Shadow Councils

Background

Palestinian Working Woman Society for Development (PWWSD) launched the innovative idea of forming Shadow Councils in 1998. Consisting of women leaders and activists, Shadow Councils were one of the incubators dedicated to increasing women’s civic engagement and participation in the Decision-Making Process. The idea developed gradually, and following the first local elections in 2004/2005, the shadow councils were better institutionalized and served two main purposes. Firstly, they supported women elected to local authorities, and secondly, they were involved in monitoring the performance of local authorities to ensure engendering their work and women’s needs and priorities are taken into account within the local 

The Model

Each Shadow Council consists of a small group of volunteer women selected through a participatory community process. Members receive continuous training in leadership, local governance, advocacy, gender equality, communication, and civic participation. This combination of capacity building and community engagement enables them to participate confidently in local development discussions and to build constructive relationships with municipal councils, civil society organizations, and other community actors.

The councils work directly with women in their communities to identify local priorities and translate these into practical recommendations for local authorities. Their work covers a broad range of issues, including public services, infrastructure, water and sanitation, education, health, economic empowerment, and protection from gender-based violence. In addition to advocacy, they organize awareness activities, community dialogues, and small-scale initiatives that respond to local needs while strengthening women's visibility in public life.

Contribution to Local Governance

One of the main strengths of the Shadow Council model is its ability to connect grassroots women with formal governance structures. Through regular dialogue with municipalities and elected council members, Shadow Councils promote more inclusive planning processes and encourage local authorities to consider women's priorities when developing policies and public services.

Beyond influencing local planning, the initiative has become an important pathway for developing future women leaders. Many former members have gone on to participate in local elections and assume leadership positions within municipal councils and civil society organizations. This gradual transition from community engagement to formal political participation demonstrates the long-term value of the model in strengthening women's leadership.

The initiative has also contributed to building stronger networks among women across different communities. These networks facilitate knowledge sharing, collective advocacy, and cooperation around common development priorities, creating a broader movement that supports gender-responsive local governance.

Challenges and Future Outlook

Despite its achievements, the sustainability of the model remains closely linked to continued institutional and financial support. Since Shadow Councils operate primarily through volunteer efforts, maintaining long-term engagement and expanding their activities requires adequate resources and stronger institutional recognition.

Social norms continue to present challenges in some communities where women's public participation remains limited. Nevertheless, experience has shown that sustained dialogue, community outreach, and collaboration with local leaders can gradually increase acceptance and create more space for women's leadership.

The humanitarian situation in the Gaza Strip has also required the initiative to adapt its role. While continuing to advocate for women's participation, Shadow Councils have increasingly supported emergency response efforts by ensuring that women's needs are reflected in humanitarian interventions and community recovery initiatives.

Looking ahead, PWWSD aims to institutionalize the Shadow Council model further while preserving its grassroots character. Future priorities include strengthening partnerships with local authorities, expanding opportunities for young women, enhancing digital engagement and advocacy, and ensuring that Shadow Councils continue to serve as an effective bridge between communities and local decision-makers. A Forum for the Members of the Shadow Councils in the West Bank was formed to serve as a coordination mechanism between the various councils.

Till mid-2026, 117 councils were formed in the West Bank and 5 in the Gaza Strip, while the work is still going on for expansion.