fuente: Primera Investigación LGBTI, INEC, 2013
Gráfico 3. Experiencias de violencia en diversos entornos.
Fuente: Primera Investigación LGBTI, INEC, 2013
12%
10%
26%
22%
52%
66% 54 55
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Gráfico 4. Experiencias de violencia en diversos entornos.
Fuente: Primera Investigación LGBTI, INEC, 2013 De esta manera, las instituciones del Estado, en vez de velar por la integridad, la protección y la no vulneración de derechos de estos grupos, se constituyeron en entes que incorporaron las mismas actitudes y prejuicios de la sociedad contra las personas LGBTI y propendieron a la represión y vulneración sistemática de sus derechos humanos | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 119 | del Estado, en vez de velar por la integridad, la protección y la no vulneración de derechos de estos grupos, se constituyeron en entes que incorporaron las mismas actitudes y prejuicios de la sociedad contra las personas LGBTI y propendieron a la represión y vulneración sistemática de sus derechos humanos (CNIG, 2014). En otras palabras, la violencia estructural en Ecuador, como un proceso cotidiano, permitió a quienes ejercían las relaciones de poder decidir a quién se debe proteger y a quién se debe controlar, objetivizar y temer, adscribiendo a la población LGBTI en este último grupo. Esto se refleja en múltiples relatos recogidos en instrumentos elaborados por el Consejo Nacional de Igualdad de Género (2014 - 2017), en los que se expone cómo las instituciones - entre las que se incluye a las del ámbito de seguridad - reforzaron los patrones socioculturales sexistas y homofóbicos y deshumanizaron a las víctimas, | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 120 | múltiples relatos recogidos en instrumentos elaborados por el Consejo Nacional de Igualdad de Género (2014 - 2017), en los que se expone cómo las instituciones - entre las que se incluye a las del ámbito de seguridad - reforzaron los patrones socioculturales sexistas y homofóbicos y deshumanizaron a las víctimas, a través de juicios de valor y tratos denigrantes que sufría cualquier persona perteneciente a estos grupos cuando se acercaban a presentar denuncias o si eran parte de algún procedimiento del Estado. Lo más grave fueron las afectaciones tanto psicológicas —
gritos, insultos, amenazas y burlas— como físicas —golpes y otras agresiones— que inclusive escalaron a torturas (CNIG, 2014). A ello se suman las extorsiones y la demanda de favores sexuales; la indiferencia; el uso excesivo de la fuerza; uso de armas de fuego para herir o incapacitar a las víctimas; casos en los que las mujeres trans se veían obligadas | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 121 | agresiones— que inclusive escalaron a torturas (CNIG, 2014). A ello se suman las extorsiones y la demanda de favores sexuales; la indiferencia; el uso excesivo de la fuerza; uso de armas de fuego para herir o incapacitar a las víctimas; casos en los que las mujeres trans se veían obligadas a desnudarse completamente en público, así como constante hostilidad y actos de humillación (CNIG, 2017). Por todo ello, el Plan reconoce que la igualdad formal que se está alcanzado y cuya base es la actual Constitución no ha devenido a una igualdad real de oportunidades y, ante eso, edifica prácticas de seguridad ciudadana sin discriminación que respeten la diversidad y se enmarquen en políticas públicas y normativas que respondan a las luchas históricas, resistencia y resilencia de estos grupos. En este marco, el Plan parte por reconocer a las personas con identidad de género y orientación sexual diferenciadas en lesbianas, | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 122 | de seguridad ciudadana sin discriminación que respeten la diversidad y se enmarquen en políticas públicas y normativas que respondan a las luchas históricas, resistencia y resilencia de estos grupos. En este marco, el Plan parte por reconocer a las personas con identidad de género y orientación sexual diferenciadas en lesbianas, gays, bisexuales, transgénero e intersex —
LGBTI— como actores sociales de gran valor para las diversas comunidades, sobre los/as cuales se han concentrado diferentes formas de discriminación y tratos inequitativos y desiguales. Al hacerlo, el Plan se enmarca en los Principios de Yogyakarta (2007, p. 6) en donde se establece a la identidad de género como “la vivencia interna e individual del género tal como cada persona la siente profundamente, la cual podría corresponder o no con el sexo asignado al momento del nacimiento, incluyendo la vivencia personal del cuerpo (que podría involucrar la modificación de la apariencia o la función | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 123 | la identidad de género como “la vivencia interna e individual del género tal como cada persona la siente profundamente, la cual podría corresponder o no con el sexo asignado al momento del nacimiento, incluyendo la vivencia personal del cuerpo (que podría involucrar la modificación de la apariencia o la función corporal a través de medios médicos, quirúrgicos o de otra índole, siempre que la misma sea libremente escogida) y otras expresiones de género incluyendo la vestimenta, el modo de hablar y los modales”. También, se acoge lo determinado por la Corte Interamericana de Derechos Humanos (CIDH, 2012, p. 69) que reconoce que “la orientación sexual de una persona también se encuentra ligada al concepto de libertad y a la posibilidad de todo ser humano de auto-determinarse y escoger libremente las opciones y circunstancias que le dan sentido a su ,
,
,
,
, 56 57
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional | [
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] |
PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 124 | reconoce que “la orientación sexual de una persona también se encuentra ligada al concepto de libertad y a la posibilidad de todo ser humano de auto-determinarse y escoger libremente las opciones y circunstancias que le dan sentido a su ,
,
,
,
, 56 57
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
existencia, conforme a sus propias opciones y convicciones”14. Es necesario entender que en esta coyuntura, la discriminación hacia las personas de los grupos LGBTI es todavía una práctica común en los ámbitos cotidianos y familiares como en los públicos e institucionales, que va desde actos sutiles de segregación hasta crímenes y actos de violencia de todo tipo (Gráfico 5) causados por el odio y la intolerancia. Ejemplo de ello, es lo que viven las mujeres trans en el país quienes se encuentran inmersas en un ciclo de violencia, discriminación y criminalización que generalmente comienza | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 125 | actos sutiles de segregación hasta crímenes y actos de violencia de todo tipo (Gráfico 5) causados por el odio y la intolerancia. Ejemplo de ello, es lo que viven las mujeres trans en el país quienes se encuentran inmersas en un ciclo de violencia, discriminación y criminalización que generalmente comienza desde muy temprana edad, por la exclusión y violencia sufrida en sus hogares, comunidades y centros educativos (CNIG, 2017). Para enfrentar aquello, un reto que se constituye a partir del presente Plan es contar con indicadores desagregados, registros administrativos e información concisa sobre delitos y actos de violencia que se cometen contra las personas de los grupos diversos LGBTI. Las estadísticas oficiales en muchos casos han sido sesgadas o se realizan con una temporalidad que no permite evaluar el accionar de las instituciones y entender esta problemática. En este marco, el Plan reconoce la necesidad de que las instituciones del | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 126 | cometen contra las personas de los grupos diversos LGBTI. Las estadísticas oficiales en muchos casos han sido sesgadas o se realizan con una temporalidad que no permite evaluar el accionar de las instituciones y entender esta problemática. En este marco, el Plan reconoce la necesidad de que las instituciones del Estado, a través de sus prácticas efectivas, promuevan el registro y la denuncia de estos actos. En el mismo contexto, el Plan observa la necesidad de que todos/as los/as funcionarios/as públicos se encuentren capacitados y sensibilizados en los temas de género, violencia de género o respeto por la diversidad sexual. Para alcanzar aquello, el Plan se posiciona con firmeza en contra del uso excesivo de la fuerza, la detención arbitraria y otras formas de abuso rompen los protocolos y/o procedimientos establecidos, entre los que se encuentra el protocolo de atención a grupos de atención prioritaria y grupos LGBTI, del Ministerio | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 127 | Para alcanzar aquello, el Plan se posiciona con firmeza en contra del uso excesivo de la fuerza, la detención arbitraria y otras formas de abuso rompen los protocolos y/o procedimientos establecidos, entre los que se encuentra el protocolo de atención a grupos de atención prioritaria y grupos LGBTI, del Ministerio del Interior (2018b), así como los manuales de derechos
14 Corte IDH. Caso Karen Atala Riffo e hijas Vs. Chile. Fondo, Reparaciones y Costas. Sentencia de 24 de febrero de 2012. Serie C No. 239, párr. 136.
humanos que se han elaborado en los últimos años y que son de cumplimiento obligatorio en el accionar diario del personal institucional. Adicionalmente, esta problemática se acrecienta porque se considera a esto como un tema propio de las ciudades o de los conos urbanos y porque no se disponen de datos fehacientes que permitan denotar esta realidad en territorio. Ejemplo claro de ello es la | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 128 | en el accionar diario del personal institucional. Adicionalmente, esta problemática se acrecienta porque se considera a esto como un tema propio de las ciudades o de los conos urbanos y porque no se disponen de datos fehacientes que permitan denotar esta realidad en territorio. Ejemplo claro de ello es la falta de información sobre los centros, campamentos y clínicas clandestinas que ofrecen ‘modificar/curar’ la orientación sexual e identidad de género real o percibida, particularmente, de niños, niñas, adolescentes y jóvenes, quienes se someten a supuestos tratamientos psicoterapéuticos, que en realidad terminan siendo lugares en donde se ejerce violencia física, psicológica y sexual con fines de castigo y tratamiento. Esto último no solo demarca cómo se ejerce la apropiación de los cuerpos de las personas LGBTI sino, sobre todo, ejemplifica y abre el debate sobre los mecanismos de control social al que ellos/as todavía son sometidos por parte
Gráfico 5. Formas de | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 129 | y sexual con fines de castigo y tratamiento. Esto último no solo demarca cómo se ejerce la apropiación de los cuerpos de las personas LGBTI sino, sobre todo, ejemplifica y abre el debate sobre los mecanismos de control social al que ellos/as todavía son sometidos por parte
Gráfico 5. Formas de violencia vividas en el entorno familiar.
Fuente: Primera Investigación LGBTI, INEC, 2013 58 59
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
de los entes de seguridad y las bandas criminales (Mackenzie, 2010). Las retóricas discursivas y prácticas con carácter de seguridad, en vez de delimitar cómo la discriminación conlleva a la segregación de este grupo, reduce su identidad a la excesiva sexualización de sus cuerpos, a tal grado que se los ve como portadores innatos de enfermedades de transmisión sexual y, por ende, como un problema de seguridad pública. En virtud de ello, el | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 130 | delimitar cómo la discriminación conlleva a la segregación de este grupo, reduce su identidad a la excesiva sexualización de sus cuerpos, a tal grado que se los ve como portadores innatos de enfermedades de transmisión sexual y, por ende, como un problema de seguridad pública. En virtud de ello, el Plan cuestiona todo tipo de práctica, particularmente las formas contemporáneas de (in)seguridad (Bigo, 2008) y securitización, que con el pseudo-objetivo de garantizar la seguridad y libertad de la mayoría, configuran dispositivos de control y vigilancia constante sobre una minoría a la que considera ‘anormal’, más aún, en un escenario regional e internacional en donde diversas entidades de seguridad (trans) nacionales conciben al cuerpo humano como una base de datos móviles o un objeto de análisis de riesgo (Bigo, 2017). Por otro lado, el crimen organizado ha hecho uso racional de los mecanismos de violencia para explotar las vulnerabilidades de los | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 131 | e internacional en donde diversas entidades de seguridad (trans) nacionales conciben al cuerpo humano como una base de datos móviles o un objeto de análisis de riesgo (Bigo, 2017). Por otro lado, el crimen organizado ha hecho uso racional de los mecanismos de violencia para explotar las vulnerabilidades de los grupos LGBTI. En su afán de fortalecer las cadenas ilícitas de producción económica y controlar el flujo de capital en los territorios que operan, estas bandas no solo se han enfocado en controlar la oferta y demanda de los bienes ilegales, sino sobre todo los cuerpos de las personas vulnerables que habitan en los espacios donde ejecutan sus operaciones (Casper y Moore, 2009). Una característica esencial de las economías ilegales que operan especialmente en las zonas de frontera es la de configurar espacios y prácticas que explotan y usan unas identidades más que otras para sus fines (Viteri y Ceja, | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 132 | que habitan en los espacios donde ejecutan sus operaciones (Casper y Moore, 2009). Una característica esencial de las economías ilegales que operan especialmente en las zonas de frontera es la de configurar espacios y prácticas que explotan y usan unas identidades más que otras para sus fines (Viteri y Ceja, 2017). La naturalización de la violencia en los bordes llega a tal grado que los abusos sexuales son esperados por las poblaciones que habitan estos espacios (Casper y Moore, 2009). Ejemplo de ello, son los prostíbulos en las fronteras y las dinámicas que giran alrededor de todo el comercio sexual en el que personas LGBTI se involucran, mediante intercambios sexuales esporádicos en relaciones trasnacionales que mezclan sexo, intimidad e intercambios materiales que ayuden a balancear las precariedades económicas (Viteri y Ceja, 2017). Frente a este escenario, la transversalización del enfoque de género demanda que en la construcción e implementación del | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 133 | en el que personas LGBTI se involucran, mediante intercambios sexuales esporádicos en relaciones trasnacionales que mezclan sexo, intimidad e intercambios materiales que ayuden a balancear las precariedades económicas (Viteri y Ceja, 2017). Frente a este escenario, la transversalización del enfoque de género demanda que en la construcción e implementación del Plan se avizore en qué grado la población LGBTI todavía se ve sometida a prácticas discriminatorias y segregadoras, incluidos los juicios de valor sobre esta población y sus identidades.
2.1.3 Importancia del enfoque de género en la educación Sobre el contexto de responsabilidad interinstitucional de los objetivos propuestos por este Plan, la educación en materia de igualdad de género resulta de vital importancia para encaminar hacia la construcción de la convivencia pacífica que se debe desarrollar en todos los ámbitos de la sociedad. Para ello, es necesario impulsar varias acciones y mecanismos interinstitucionales que ya se encuentran contemplados en normativas como | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 134 | la educación en materia de igualdad de género resulta de vital importancia para encaminar hacia la construcción de la convivencia pacífica que se debe desarrollar en todos los ámbitos de la sociedad. Para ello, es necesario impulsar varias acciones y mecanismos interinstitucionales que ya se encuentran contemplados en normativas como la Ley Orgánica de Educación Intercultural-
(LOEI, 2011), donde se establece en su artículo 2, como principios generales de la actividad educativa, entre otros, “j) Garantizar el derecho de las personas a una educación libre de violencia de género, que promueva la coeducación”. De igual manera, el literal t) “Cultura de paz y solución de conflictos.- El ejercicio del derecho a la educación debe orientarse a construir una sociedad justa, una cultura de paz y no violencia, para la prevención, tratamiento y resolución pacífica de conflictos, en todos los espacios de la vida personal, escolar, familiar y social […]”. La ley | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 135 | paz y solución de conflictos.- El ejercicio del derecho a la educación debe orientarse a construir una sociedad justa, una cultura de paz y no violencia, para la prevención, tratamiento y resolución pacífica de conflictos, en todos los espacios de la vida personal, escolar, familiar y social […]”. La ley señala también que entre los fines de la educación está “La protección y el apoyo a las y los estudiantes en casos de violencia, maltrato, explotación sexual y de cualquier tipo de abuso; el fomento de sus capacidades, derechos y mecanismos de denuncia y exigibilidad; el combate contra la negligencia que permita o provoque tales situaciones” (LOEI, 2011, art.3, inc. m); y, manifiesta además, que una de las obligaciones del Estado es erradicar todas las formas de violencia en el sistema educativo y velar por la integridad física, psicológica y sexual de los integrantes de las instituciones educativas, con particular | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 136 | que permita o provoque tales situaciones” (LOEI, 2011, art.3, inc. m); y, manifiesta además, que una de las obligaciones del Estado es erradicar todas las formas de violencia en el sistema educativo y velar por la integridad física, psicológica y sexual de los integrantes de las instituciones educativas, con particular énfasis en las y los estudiantes (Const., 2008, art. 347, num. 6). 60 61
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica Frente a ello, la adopción del enfoque de género en el Plan demanda, por un lado, el fortalecimiento del talento humano mediante capacitaciones, sensibilización y la institucionalización de mallas curriculares de formación a todo nivel que aborden las temáticas de género y violencia de género, diversidades y no discriminación. Y, por otro lado, es necesario trabajar por la actualización o generación de rutas interinstitucionales de operatividad para la promoción, prevención, detección | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 137 | mediante capacitaciones, sensibilización y la institucionalización de mallas curriculares de formación a todo nivel que aborden las temáticas de género y violencia de género, diversidades y no discriminación. Y, por otro lado, es necesario trabajar por la actualización o generación de rutas interinstitucionales de operatividad para la promoción, prevención, detección y una adecuada persecución y juzgamiento de todo tipo de delitos detectados o cometidos en el ámbito educativo contra niñas, niños y adolescentes, para así garantizar la protección especializada e integral de las víctimas. Ejemplo de ese trabajo son las rutas de atención a nivel educativo que establecen la obligación de denuncia que tiene cualquier miembro de la comunidad educativa, y la constitución de los Departamentos de Consejería Estudiantil como punto focal para acompañar e impulsar procesos de denuncia. A través de este mecanismo, los DECE 15 comenzaron a reportar casos de presuntos hechos de violencia relacionada con tres ámbitos:
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 138 | de denuncia que tiene cualquier miembro de la comunidad educativa, y la constitución de los Departamentos de Consejería Estudiantil como punto focal para acompañar e impulsar procesos de denuncia. A través de este mecanismo, los DECE 15 comenzaron a reportar casos de presuntos hechos de violencia relacionada con tres ámbitos:
• Violencia en el ámbito educativo y en el ámbito intrafamiliar;
• Violencia de género (especialmente delitos sexuales), cuyos sujetos activos son estudiantes de escuelas o colegios; y,
• Delitos sexuales cometidos en el ámbito educativo. A esto se agregan los protocolos de actuación ejecutados por la Policía Nacional en casos relacionados a violencia contra la mujer o miembros del núcleo familiar, en donde prima el interés superior del niño/a. Los mismos deben ser fortalecidos con la participación de otras entidades quienes pueden brindar los servicios que están fuera de las competencias de esta institución.
15 Departamentos de Consejería Estudiantil. De igual manera, para | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 139 | violencia contra la mujer o miembros del núcleo familiar, en donde prima el interés superior del niño/a. Los mismos deben ser fortalecidos con la participación de otras entidades quienes pueden brindar los servicios que están fuera de las competencias de esta institución.
15 Departamentos de Consejería Estudiantil. De igual manera, para acrecentar la confianza institucional y combatir la impunidad, se debe tomar en cuenta
la importancia de emitir sanciones administrativas e impulsar las sanciones judiciales correspondientes a quienes atenten contra los derechos dentro de la comunidad. Con dicho fin, la aplicación del enfoque demanda transparentar las cifras y concatenar las bases de datos que ya maneja la Policía Nacional con la información producida en otras instituciones. Con todo lo descrito y siendo el objetivo del Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica, la transformación de las causas estructurales de los diversos tipos de violencia, la educación con enfoque de género | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 140 | datos que ya maneja la Policía Nacional con la información producida en otras instituciones. Con todo lo descrito y siendo el objetivo del Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica, la transformación de las causas estructurales de los diversos tipos de violencia, la educación con enfoque de género es de vital importancia para evidenciar las desigualdades de género así como fortalecer los procesos de formación institucionales —PCIC en el caso de la Policía Nacional— y capacitar y sensibilizar a todos/as quienes ejecutan protocolos en casos de actuaciones de violencia en el contexto de género. La presente política pública considera a la educación y formación con enfoque de género como una herramienta efectiva para la consolidación de la red interinstitucional que este Plan propone.
2.1.4 El papel de las mujeres a nivel institucional En cuarto lugar, la incorporación del enfoque de género en el ámbito de la seguridad ciudadana permite | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 141 | considera a la educación y formación con enfoque de género como una herramienta efectiva para la consolidación de la red interinstitucional que este Plan propone.
2.1.4 El papel de las mujeres a nivel institucional En cuarto lugar, la incorporación del enfoque de género en el ámbito de la seguridad ciudadana permite evidenciar el rol de las mujeres dentro de las instituciones y los problemas que se presentan a la hora de transversalizar este enfoque en las prácticas y políticas cotidianas de las entidades. Actualmente, el Ministerio del Interior es una de las pocas instituciones públicas que mantiene vigente la transversalización del enfoque de género —Acuerdo Ministerial 5040-A (2015)—, a través del cual se busca modificar las dinámicas institucionales propias de esta dependencia y la Policía Nacional para promover la adaptación de sus actuaciones a las nuevas exigencias sociales de supresión de las prácticas securitarias. Por ende, el Plan entiende no solo | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 142 | enfoque de género —Acuerdo Ministerial 5040-A (2015)—, a través del cual se busca modificar las dinámicas institucionales propias de esta dependencia y la Policía Nacional para promover la adaptación de sus actuaciones a las nuevas exigencias sociales de supresión de las prácticas securitarias. Por ende, el Plan entiende no solo la importancia de institucionalizar el 62 63
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
enfoque sino, al mismo tiempo, la necesidad de modificar y realinear doctrinas, conductas, normativas y acciones provenientes de la mismas entidades para que estas se evidencien en el accionar público. En este sentido, es de un interés significativo del presente Plan promover todas las acciones que sean necesarias para la incorporación efectiva del enfoque de género al interior de la institucionalidad ejecutiva y operativa relacionada a la seguridad ciudadana y orden público. Con ese fin, y con base en | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 143 | público. En este sentido, es de un interés significativo del presente Plan promover todas las acciones que sean necesarias para la incorporación efectiva del enfoque de género al interior de la institucionalidad ejecutiva y operativa relacionada a la seguridad ciudadana y orden público. Con ese fin, y con base en el estudio de DECIDE (2010), el Plan reconoce que a nivel ministerial se está superando la formación militarista, dándose énfasis al servicio a la comunidad. No obstante, tras la influencia de sucesos como las acciones perpetradas en el Cantón San Lorenzo por el llamado Frente Oliver Sinisterra, se puede observar un eventual repunte del fenómeno de la securitización, lo que de alguna manera crearía una contradicción frente a la necesidad de tomar acciones sobre las causas estructurales de la violencia potenciadas desde un enfoque de género. En este punto, cabe enfatizar que el aporte del enfoque de género en seguridad, | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 144 | un eventual repunte del fenómeno de la securitización, lo que de alguna manera crearía una contradicción frente a la necesidad de tomar acciones sobre las causas estructurales de la violencia potenciadas desde un enfoque de género. En este punto, cabe enfatizar que el aporte del enfoque de género en seguridad, contrariamente a lo que una visión securitista pretendería, no busca el descuido o negligencia del Estado frente a fenómenos transnacionales como los que tiene que enfrentar la realidad ecuatoriana con respecto a su relación con el conflicto armado interno de Colombia. Lo que esta visión establece es, más bien, el constante mejoramiento de las condiciones integrales de seguridad para hombres y mujeres, para lo cual la condición de subordinación de estas últimas debe ser superada. La justificación naturalizada de la violencia direccionada hacia las mujeres, se ha constituido como un núcleo duro de acciones que ha enrumbado a los Estados | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 145 | constante mejoramiento de las condiciones integrales de seguridad para hombres y mujeres, para lo cual la condición de subordinación de estas últimas debe ser superada. La justificación naturalizada de la violencia direccionada hacia las mujeres, se ha constituido como un núcleo duro de acciones que ha enrumbado a los Estados y a los modelos de organización hacia una creciente ola de actos de desigualdad que, lejos de disminuir las causas de los diversos tipos de violencia y el cometimiento de hechos delictivos, más bien tiende a aumentarlos, al invisibilizar el hecho de que existe un inmenso número de pobladoras cuya vulnerabilidad es mayor que el de los pobladores. En este sentido, el estudio de DECIDE (2010) señala que, a pesar de los avances de la Policía Nacional en cuanto a la profesionalización de sus miembros, el tema de la igualdad y no discriminación al interior de sus filas todavía no | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 146 | vulnerabilidad es mayor que el de los pobladores. En este sentido, el estudio de DECIDE (2010) señala que, a pesar de los avances de la Policía Nacional en cuanto a la profesionalización de sus miembros, el tema de la igualdad y no discriminación al interior de sus filas todavía no está del todo comprendido y resuelto, al no asumirse que la igualdad de las mujeres solamente puede realizarse en la medida en que se comprendan sus desventajas. Es decir, cuando se asuma que existe una brecha histórica comprobada, que requiere de medidas de discriminación positiva. Aunque no se cuentan con datos exhaustivos al respecto, lo cual se constituye como un reto a mediano plazo, es posible inferir que el desconocimiento sobre los derechos continúa, al igual que se malinterpreta la importancia de las acciones afirmativas16 y el fin que cumplen. El medio para enfrentar aquello es la promoción del ascenso | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 147 | datos exhaustivos al respecto, lo cual se constituye como un reto a mediano plazo, es posible inferir que el desconocimiento sobre los derechos continúa, al igual que se malinterpreta la importancia de las acciones afirmativas16 y el fin que cumplen. El medio para enfrentar aquello es la promoción del ascenso de las mujeres en igualdad de condiciones a puestos de decisión. La Policía Nacional ha sido una institución pionera en este campo en los últimos años. El cuadro histórico de ascensos 17 por género de esta institución denota cómo después de décadas de profesionalización y de lucha contra estereotipos y roles predeterminados: en el 2011, 8 mujeres ascienden al grado de Coronel; en el 2012 ascienden 4 mujeres a Coronel. En el año 2016 ascienden 2 mujeres al grado de General de Distrito; en el 2017 asciende otra mujer al mismo grado; y, finalmente, en el 2018 llega por primera | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 148 | roles predeterminados: en el 2011, 8 mujeres ascienden al grado de Coronel; en el 2012 ascienden 4 mujeres a Coronel. En el año 2016 ascienden 2 mujeres al grado de General de Distrito; en el 2017 asciende otra mujer al mismo grado; y, finalmente, en el 2018 llega por primera vez una mujer al cargo de General Inspector, frente a cuatro varones ascendidos al mismo rango. Esto último no se desentiende de cómo en el mismo periodo —2011-2018— el número de ascensos de Coroneles hombres es significativamente superior —80 Coroneles—, y tampoco desconoce que la Institución Policial es particularmente masculina, no solo por el número de autoridades de ese género, sino por la imposición de procedimientos en los que todavía no se logra garantizar la
16 “El Estado adoptará medidas de acción afirmativa que promuevan la igualdad real en favor de los titulares de derechos que se encuentren en situación de | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 149 | no solo por el número de autoridades de ese género, sino por la imposición de procedimientos en los que todavía no se logra garantizar la
16 “El Estado adoptará medidas de acción afirmativa que promuevan la igualdad real en favor de los titulares de derechos que se encuentren en situación de desigualdad.” (Const., 2008, art.11, num. 2). 17 Cuadro Histórico de Ascensos de la Policía Nacional, desglosado por Género. Dirección de Talento Humano de la Policía Nacional del Ecuador. Corte diciembre 2018. 64 65
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
igualdad de las mujeres como pares en derechos, aptitudes y acceso al escalafón. No obstante, este Plan reconoce como este paradigma se ha ido modificando y que la mujer policía hoy en día desarrolla roles importantes dentro de la institución; existen mujeres en grado de General y Oficiales con competencias de directoras nacionales. | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 150 | mujeres como pares en derechos, aptitudes y acceso al escalafón. No obstante, este Plan reconoce como este paradigma se ha ido modificando y que la mujer policía hoy en día desarrolla roles importantes dentro de la institución; existen mujeres en grado de General y Oficiales con competencias de directoras nacionales. También hay personal operativo que trabaja desde el patrullaje en la calle y en las unidades de élite como el GOE (grupo de operaciones especiales); existen mujeres pilotos, conductoras de patrulleros para persecuciones, lideresas de procedimientos policiales, etc; y esto, es en gran medida por la incorporación sistemática de las mujeres y la eliminación de prácticas de discriminación y vulneración. En virtud de ello, el Plan entiende el doble y triple rol que desempeñan las mujeres dentro de todas las instituciones de seguridad ciudadana, y aboga por la deconstrucción de aquellos paradigmas que cimientan el rol de la mujer solo | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 151 | mujeres y la eliminación de prácticas de discriminación y vulneración. En virtud de ello, el Plan entiende el doble y triple rol que desempeñan las mujeres dentro de todas las instituciones de seguridad ciudadana, y aboga por la deconstrucción de aquellos paradigmas que cimientan el rol de la mujer solo al nivel administrativo. Además, es objetivo primordial del Plan – como política pública - impulsar los ajustes normativos, doctrinarios y de formación que sean necesarios para que tanto el Ministerio del Interior cuanto la Policía Nacional del Ecuador se transformen en instituciones ejemplares y pioneras en la incorporación y transversalización del enfoque de género, adoptando las acciones afirmativas necesarias para reducir y cerrar la deuda histórica del Estado ecuatoriano frente a los evidentes obstáculos provenientes de la persistente naturalización de los roles femeninos como “menores” o poco vinculados con todas las áreas de profesionalización y liderazgo propios del contexto institucional | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 152 | del enfoque de género, adoptando las acciones afirmativas necesarias para reducir y cerrar la deuda histórica del Estado ecuatoriano frente a los evidentes obstáculos provenientes de la persistente naturalización de los roles femeninos como “menores” o poco vinculados con todas las áreas de profesionalización y liderazgo propios del contexto institucional de la seguridad para los ciudadanos y ciudadanas del Ecuador.
2.1.5 Continuum de los tipos de violencia En quinto lugar, la aplicación del enfoque de género que forma parte del Plan en el contexto ecuatoriano permite hablar del femicidio no como un hecho aislado que se da en los espacios privados sino como la manifestación extrema de un patrón de control, misoginia, manipulación, asedio, dominación y hasta odio, cometido por hombres agresores —a través de acciones directas por las que se ejerce control y dominio— y por organizaciones, instituciones y el Estado mismo —por acciones concretas u omisiones discretas. En otras | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 153 | sino como la manifestación extrema de un patrón de control, misoginia, manipulación, asedio, dominación y hasta odio, cometido por hombres agresores —a través de acciones directas por las que se ejerce control y dominio— y por organizaciones, instituciones y el Estado mismo —por acciones concretas u omisiones discretas. En otras palabras, hay que ver al femicidio como aquel delito que refleja todas las problemáticas sociales configuradas a partir de una sistemática desvalorización de los cuerpos y de las vidas de las mujeres (Segato, 2006). En virtud de ello, el Plan comprende al femicidio como el continuum de la violencia de género naturalizada que se presenta de forma física, psicológica, sexual, patrimonial, política, simbólica y gineco-obstétrica, que acaece en todos los ámbitos: familiar, educativo, laboral, comunitario u otros, en donde se desenvuelven las mujeres a lo largo de todo su ciclo de vida. Este continuum —en términos de Liz Kelly (1987)— | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 154 | género naturalizada que se presenta de forma física, psicológica, sexual, patrimonial, política, simbólica y gineco-obstétrica, que acaece en todos los ámbitos: familiar, educativo, laboral, comunitario u otros, en donde se desenvuelven las mujeres a lo largo de todo su ciclo de vida. Este continuum —en términos de Liz Kelly (1987)— se manifiesta a través de una variedad de formas de abuso interdependientes, tales como “violación, tortura, esclavitud sexual (particularmente por prostitución), abuso sexual infantil incestuoso o extra-familiar, golpizas físicas y emocionales, acoso sexual (por teléfono, en las calles, en la oficina, y en el aula), mutilación genital (clitoridectomías, escisión, infibulaciones), operaciones ginecológicas innecesarias (histerectomías gratuitas), heterosexualidad forzada, esterilización forzada, maternidad forzada (por la criminalización de la contracepción y del aborto), negación de comida para mujeres en algunas culturas, cirugía plástica, y otras mutilaciones en nombre del embellecimiento, formas que pueden devenir femicidios” (Radford y Russell, 1992). En este marco, el | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 155 | operaciones ginecológicas innecesarias (histerectomías gratuitas), heterosexualidad forzada, esterilización forzada, maternidad forzada (por la criminalización de la contracepción y del aborto), negación de comida para mujeres en algunas culturas, cirugía plástica, y otras mutilaciones en nombre del embellecimiento, formas que pueden devenir femicidios” (Radford y Russell, 1992). En este marco, el espacio privado y público es vital para comprender cómo se presentan estas dinámicas, al considerar que los femicidios son tanto de carácter íntimo — hechos cometido por un hombre con quien la víctima tenía o había tenido una relación o vínculo íntimo: esposo, ex-esposo, novio, ex-novio o amante— o no íntimo —cometido por un hombre desconocido con quien la víctima no tenía ningún tipo de relación: agresión sexual que culmina en asesinato de una mujer a manos de un extraño. Fuente: Comisión Especial Interinstitucional de Seguridad Ciudadana y Justicia.
Terminación de Causa
Archivo de la investigación previa
Sobreseimiento
Sentencia Condenatoria
Sentencia ratificatoria de inocencia
Extinción del ejercicio | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 156 | íntimo —cometido por un hombre desconocido con quien la víctima no tenía ningún tipo de relación: agresión sexual que culmina en asesinato de una mujer a manos de un extraño. Fuente: Comisión Especial Interinstitucional de Seguridad Ciudadana y Justicia.
Terminación de Causa
Archivo de la investigación previa
Sobreseimiento
Sentencia Condenatoria
Sentencia ratificatoria de inocencia
Extinción del ejercicio de la acción penal
10
13
7
129
6
165TOTAL
Casos
66 67
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica Esto es consecuencia directa de los patrones socioculturales androcéntricos —sexismo, machismo, inequidad y misoginia— que permiten a los hombres ejercer sus relaciones de poder y mecanismos de control, apropiación del cuerpo y control sobre el manejo del tiempo y la sexualidad de las mujeres (Carcedo y Laclé, 2011). Estos aspectos se han convertido en una característica constitutiva del tejido social que permite la denigración pública y, con especial deferencia, la denigración privada de las niñas, adolescentes y mujeres en | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 157 | del cuerpo y control sobre el manejo del tiempo y la sexualidad de las mujeres (Carcedo y Laclé, 2011). Estos aspectos se han convertido en una característica constitutiva del tejido social que permite la denigración pública y, con especial deferencia, la denigración privada de las niñas, adolescentes y mujeres en todos los ámbitos (Carey y Torres, 2010). Precisamente, esto demarca cómo el despojo material de la población femenina al que se ven sometidas limita una dimensión fundamental para el ejercicio pleno de su libertad y autonomía porque pretende obligarlas a aceptar la autoridad masculina para, a cambio, garantizar su subsistencia, o, muy frecuentemente, la subsistencia de otras personas dependientes cuya garantía de sobrevivencia es asumida por la mujer. Ecuador no escapa de esta compleja realidad. El cometimiento de los femicidios (Tabla 2) y todo el contexto social que los antecede demarca un escenario crítico en donde la violencia naturalizada y | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 158 | o, muy frecuentemente, la subsistencia de otras personas dependientes cuya garantía de sobrevivencia es asumida por la mujer. Ecuador no escapa de esta compleja realidad. El cometimiento de los femicidios (Tabla 2) y todo el contexto social que los antecede demarca un escenario crítico en donde la violencia naturalizada y estructural refleja la manera como está enraizado un sistema de dominación, poder y control sostenido por prácticas culturalmente aceptadas que promueven la violencia de género por medio de ‘formas socialmente toleradas’ de abuso, agresión física y emocional y acoso sexual, entre otros formas (Carey y Torres 2010) detrás de las cuales se presenta una violación sistémica de los Derechos Humanos de las mujeres.
Tabla 2. Número de víctimas por Femicidio.
Fuente: Comisión Especial Interinstitucional de Seguridad Ciudadana y Justicia.
Fuente: Comisión Especial Interinstitucional de Seguridad Ciudadana y Justicia.
Femicidios
Estado de la causa
2014
Investigación previa
Instrucción Fiscal
Juicio
Recurso de apelación
Recurso de casación
Resuelta
Evaluatoria y Preparatoria de juicio
27
79
2015 55
20
4
2016 66
22
2017
59
3
105
16
2018
312
165
309
TOTAL
TOTAL
Víctimas
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 159 | cuales se presenta una violación sistémica de los Derechos Humanos de las mujeres.
Tabla 2. Número de víctimas por Femicidio.
Fuente: Comisión Especial Interinstitucional de Seguridad Ciudadana y Justicia.
Fuente: Comisión Especial Interinstitucional de Seguridad Ciudadana y Justicia.
Femicidios
Estado de la causa
2014
Investigación previa
Instrucción Fiscal
Juicio
Recurso de apelación
Recurso de casación
Resuelta
Evaluatoria y Preparatoria de juicio
27
79
2015 55
20
4
2016 66
22
2017
59
3
105
16
2018
312
165
309
TOTAL
TOTAL
Víctimas
Tabla 3. Número de casos judicializados según fase pre procesal y estado procesal18.
Tabla 4. Número de casos judicializados según la resolución de terminación de la causa19.
18 Tomar en cuenta que los datos que se describen en la Tabla 2 hacen referencia al número de víctimas hasta diciembre 2018 con fecha de actualización 24 de Marzo de 2019. Se debe considerar que del total de femicidios (312) existen 3 víctimas que corresponden a un evento múltiple.
19 Esta tabla hace referencia a una desagregación de la resolución de terminación de la causa de los 165 casos resueltos que se muestran en la tabla | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 160 | actualización 24 de Marzo de 2019. Se debe considerar que del total de femicidios (312) existen 3 víctimas que corresponden a un evento múltiple.
19 Esta tabla hace referencia a una desagregación de la resolución de terminación de la causa de los 165 casos resueltos que se muestran en la tabla 3.
Casos 68 69
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica Así mismo, se puede observar que la violencia de género se ha presentado en casi todas las provincias del país y, dada la densidad poblacional y el número de casos registrados, la misma afecta a algunas circunscripciones territoriales en forma similar, tal como lo muestra la ilustración 3 sobre la incidencia de estos delitos a nivel distrital en el Ecuador. Específicamente, sobre el femicidio en Ecuador, se han presentado 312 casos entre agosto del 2014 20 y diciembre de 2018; la mayor | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 161 | misma afecta a algunas circunscripciones territoriales en forma similar, tal como lo muestra la ilustración 3 sobre la incidencia de estos delitos a nivel distrital en el Ecuador. Específicamente, sobre el femicidio en Ecuador, se han presentado 312 casos entre agosto del 2014 20 y diciembre de 2018; la mayor parte se han dado en el espacio privado. Los domicilios tanto de familiares —víctima-victimario—,
20 Información desde el 10 de agosto 2014. Se incluye un caso sentenciado como femicidio, a pesar de que la infracción fue antes de la tipificación de este delito en el Código Orgánico Integral Penal (COIP).
Ilustración 3. Incidencia de delitos de violencia de género.
Elaboración: Equipo de Investigación de la Subsecretaría de Evaluación y Estudios, Ministerio del Interior.
como de la víctima, el victimario u otros constituyen el 65,38% de los espacios en donde se ejecutan los femicidios (INEC, 2019)21. El restante porcentaje de 34,62%, se ha dado en | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 162 | Incidencia de delitos de violencia de género.
Elaboración: Equipo de Investigación de la Subsecretaría de Evaluación y Estudios, Ministerio del Interior.
como de la víctima, el victimario u otros constituyen el 65,38% de los espacios en donde se ejecutan los femicidios (INEC, 2019)21. El restante porcentaje de 34,62%, se ha dado en el espacio público —parques, calles, aceras entre otros. Esta relación de dos a uno entre ambas esferas se debe contextualizar al considerar que la víctima conocía al victimario en el 96,15% de los casos. Esto incluye a la relación (ex) cónyuges, (ex) convivientes y (ex) parejas de las víctimas, además de familiares, amigos y conocidos. Únicamente se excluye a las categorías “no identificado” y “otros no familiares”. A partir de esta información estadística se puede empezar a comprender que el femicidio tiene una connotación íntima en el Ecuador. Sin embargo, un punto aparte merece el femicidio no íntimo al considerar | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 163 | de familiares, amigos y conocidos. Únicamente se excluye a las categorías “no identificado” y “otros no familiares”. A partir de esta información estadística se puede empezar a comprender que el femicidio tiene una connotación íntima en el Ecuador. Sin embargo, un punto aparte merece el femicidio no íntimo al considerar las diversas problemáticas que se han presentado para su denuncia y judicialización efectiva. En este mismo marco, el Plan reconoce la necesidad de profundizar el análisis sobre los factores de riesgo que experimentan las mujeres a lo largo de su vida y examinar aquellas circunstancias facilitadoras de la violencia femicida. La carencia de datos cualitativos o referencias epistémicas que caractericen estos factores de riesgo que enfrenta la víctima con su victimario, dentro del entorno de un continuum de hechos de violencia, ha sido común en el país. Por otra parte, en relación al análisis por grupo etario, se puede observar | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 164 | La carencia de datos cualitativos o referencias epistémicas que caractericen estos factores de riesgo que enfrenta la víctima con su victimario, dentro del entorno de un continuum de hechos de violencia, ha sido común en el país. Por otra parte, en relación al análisis por grupo etario, se puede observar que 268 víctimas están comprendidas entre los 15 y 44 años de edad, lo que representa el 85,90% del total de víctimas de femicidio. No solo hay un amplio margen fuera de este número en edades donde se acrecientan las vulnerabilidades —niñez, adultez— sino también, al no contar con registros administrativos unificados, no se puede diagnosticar la problemática en forma integral e interseccional. Se conoce que del total, solo en el 6,41% de los casos las víctimas alcanzaron los estudios superiores y para el 83,97% de las 312 víctimas su auto-identificación étnica era mestiza.
21 Información actualizada al 17 de marzo | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 165 | administrativos unificados, no se puede diagnosticar la problemática en forma integral e interseccional. Se conoce que del total, solo en el 6,41% de los casos las víctimas alcanzaron los estudios superiores y para el 83,97% de las 312 víctimas su auto-identificación étnica era mestiza.
21 Información actualizada al 17 de marzo del 2019. 70 71
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica No se tiene información sobre la condición socio-
económica de las víctimas ni otros parámetros que permitan diagnosticar o establecer correlaciones claras para delimitar variables de esta problemática. En este contexto, si bien se entiende que el fenómeno de los femicidios puede afectar a cualquier mujer de cualquier condición económica y cualquier otra característica, lo que se busca enfatizar es que se desconoce el alcance de la violencia de género y que muchos de los registros administrativos —que se encuentran en fase | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 166 | bien se entiende que el fenómeno de los femicidios puede afectar a cualquier mujer de cualquier condición económica y cualquier otra característica, lo que se busca enfatizar es que se desconoce el alcance de la violencia de género y que muchos de los registros administrativos —que se encuentran en fase unificación a través del Registro Único de Víctimas de Violencia (RUV)— no contienen la información desagregada que permita identificar cada tipo de violencia en particular. Datos sobre la violencia política, gineco-obstétrica y simbólica son inexistentes y la información contenida sobre violencia física y psicológica todavía no se ajusta a protocolos específicos e interinstitucionales. De igual manera, sobre la violencia económica y patrimonial se desconoce su real grado de afectación o influencia dentro de esta problemática en el país y lo único que se puede emitir son estimaciones no basadas en datos fehacientes. Bajo este marco, el decrecimiento en el número | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 167 | específicos e interinstitucionales. De igual manera, sobre la violencia económica y patrimonial se desconoce su real grado de afectación o influencia dentro de esta problemática en el país y lo único que se puede emitir son estimaciones no basadas en datos fehacientes. Bajo este marco, el decrecimiento en el número de femicidios para 2018 no necesariamente refleja una reducción del continuum de violencia en la sociedad, ni surge por la transformación de las relaciones de poder de dominación y subordinación. Frente a esto, el Plan considera vital incrementar la coordinación entre las instituciones del Estado y la sociedad civil con el afán de seguir denunciando al femicidio como un tema de interés público que atañe a todas y todos. La articulación de los registros administrativos a través de un ente que centralice la información consignada por temas de violencia de género y dé seguimiento es sólo un parámetro sobre el | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 168 | el afán de seguir denunciando al femicidio como un tema de interés público que atañe a todas y todos. La articulación de los registros administrativos a través de un ente que centralice la información consignada por temas de violencia de género y dé seguimiento es sólo un parámetro sobre el cual se concentra este texto. Ejemplo de ello es contar con un ranking de distritos con incidentes de violencia de género que se elaboró a partir de delegaciones fiscales de la Policía Nacional, alertas del ECU 911 y el número de femicidios, tal como lo refleja la Ilustración 4.
Ilustración 4. Ranking de distritos con incidentes de violencia de género, 2014-2017.
Elaboración: Equipo de Investigación de la Subsecretaría de Evaluación y Estudios, Ministerio del Interior. No obstante, en conjunción con esto, es imperante posicionarse frente a cómo en la sociedad el femicidio todavía no es comprendido como el resultado de aquellas dinámicas | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 169 | Ranking de distritos con incidentes de violencia de género, 2014-2017.
Elaboración: Equipo de Investigación de la Subsecretaría de Evaluación y Estudios, Ministerio del Interior. No obstante, en conjunción con esto, es imperante posicionarse frente a cómo en la sociedad el femicidio todavía no es comprendido como el resultado de aquellas dinámicas vinculadas con un control inmediato, constante o extremo de las mujeres (Carcedo y Laclé 2011). Es de particular interés tener en cuenta que la sociedad ecuatoriana está atravesada por sesgos androcentristas que se reflejan en la forma como se construye la imagen y el imaginario de la mujer asesinada y su femicida y se termina por revictimizar a unas y exculpar a otros (Carcedo y Laclé, 2011). Las justificaciones de los asesinatos se pueden evidenciar en medios escritos en donde se construye al victimario como alguien llevado por los celos y todas aquellas concepciones que se configuran bajo la noción | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 170 | su femicida y se termina por revictimizar a unas y exculpar a otros (Carcedo y Laclé, 2011). Las justificaciones de los asesinatos se pueden evidenciar en medios escritos en donde se construye al victimario como alguien llevado por los celos y todas aquellas concepciones que se configuran bajo la noción de amor romántico. 72 73
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica Por su parte, sobre las víctimas se emiten juicios de valor en torno a su conducta, profesión, manera de actuar, vestir y demás. Es decir, los medios y una parte de la sociedad incitan a disculpar socialmente el crimen y atenuar el castigo (Zambrano, 2016). Justamente, en este marco, es común que en casos de violación o violencia en el ámbito intrafamiliar, se quiera responsabilizar a la mujer por los hechos cometidos por los hombres. Inclusive, se construyen discursos para | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 171 | de la sociedad incitan a disculpar socialmente el crimen y atenuar el castigo (Zambrano, 2016). Justamente, en este marco, es común que en casos de violación o violencia en el ámbito intrafamiliar, se quiera responsabilizar a la mujer por los hechos cometidos por los hombres. Inclusive, se construyen discursos para debilitar la simpatía pública por las víctimas de la violencia y así diluir la presión pública para priorizar la seguridad de las mujeres. Al afirmar que ellas habían vestido de tal forma o que se encontraban en tal lugar o que no habían cumplido con sus ‘responsabilidades’ en el hogar, por lo general se ha procurado inferir que los hechos que realmente causaron la violencia acaecen por culpa de la víctima y no del victimario. En este contexto, citando a Marina Lazreg (1990), en general, a las mujeres se les niega el acceso al lenguaje y en su lugar tienen | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 172 | por lo general se ha procurado inferir que los hechos que realmente causaron la violencia acaecen por culpa de la víctima y no del victimario. En este contexto, citando a Marina Lazreg (1990), en general, a las mujeres se les niega el acceso al lenguaje y en su lugar tienen que construir su identidad a partir del silencio. En este contexto, el Plan se antepone a dicha línea argumental de la sociedad patriarcal que en su extremo justifica la violencia contra las mujeres. De igual forma, el Plan toma como base que la tipificación de este delito, hasta el momento, ha devenido a una ‘dignificación’ de la muerte de las mujeres, más no a una transformación de las estructuras que permiten y sostienen la violencia a través de las relaciones de poder.
2.1.6 Mujeres privadas de la libertad
Desde el desarraigo de la ciudadanía, desde sus imposibilidades de asirse del Estado, desde | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 173 | ha devenido a una ‘dignificación’ de la muerte de las mujeres, más no a una transformación de las estructuras que permiten y sostienen la violencia a través de las relaciones de poder.
2.1.6 Mujeres privadas de la libertad
Desde el desarraigo de la ciudadanía, desde sus imposibilidades de asirse del Estado, desde sus oficios de reproducción social y sostenimiento de la vida en condiciones de fragilidad extrema, en su calidad de madres simbólicas, subterráneas de la nación, las pequeñas traficantes revelan la voz de una economía moral desde la exclusión. Plantear la dimensión política de la subjetividad implica el reconocimiento de que la delincuencia no es voluntad esencial sino uno de los elementos del ethos de posibilidades de la desherencia (Coba, 2015, p. 184). Finalmente, cuando se observa la realidad de los Centros de Rehabilitación Social del Ecuador y el eslabón en la cadena que enlaza el universo binario de lo ilegal, | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 174 | la delincuencia no es voluntad esencial sino uno de los elementos del ethos de posibilidades de la desherencia (Coba, 2015, p. 184). Finalmente, cuando se observa la realidad de los Centros de Rehabilitación Social del Ecuador y el eslabón en la cadena que enlaza el universo binario de lo ilegal, con el de lo legal, a través de la redención de la pena, la rehabilitación y el reingreso en la sociedad normalizada, es cuando podemos observar de manera fiel, el reflejo de las múltiples causas y niveles que hacen de la violencia de género el caso paradigmático que mide el estado real del cumplimiento de las responsabilidades estatales. En este sentido, al observar los tipos de delitos por los que se encuentran sentenciadas y privadas de su libertad las mujeres en el Ecuador, encontramos tres rasgos relevantes. El primero, el elevado porcentaje (69,29%) de mujeres encarceladas por delitos relacionados con | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 175 | estado real del cumplimiento de las responsabilidades estatales. En este sentido, al observar los tipos de delitos por los que se encuentran sentenciadas y privadas de su libertad las mujeres en el Ecuador, encontramos tres rasgos relevantes. El primero, el elevado porcentaje (69,29%) de mujeres encarceladas por delitos relacionados con el tráfico menor de estupefacientes y drogas (Gráfico 6); el segundo, la relación poco proporcional entre el número de años al que ellas han sido sentenciadas en conjunción con los delitos cometidos (Gráfico 7); finalmente, y de manera concormitante el alto porcentaje de mujeres ubicadas en rangos etarios entre los 18 a 37 años de edad (62,79%). Esto último, desde el punto de vista de la seguridad ciudadana, permite identificar el interés de las redes de narcotráfico y otras agrupaciones en captar personas jóvenes para ingresarlas a la cadena de producción de las economías ilegales y, a su vez, refleja | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 176 | 18 a 37 años de edad (62,79%). Esto último, desde el punto de vista de la seguridad ciudadana, permite identificar el interés de las redes de narcotráfico y otras agrupaciones en captar personas jóvenes para ingresarlas a la cadena de producción de las economías ilegales y, a su vez, refleja los campos en donde el Estado debe mejorar en cuanto a la protección y apertura de oportunidades para las mujeres que sobreviven en el quintil más pobre en la escala socioeconómica del país, que es de donde proviene la totalidad de mujeres privadas de su libertad (Almeda y Ballesteros, 2015a).
Gráfico 6. Mujeres privadas de libertad en Ecuador, por tipo de delito, Censo Penitenciario MJDHC, 2008.
Fuente: (Almeda y Ballesteros, 2015a, p. 36). 74 75
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Gráfico 7. Mujeres privadas de la libertad en Ecuador, por años de prisión | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 177 | 6. Mujeres privadas de libertad en Ecuador, por tipo de delito, Censo Penitenciario MJDHC, 2008.
Fuente: (Almeda y Ballesteros, 2015a, p. 36). 74 75
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Gráfico 7. Mujeres privadas de la libertad en Ecuador, por años de prisión a los que fue sentenciada, Censo Penitenciario MJDHC, 2008.
Fuente: (Almeda y Ballesteros, 2015a, p. 37)
Mujeres Privadas de libertad, por grupo etario
Gráfico 8. Mujeres privadas de libertad en Ecuador, desglose por edad, Censo Penitenciario MJDHC, 2008.
Fuente: (Almeda y Ballesteros, 2015a, p. 36) Pese a que los datos recolectados por el último censo penitenciario del 2008, llevado a cabo por el entonces Ministerio de Justicia, Derechos Humanos y Cultos (MJDHC), se encuentran desactualizados, un estudio más reciente de la Defensoría Pública en el año 2015, revela: la tendencia a la criminalización de la pobreza; la vulnerabilidad de la población femenina de escasos | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 178 | censo penitenciario del 2008, llevado a cabo por el entonces Ministerio de Justicia, Derechos Humanos y Cultos (MJDHC), se encuentran desactualizados, un estudio más reciente de la Defensoría Pública en el año 2015, revela: la tendencia a la criminalización de la pobreza; la vulnerabilidad de la población femenina de escasos recursos económicos a quedar desprotegida y a vivir en las calles; y, la no aplicación del mandato constitucional de atender las particularidades de las diferencias de género en todos los ámbitos de competencia del Estado (Almeda y Ballesteros, 2015a). De los datos del mismo estudio se puede deducir también los matices de una realidad de avances y retrocesos en materia de mejoras del sistema penitenciario en general y de atención a la población femenina en particular. Es así que en los últimos años el sistema penitenciario del país ha vivido transformaciones a través de la implementación de un modelo distinto, | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 179 | matices de una realidad de avances y retrocesos en materia de mejoras del sistema penitenciario en general y de atención a la población femenina en particular. Es así que en los últimos años el sistema penitenciario del país ha vivido transformaciones a través de la implementación de un modelo distinto, de la entrada en vigencia del nuevo Código Orgánico de la Función Judicial y de la consolidación de la Defensoría Pública. Por mandato constitucional, la Defensoría se hace responsable de garantizar el pleno e igual acceso a la justicia de las personas que por su estado de indefensión o por su condición económica, social o cultural no pueden contratar los servicios de defensa legal para la protección de sus derechos (Const., 2008, art. 191). Pese a estos avances, la falta de un enfoque de género y de estudios cualitativos que recojan las necesidades específicas de las mujeres privadas de libertad | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 180 | su condición económica, social o cultural no pueden contratar los servicios de defensa legal para la protección de sus derechos (Const., 2008, art. 191). Pese a estos avances, la falta de un enfoque de género y de estudios cualitativos que recojan las necesidades específicas de las mujeres privadas de libertad y las propuestas tanto de infraestructura cuanto de normativas del nuevo modelo penitenciario, se convierten en un obstáculo a ser enfrentado para combatir a una precarización socioeconómica de las personas sentenciadas y sus redes familiares, así como la profundización de fenómenos como el desarraigo, la desciudadanización, la soledad, el empobrecimiento del uso del tiempo, entre otros fenómenos (Almeda y Ballesteros, 2015b; Coba, 2015). El Plan considera vital, desde un enfoque de género en la seguridad ciudadana, observar cómo se configura esta profundización de la vulnerabilidad y la indefensión, ya no de una mujer recluida, sino de toda la red familiar | [
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] |
PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 181 | del uso del tiempo, entre otros fenómenos (Almeda y Ballesteros, 2015b; Coba, 2015). El Plan considera vital, desde un enfoque de género en la seguridad ciudadana, observar cómo se configura esta profundización de la vulnerabilidad y la indefensión, ya no de una mujer recluida, sino de toda la red familiar a ella asociada. Al tomar en cuenta que para el año 2015, el 93,9% de las mujeres privadas de libertad eran madres, y establecida su vinculación con oficios menores del mercado de drogas ilícitas y estupefacientes, es posible inferir la necesidad de nuevas lecturas que denoten la precarización socioeconómica y la capacidad del narcotráfico de permear el tejido social. En otras palabras, el Plan opta por separarse de las concepciones que reflejen una guerra entre buenos y malos para así poder articular los derechos de las más vulnerables.
35.00%
27.55%
30.63% 32.16%
7.90%
1.76%
30.00%
25.00%
20.00%
15.00%
10.00%
5.00%
0.00%
Menores de 18 años 18 a 27 años 28 a 37 años | [
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] |
PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 182 | la capacidad del narcotráfico de permear el tejido social. En otras palabras, el Plan opta por separarse de las concepciones que reflejen una guerra entre buenos y malos para así poder articular los derechos de las más vulnerables.
35.00%
27.55%
30.63% 32.16%
7.90%
1.76%
30.00%
25.00%
20.00%
15.00%
10.00%
5.00%
0.00%
Menores de 18 años 18 a 27 años 28 a 37 años 38 a 52 años 53 y más 76 77
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
2.2 Líneas sinérgicas del enfoque de género para el Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica, como Política Pública. Una política pública que, como el presente plan, propende a la realización de escenarios futuros en los que es plausible transformar y hasta reducir la causas estructurales de las múltiples violencias, encuentra en los desarrollos teóricos y metodológicos del conocimiento interseccional desarrollados por la epistemología de tendencia feminista, amplias posibilidades para alimentar la aplicación estratégica de | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 183 | presente plan, propende a la realización de escenarios futuros en los que es plausible transformar y hasta reducir la causas estructurales de las múltiples violencias, encuentra en los desarrollos teóricos y metodológicos del conocimiento interseccional desarrollados por la epistemología de tendencia feminista, amplias posibilidades para alimentar la aplicación estratégica de los enfoques propuestos por este Plan, tanto en espacios territoriales multisituados, cuanto en la configuración de la red de apoyo interinstitucional que se requiere para llevar a cabo el plan. La interseccionalidad es la posibilidad de establecer prácticas sinérgicas vinculadas a realidades contextualizadas, que permitan el uso razonado de las herramientas jurídicas, normativas y de infraestructura de las instituciones vinculadas con el Plan. La interseccionalidad se refiere a encontrar puntos en común entre las diversas herramientas mencionadas, con la finalidad de establecer redes de coordinación que permitan el fortalecimiento de la institucionalidad estatal, ya no solamente desde el punto de | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 184 | herramientas jurídicas, normativas y de infraestructura de las instituciones vinculadas con el Plan. La interseccionalidad se refiere a encontrar puntos en común entre las diversas herramientas mencionadas, con la finalidad de establecer redes de coordinación que permitan el fortalecimiento de la institucionalidad estatal, ya no solamente desde el punto de vista de las teorías estatales del Republicanismo Democrático, sino desde la real capacidad de empoderamiento de los habitantes de sus derechos a través de su acceso efectivo a los mismos. Activar la interseccionalidad como base de los procesos de gestión pública que se requieren para la incorporación del enfoque de género, pluralidades étnicas, intergeneracionalidad, diversidad y atención especial a personas con discapacidades, implica reconocer los espacios propios de cada institución, respetando las respectivas competencias, al mismo tiempo que también se activa la colaboración en las proporciones en que sean necesarias, para la atención prioritaria de los grupos vulnerables. A partir | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 185 | género, pluralidades étnicas, intergeneracionalidad, diversidad y atención especial a personas con discapacidades, implica reconocer los espacios propios de cada institución, respetando las respectivas competencias, al mismo tiempo que también se activa la colaboración en las proporciones en que sean necesarias, para la atención prioritaria de los grupos vulnerables. A partir de la incorporación de las prácticas de interseccionalidad, se esperaría contribuir también a la generación de conocimiento por parte del Estado en múltiples materias, como jurisprudencia del pluralismo jurídico; creación de equipos técnicos formados en metodologías cualitativas; aportes en materia del cumplimiento de la Constitución; bases de datos cuantitativas para seguimiento de casos coyunturales, con miras a prevenir el cometimiento de abusos por parte de los prestatarios/as de servicios públicos, entre otras temáticas. En cuanto al Plan de Seguridad Ciudadana y Convivencia Social Pacífica, la aplicación de la interseccionalidad en las diversas metodologías del Plan, implica reforzar las áreas de | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 186 | seguimiento de casos coyunturales, con miras a prevenir el cometimiento de abusos por parte de los prestatarios/as de servicios públicos, entre otras temáticas. En cuanto al Plan de Seguridad Ciudadana y Convivencia Social Pacífica, la aplicación de la interseccionalidad en las diversas metodologías del Plan, implica reforzar las áreas de capacitación institucional; la utilización y readecuación de infraestructura de las Unidades de Policía Comunitaria (UPC), Tenencias Políticas, Gobernaciones; la aplicación de resultados de proyectos pilotos exitosos, como el Sistema de Alertas Tempranas para prevención de femicidios y el Registro Único de Violencia 22; la inversión en los medios técnicos y tecnológicos que sean necesarios para crear repositorios eficientes de información interinstitucional, alimentados por metodologías contextuales; la creación de los mecanismos de coordinación interinstitucional que sean necesarios para el tratamiento de problemáticas estructurales relacionadas con los múltiples escenarios de violencia, entre otros.
22 El proyecto piloto para la implementación del Sistema de | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 187 | tecnológicos que sean necesarios para crear repositorios eficientes de información interinstitucional, alimentados por metodologías contextuales; la creación de los mecanismos de coordinación interinstitucional que sean necesarios para el tratamiento de problemáticas estructurales relacionadas con los múltiples escenarios de violencia, entre otros.
22 El proyecto piloto para la implementación del Sistema de Alertas Tempranas para Femicidios se realizó en el Distrito Quitumbe (en el Distrito Metropolitano de Quito), el cual, a la fecha, ha reducido de manera importante los casos de femicidio. 78 79
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Foto producida para Boletín
Sector Iñaquito, Quito
26 de julio de 2016 80 81
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
3 Enfoque Intergeneracional Uno de los desafíos más importantes de los Estados Nación Democráticos en el presente siglo ha sido la atención de las necesidades diversas de la | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 188 | Iñaquito, Quito
26 de julio de 2016 80 81
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
3 Enfoque Intergeneracional Uno de los desafíos más importantes de los Estados Nación Democráticos en el presente siglo ha sido la atención de las necesidades diversas de la población vinculadas al ciclo de la vida. En el Ecuador el reconocimiento de estas especificidades ha sido fruto de un proceso marcado por la lucha de diversos movimientos sociales, así como por la instauración de cambios y ajustes institucionales que, principalmente desde hace dos décadas, han procurado comprender el significado e incidencia de las personas ubicadas en los distintos grupos de edad. En el contexto de estos esfuerzos estatales por ofrecer políticas públicas con forma y fondo que permitan el cumplimiento de las secciones primera y quinta del capítulo tercero de la Constitución de la República 2008, el Plan Nacional | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 189 | e incidencia de las personas ubicadas en los distintos grupos de edad. En el contexto de estos esfuerzos estatales por ofrecer políticas públicas con forma y fondo que permitan el cumplimiento de las secciones primera y quinta del capítulo tercero de la Constitución de la República 2008, el Plan Nacional de Seguridad Ciudadana y Convivencia Pacífica, enfatiza en el carácter de atención prioritaria enfocada hacia las personas adultas mayores, niñas, niños y adolescentes, prestando especial protección a las personas en condición de doble vulnerabilidad, conforme lo establece el Art. 35 de la Constitución de la República. Cabe entonces contextualizar los avances normativos e institucionales que se han desarrollado en torno a lo que el Estado ecuatoriano ha adoptado como la igualdad intergeneracional, así como las problemáticas relacionadas con la violencia vinculada a los diversos grupos de edad, con miras a concretar una incidencia efectiva del Plan de Seguridad Ciudadana y | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 190 | avances normativos e institucionales que se han desarrollado en torno a lo que el Estado ecuatoriano ha adoptado como la igualdad intergeneracional, así como las problemáticas relacionadas con la violencia vinculada a los diversos grupos de edad, con miras a concretar una incidencia efectiva del Plan de Seguridad Ciudadana y Convivencia Social Pacífica en estos grupos ciudadanos.
3.1 Antecedentes normativos e institucionales En el contexto ecuatoriano, la organización política e institucional de la sociedad ha estado marcada por la influencia de concepciones adultocéntricas que han justificado la presencia de procesos de dominación, exclusión y manifestaciones de violencia hacia los niños, niñas y adolescentes. Estas concepciones ampliamente cuestionadas, llevaron a que en el marco del reconocimiento de los derechos de los niños, niñas y adolescentes23 se revise el rol de los adultos, y de sus límites en cuanto a la autoridad, derechos y responsabilidades que detentan frente a los niños, niñas y | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 191 | y adolescentes. Estas concepciones ampliamente cuestionadas, llevaron a que en el marco del reconocimiento de los derechos de los niños, niñas y adolescentes23 se revise el rol de los adultos, y de sus límites en cuanto a la autoridad, derechos y responsabilidades que detentan frente a los niños, niñas y adolescentes. En el contexto ecuatoriano, con los procesos de reforma constitucional que se gestaron en 1998, por primera vez se reconoce derechos a la niñez y la adolescencia. En este sentido, los artículos contenidos en dicha Constitución de la República referentes a niños, niñas y adolescentes adoptan los principios de la Convención sobre los Derechos del Niño, derechos específicos y formas de proteger esos derechos24. No obstante, esta adopción de los principios y derechos de la Convención también fue objeto de diversas críticas y discusiones por lo que en 2003 se establece el Código de la Niñez y la Adolescencia | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 192 | la Convención sobre los Derechos del Niño, derechos específicos y formas de proteger esos derechos24. No obstante, esta adopción de los principios y derechos de la Convención también fue objeto de diversas críticas y discusiones por lo que en 2003 se establece el Código de la Niñez y la Adolescencia para subsanar la incompatibilidad de la reforma del Código de Menores de 199225 con los principios y derechos reconocidos en la Convención. Con este propósito, el nuevo Código de la Niñez y la Adolescencia, además de establecer un nuevo paradigma para la compresión de la niñez y la adolescencia, favoreció el desarrollo normativo de una institucionalidad encargada de promover y garantizar los derechos que se desarrollan en la Constitución (Campaña, 2004).
23 La Convención sobre los Derechos del Niño (CDN) firmada en 1989, instaló la idea de que los niños, niñas y adolescentes son sujetos plenos de derecho y no “objetos” | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 193 | el desarrollo normativo de una institucionalidad encargada de promover y garantizar los derechos que se desarrollan en la Constitución (Campaña, 2004).
23 La Convención sobre los Derechos del Niño (CDN) firmada en 1989, instaló la idea de que los niños, niñas y adolescentes son sujetos plenos de derecho y no “objetos” sobre los cuales los adultos ejercen sus derechos.
24 Específicamente los artículos, 47,48 y 49 de la Constitución de la República, 1998. 25 De acuerdo a Farith Campaña, el Código de Menores de 1992 explícitamente establece“Que el Ecuador ha suscrito y ratificado la Convención sobre los Derechos del Niño, la cual es Ley de la República y, por tanto, lo obliga como Estado parte a adoptar medidas para hacer efectivos los derechos allí reconocidos. Que el Código de Menores, dado el 2 de junio de 1976, mantiene una estructura y visión incompatibles con los principios internacionales que trae la Convención sobre | [
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PLAN-NACIONAL-DE-SEGURIDAD-CIUDADANA-Y-CONVIVENCIA-SOCIAL-PACÍFICA-2019-2030-1_compressed.pdf - Segment 194 | es Ley de la República y, por tanto, lo obliga como Estado parte a adoptar medidas para hacer efectivos los derechos allí reconocidos. Que el Código de Menores, dado el 2 de junio de 1976, mantiene una estructura y visión incompatibles con los principios internacionales que trae la Convención sobre los Derechos del Niño” (Campaña, 2004, p. 2). 82 83
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica
Plan Nacional de Seguridad Ciudadana y Convivencia Social Pacífica En este sentido, el Código de la Niñez y Adolescencia, reconoce los derechos de los niños, niñas y adolescentes y los clasifica en cuatro grupos:
• Derechos de Supervivencia
• Derechos de Desarrollo
• Derechos de Protección
• Derechos de Participación De la misma manera, la Constitución de la República de 1998 estableció el compromiso estatal de adoptar las medidas necesarias para garantizar el cumplimiento de los derechos reconocidos a las personas de la tercera edad. Este reconocimiento estaba | [
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0.062040090560913086,
0.00442325696349144,
-0.06765833497047424,
0.04725034162402153,
-0.012947800569236279,
-0.07323063164949417,
-0.0217069610953331,
-0.011735466308891773,
-0.0234646238386631,
-0.01780538447201252,
-0.0023250593803822994,
-0.049019403755664825
] |
Subsets and Splits