A Global Study on the

Implementation of United Nations Security Council resolution 1325

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A Global Study on the
Implementation of United Nations Security Council resolution 1325
4

FOREWORD
Ban Ki-moon
United Nations Secretary-General

Fifteen years ago, Security Council resolution 1325 this priority with its emphasis on gender equality and
reaffirmed the importance of the equal participation respect for the human rights of all.
and full involvement of women in all efforts for
maintaining and promoting peace and security. In the The Global Study on the implementation of resolution
years since, it has buttressed this decision by adopting 1325 is an important part of the United Nations
six further resolutions on women, peace and security. global agenda for change to better serve the world’s
most vulnerable people. As noted by the High-
I am personally committed to implementing these Level Independent Panel on United Nations Peace
resolutions. I have highlighted women’s leadership Operations and the Advisory Group of Experts for the
in peacebuilding as a priority and appointed an 2015 Review of the United Nations Peacebuilding
unprecedented number of women leaders in the Architecture, changes in conflict may be outpacing the
United Nations. It is essential to ensure that the UN ability of United Nations peace operations to respond
is fit for purpose when it comes to women, peace and effectively. Any reforms must include gender equality
security, and that we become a model for all actors to and women’s leadership as central ingredients.
emulate.
The Global Study offers new evidence, ideas and good
Women’s leadership and the protection of women’s practices that can help generate new commitments
rights should always be at the forefront—and never and implement old ones. Let us not squander the
an afterthought—in promoting international peace potential dividends of gender equality for peace and
and security. In an era when armed extremist groups development. Empowering women to end and prevent
place the subordination of women at the top of their conflicts is essential and urgent.
agenda, our response should be unwavering support
for empowering girls and women. The newly adopted I commend this Study. It is a call to action that all
2030 Agenda for Sustainable Development reflects should heed.
 5

FOREWORD
Phumzile Mlambo-Ngcuka
United Nations Under-Secretary-General and Executive Director of UN Women

Resolution 1325 was one of the crowning achievements assistance more effective, strengthens the protection
of the global women’s movement and one of the most efforts of our peacekeepers, contributes to the
inspired decisions of the United Nations Security Council. conclusion of peace talks and the achievement of
The recognition that peace is inextricably linked with sustainable peace, accelerates economic recovery,
gender equality and women’s leadership was a radical and helps counter violent extremism. This Study, and
step for the highest body tasked with the maintenance a growing evidence base, make the implementation of
of international peace and security. Turning the Security resolution 1325 even more urgent and needed.
Council’s words into actions and real change has been
a central pillar of UN Women’s work since the entity was The Study adds two more important elements that will
created, and the driving passion of many other actors help us push this agenda forward. It compiles multiple
since the resolution was adopted as a global norm in examples of good practice that should become the
2000. standard requirement for all. In addition, it takes a hard
look at implementation and enforcement, and the missing
And yet there remains a crippling gap between the incentives and accountability measures that should
ambition of our commitments and actual political and nudge all actors into complying with these norms and
financial support. We struggle to bridge the declared living up to their promises. What emerges from these
intent of international policymaking and the reality of ideas is an explicit and ambitious roadmap for the way
domestic action in the many corners of the world where forward on women, peace and security. We have an
resolution 1325 is most needed. enormous responsibility to ensure that the normative
framework spurred by resolution 1325 is not just given
UN Women was privileged to be tasked by the Secretary- periodic visibility and attention, but that it lies at the heart
General with helping to prepare this Global Study. We of the UN’s work on peace and security.
are grateful to its independent lead author, Ms. Radhika
Coomaraswamy, her advisory board, and all the member This year, we celebrate 15 years of resolution 1325
States, academics, non-governmental organizations, and and 20 years since the Fourth World Conference on
UN bodies that supported this effort. The preparation Women in Beijing. We have a new momentum towards
process involved consultations all over the world, the the recognition of gender equality and women’s
provision of ideas as well as technical inputs and empowerment at the heart of sustainable progress for
information, and commentary on and review of drafts. all, with the adoption of the 2030 Agenda for Sustainable
We hope that this Study will stimulate discussion and be Development. Many actors are coming to the table with
followed by concrete commitments, resources, political new energy, new ideas, and new commitments, and we
will, policy shifts, and accountability at all levels. have seen other policy reviews, from our development
goals to our peace operations and our peacebuilding
This Study reinforces the Security Council’s original architecture, emphasize the centrality of gender equality.
crucial recognition of the power of engaging women This is an important opportunity to shape the way in
in peace with compelling proof. It shows that women’s which we address our global challenges in the next
participation and inclusion makes humanitarian decades. Let us make the most of it.
6

ACKNOWLEDGEMENTS
This Global Study on the implementation of Security Santiago, Anna-Lena Schluchter, Aisling Swaine,
Council resolution 1325 (2000) was requested by the Sarah Taylor, Simon Tordjman, Jacqui True, Patrick
Secretary General of the United Nations in response Vinck, Organisation for Economic Co-operation
to the Security Council invitation in resolution 2122 and Development (OECD) Development Assistance
(2013). Committee Network on Gender Equality (DAC
GENDERNET), Small Arms Survey (Mihaela Racovita,
Lead Author: Radhika Coomaraswamy Jovana Carapic).

Members of the High-Level Advisory Group Design and Layout: blossoming.it

for the Global Study: Major General Patrick
Cammaert (Netherlands), Ambassador Anwarul With special thanks to:
Chowdhury (Bangladesh), Ms. Liliana Andrea Silva
Bello (Colombia), Ms. Sharon Bhagwan Rolls (Fiji), The United Nations Inter-Agency Standing
Ms. Leymah Gbowee (Liberia), Ms. Julia Kharashvili Committee on Women, Peace and Security:
(Georgia), Mr. Youssef Mahmoud (Tunisia), Ms. Luz Development Operations Coordination Office
Mendez (Guatemala), Dr. Alaa Murabit (Canada/ (DOCO), Department of Political Affairs (DPA),
Libya), Ms. Ruth Ochieng (Uganda), Ms. Pramila Department of Public Information (DPI), Department
Patten (Mauritius), Ms. Bandana Rana (Nepal), Ms. of Peacekeeping Operations (DPKO), Department
Madeleine Rees (United Kingdom), Ms. Elisabeth of Field Support (DFS), Food and Agriculture
Rehn (Finland), Ms. Igballe Rogova (Kosovo), and Organization (FAO), International Organization for
Ms. Yasmin Sooka (South Africa). Ms. Maha Abu Migration (IOM), Office for the Coordination of
Dayyeh (State of Palestine) served as a member of Humanitarian Affairs (OCHA), Office of the High
the High-Level Advisory Group until her passing on 9 Commissioner for Human Rights (OHCHR), United
January 2015. Nations Office for Disarmament Affairs (UNODA),
Office of the Special Advisor on the Prevention of
Global Study Secretariat: UN Women, Peace and Genocide, Office of the Special Representative of the
Security Section Secretary-General on Children and Armed Conflict
(OSRSG-CAAC), Office of the Special Representative
Commissioned Research for the Global Study: of the Secretary-General on Sexual Violence in
Conflict (OSRSG-SVC), Peacebuilding Support Office
Anthony Amicelle, Christine Bell, Malika Bhandarkar, (PBSO), United Nations Development Programme
Virginia Bouvier, Jovana Carapic, Steven Dixon, Anne (UNDP), United Nations Educational, Scientific and
Marie Goetz, Roshmi Goswami, Jayne Huckerby, Cultural Organization (UNESCO), United Nations
Valerie Hudson, Sarah Macharia/WACC, Sarah Population Fund (UNFPA), United Nations Refugee
Maguire, Ereshnee Naidu, Catherine O’Rourke, Agency (UNHCR), United Nations Children’s Fund
Thania Paffenholz, Phuong N. Pham, Mihaela (UNICEF), United Nations Institute for Training
Racovita, Amanda Roberts, Nick Ross, Irene M. and Research (UNITAR), United Nations Entity for
 7

Gender Equality and the Empowerment of Women The Global Network of Women Peacebuilders
(UN WOMEN), and the World Food Programme (GNWP), Cordaid, the International Civil society
(WFP). Observers include: NGO Working Group on Action Network (ICAN) and the NGO Working
Women, Peace and Security, and the Organisation for Group on Women, Peace and Security (NGOWG);
Economic Co-operation and Development (OECD). for the administration of a global civil society
survey and focus groups on women, peace and
The Group of Friends of the Global Study, co- security. The full report of the survey and focus
chaired by Canada, Chile, Japan, Namibia, Ireland. group results is reported in: “Global Report:
Civil Society Organization (CSO) Survey for the
All Member States, UN agencies and bodies, Global Study on Women, Peace and Security: CSO
regional and international organizations who Perspectives on UNSCR 1325 Implementation 15
contributed to the Global Study. Years after Adoption” (Global Network of Women
Peacebuilders, Cordaid, NGO Working Group on
Participants to the regional consultations and Women, Peace and Security, International Civil
country visits for the Global Study, held between Society Action Network, July 2015).
January and June 2015: NATO consultation
(Brussels, Belgium), European Union Member States Online Contributors: Forty-seven (47) civil society
consultation (Brussels, Belgium), European civil organizations, academics and research institutes
society consultation (Brussels, Belgium), African provided inputs via a public website. Their inputs are
Union Member States consultation (Addis Ababa, summarized in Through the Lens of Civil Society:
Ethiopia); African civil society consultation (Addis Summary Report of the Public Submissions to the
Ababa, Ethiopia); Nepal country visit; Asia-Pacific Global Study published by PeaceWomen. The report
regional civil society consultation (Kathmandu, can be found at http://www.peacewomen.org/
Nepal), Balkans regional civil society consultation security-council/2015-high-level-review/resources.
(Tirana, Albania), Bosnia-Herzegovina country visit;
OSCE consultation (Vilnius, Lithuania); general civil Financial support
society consultation (WILPF 100-year Anniversary, UN Women would like to thank the governments
The Hague, The Netherlands); Latin America of Australia, Austria, Estonia, Finland, Germany,
regional civil society consultation (Guatemala City, Ireland, Netherlands, Norway, Qatar, the United Arab
Guatemala); Horn of Africa regional civil society Emirates and the United Kingdom for their financial
consultation (Kampala, Uganda); Guatemala civil support for the preparation and production of this
society consultation (Guatemala City, Guatemala); Global Study.
El Salvador civil society consultation (San Salvador,
Salvador); Mexico civil society consultation (Chiapas, With particular thanks to Dr Phumzile Mlambo-Ngcuka,
Mexico); Middle East/North Africa regional civil Under-Secretary-General and Executive Director of UN
society consultation (Cairo, Egypt); Pacific Islands Women and UN Women senior management as well
regional civil society consultation (Suva, Fiji). as the Executive Office of the Secretary-General.
8

CONTENTS

00 04
4 | Foreword 64 | Protecting and Promoting
the Rights and Leadership
5 | Foreword
of Women and Girls in
6 | Acknowledgements Humanitarian Settings
10 | Acronyms
13 | Executive Summary

01 05
18 | Setting the Context 98 | Toward an Era of
Transformative Justice

02 06
26 | The Normative 130 | Keeping the Peace in an
Framework for Women, Increasingly Militarized World
Peace and Security

03 07
36 | Women’s Participation 164 | Building Inclusive and
and a Better Peaceful Societies in the
Understanding Aftermath of Conflict
of the Political
 9

08 12
190 | Preventing Conflict: 346 | Linkages between Human
The Origins of the Rights Mechanisms and
Women, Peace and the Security Council
Security Agenda Resolutions on Women,
Peace and Security:
Opportunities for Enhanced
Accountability for
Implementation

09 13
220 | Countering Violent 368 | Financing of the Women,
Extremism While Peace and Security
Respecting the Rights Agenda
and Autonomy of
Women and their
Communities

10 14
234 | Key Actors for Women, 392 | General Guidelines and
Peace and Security: Recommendations
Monitoring and
Accountability

11
322 | Women, Peace and 398 | Annex – Full List of Technical
Security and the UN Recommendations
Security Council
10

ACRONYMS
AU African Union
CAR Central African Republic
CEDAW Convention on the Elimination of all Forms of Discrimination Against Women
COI Commissions of Inquiry
CRC Convention on the Rights of the Child
CRSV Conflict-Related Sexual Violence
CSO Civil Society Organization
DAC Development Assistance Committee
DDR Disarmament, Demobilization and Reintegration
DFS Department of Field Support
DPA Department of Political Affairs
DPKO Department of Peacekeeping Operations
DPRK Democratic People's Republic of Korea
DRC Democratic Republic of Congo
EEAS European External Action Service
EU European Union
FAO Food and Agricultural Organization
FARC Fuerzas Armadas Revolucionarias de Colombia (The Revolutionary Armed Forces of Colombia)
FAS Femmes Africa Solidarité
GA General Assembly
GAI Global Acceleration Instrument on women, peace and security and humanitarian engagement
GCTF Global Counter-Terrorism Forum
GNI Gross National Income
GNWP Global Network of Women Peacebuilders
HRC Human Rights Commission
HSC Human Security Collective
IASC Inter-Agency Standing Committee
ICAN International Civil Society Action Network
ICC International Criminal Court
ICGLR International Conference on the Great Lakes Region
ICT Information and Communication Technology
ICTR International Criminal Tribunal for Rwanda
ICTY International Criminal Tribunal for the former Yugoslavia
IDP Internally Displaced Person
IGAD Intergovernmental Authority on Development
IPI International Peace Institute
ISFs Integrated Strategic Frameworks
 11

ISIS Islamic State of Iraq and Syria

Isis-WICCE Women's International Cross Cultural Exchange
JRR Justice Rapid Response
LPC Local Peace Committee
MARA Monitoring, Analysis and Reporting Arrangements
MENA Middle East and North Africa
MILF Moro Islamic Liberation Front
MINUSCA UN Multidimensional Integrated Stabilization Mission in the Central African Republic
MINUSMA UN Multidimensional Integrated Stabilization Mission in Mali
MINUSTAH United Nations Stabilization Mission in Haiti
MONUSCO United Nations Organization Stabilization Mission in the Democratic Republic of the Congo
MPTF Multi-Partner Trust Fund
MSF Médecins Sans Frontières
NAP National Action Plan
NATO North Atlantic Treaty Organization
NDF National Democratic Front
NGO Nongovernmental Organization
NHRIs National Human Rights Institutions
ODIHR OSCE Office for Democratic Institutions and Human Rights
OECD Organization for Economic Cooperation and Development
OHCHR United Nations Office of the High Commissioner for Human Rights
OSCE Organization for Security and Co-operation in Europe
PBSO Peacebuilding Support Office
PDAs Peace and Development Advisors
PRIO Peace Research Institute Oslo
PEP Post-exposure Prophylaxis
PHR Physicians for Human Rights
PIF Pacific Islands Forum
PNG Papua New Guinea
POC Protection of Civilians
RAP Regional Action Plan
SADC Southern African Development Community
SEA Sexual Exploitation and Abuse
SGBV Sexual and Gender-based Violence
SHaSA Strategy for the Harmonization of Statistics in Africa
SRSG-SVC Special Representative of the Secretary-General on Sexual Violence in Conflict
SLA Sudanese Liberation Army
12

SRF Strategic Results Framework

SRSG Special Representative of the Secretary General
SSR Security Sector Reform
UPR Universal Periodic Review
UN-INSTRAW UN International Research and Training Institute for the Advancement of Women
UN-SWAP UN System-Wide Action Plan on Gender Equality and the Empowerment of Women
UNAIDS Joint United Nations Programme on HIV/AIDS
UNAMID United Nations–African Union Mission in Darfur
UNCT United Nations Country Team
UNDAF United Nations Development Assistance Framework
UNDOF United Nations Disengagement Observer Force
UNDP United Nations Development Programme
UNEP United Nations Environment Programme
UNESCO United Nations Educational, Scientific and Cultural Organization
UNFPA United Nations Population Fund
UNHCR United Nations High Commissioner for Refugees
UNICEF United Nations Children's Fund
UNIFIL United Nations Interim Force In Lebanon
UNMAS United Nations Mine Action Service
UNMEER United Nations Mission for Ebola Emergency Response
UNMIK United Nations Interim Administration Mission in Kosovo
UNMIL United Nations Mission in Liberia
UNMISS United Nations Mission in South Sudan
UNMIT United Nations Integrated Mission in Timor-Leste
UNOCI United Nations Operation in Côte d'Ivoire
UNOTIL United Nations Office in Timor- Leste
UNPBF United Nations Peacebuilding Fund
UNPOL United Nations Police Force
UNSC United Nations Security Council
UNSCR United Nations Security Council Resolution
UNTAET United Nations Transitional Administration in East Timor
WFP World Food Program
WHRD Women's Human Rights Defender
WPP Women Peacemakers Program
WPS Women, Peace and Security
WRC Women's Refugee Commission
 13

EXECUTIVE SUMMARY
To mark the fifteenth anniversary of the adoption of by ‘justice’ has also transformed. This ever-changing
resolution 1325 (2000), the Security Council adopted and ever evolving reality poses major dilemmas for the
resolution 2122 (2013) inviting the Secretary-General four pillars of Security Council resolution 1325 and
to conduct a review with regard to the implementation its subsequent resolutions: the pillars of prevention,
of resolution 1325. The review was to identify the protection, participation, and peacebuilding and
gaps and challenges, as well as emerging trends recovery. It is in this context of a changing world and
and priorities for action. It requested the Secretary- shifting dynamics for peace and security, that the
General to thereafter submit a report based on the Global Study undertakes a fifteen-year review of the
findings of this review to the Security Council in implementation of resolution 1325.
October 2015. The Secretary-General requested
Radhika Coomaraswamy to be the lead author of the Although the world has changed, there have been a
study on the recommendation of the United Nations number of successes in implementation over the past
Standing Committee on Women, Peace and Security. fifteen years.
UN Women was requested to be the secretariat
of the study. A High-Level Advisory Group was • The international community has adopted a
constituted from all regions of the world to assist Ms. comprehensive normative framework with regard
Coomaraswamy. to sexual violence in conflict. The Rome Statute
of the International Criminal Court that came
It was decided that Ms. Coomaraswamy would lead into force in 2002 outlines a comprehensive
a comprehensive study with regard to developments list of crimes against women. Since the 1990s,
in the fifteen-year period since resolution 1325 was international courts and tribunals have developed
adopted. Ms. Coomaraswamy and the members of sophisticated jurisprudence with regard to these
her High-Level Advisory Group held consultations crimes. The Security Council has also acted
with a diverse group of stakeholders, in all regions decisively—a Special Representative on Sexual
of the world. In addition, UN Women commissioned Violence in Conflict has been appointed by the
research papers for the Global Study, which will be Secretary-General to report to the Council, and
published separately in an accompanying volume. a monitoring and reporting mechanism has been
More than 60 Member States, international and established at the local level to report on sexual
regional organizations responded to requests for violence against women and girls in conflict
submissions to the Global Study and 47 civil society situations on the agenda of the Security Council.
organizations, academics and research institutes Commissions of inquiry and fact-finding missions
provided inputs via a public website. A survey of civil set up by the Human Rights Council increasingly
society organizations generated responses from 317 have a mandate to investigate sexual and gender-
organizations in 71 countries. based violence, and a roster of experts exists
within the international community to support the
The world has changed since the Security Council investigation of these international crimes.
adopted resolution 1325 in October 2000. The nature
of conflict in certain regions is qualitatively different, • The international community and national
the content of what we mean by ‘peace’ and ‘security’ governments have begun to understand the
is evolving, and the understanding of what we mean importance of national and communal healing
14

as a part of holistic justice and accountability others claim that there has been no significant
processes, including truth seeking, reconciliation, difference for women on the ground. More
memorialization and reparations for women victims research is needed to validate these claims and
of violations. respond to the justice needs of victims.

• The Committee on the Elimination of • Though the participation of women in formal

Discrimination against Women adopted General peace processes has been inching up, a study
Recommendation 30 on women in conflict of 31 major peace processes between 1992
prevention, conflict and post-conflict situations, and 2011 revealed that only nine per cent of
which provides detailed guidance to Member negotiators were women—a negligible figure given
States on issues related to women, peace and the issues that are involved. Only three per cent
security and the criteria for accountability, and of the military in UN missions are women, and
makes clear that implementing resolution 1325 is the majority of these are employed as support
the responsibility of every Member State. staff. These two areas of peacemaking and
peacekeeping are among the most persistently
• Between 1990 and 2000, when the Security challenging for ensuring women’s equal and
Council adopted 1325, just 11 per cent of peace meaningful participation.
agreements signed included a reference to women.
Since the adoption of resolution 1325, 27 per cent • Despite a great deal of effort by the international
of peace agreements have referenced women. Of community to encourage Member States to have
the six agreements resulting from peace talks or inclusive processes to formulate national action
national dialogue processes supported by the UN plans on women, peace and security, only 54
in 2014, 67 per cent contained references relevant countries have formulated such action plans.
to women, peace and security. Many of these plans are focused on process, with
neither mechanisms for accountability nor budgets
• The number of senior women leaders within the available for real implementation.
UN has been on the rise, from special envoys
of the Secretary-General, to the first female • The rise of violent extremism in many parts of the
commander of a peacekeeping mission. world has led to a real threat to the lives of women
as well as to a cycle of militarization where women
• Bilateral aid on gender equality to fragile States are often in an ambivalent position, rejecting the
has quadrupled in the last decade—but from a strictures on their conduct by violent extremists
practically non-existent level, at the start. but wanting to protect their families and their
communities from polarization and threat. Some
However, much of the progress toward the women also become fighters and join extremist
implementation of resolution 1325 continues to groups, some against their will but many out of
be measured in ‘firsts,’ rather than as standard real conviction. Women peacebuilders are also
practice. Obstacles and challenges still persist and caught between the rising tide of extremism in their
prevent the full implementation of the women, peace communities, and the constraints placed upon their
and security (WPS) agenda. work by counter-terrorism policies that restrict their
access to critical funds and resources.
• With regard to sexual violence, despite the
comprehensive normative framework, there are • Though there is a great deal of rhetoric supporting
very few actual prosecutions, particularly at women, peace and security, funding for
the national level. Though some argue that the programmes and processes remains abysmally
normative frameworks have deterred future crimes, low across all areas of the agenda. Bilateral aid
 15

has increased to fragile States with regard to Reviews, and regional human rights courts and
gender issues, but it is only still six per cent of the commissions.
total aid package, and only two per cent of aid
earmarked for peace and security. The quality of • Women’s participation is key to sustainable
project-style aid also needs restructuring and re- peace. This study contains research that
examination. comprehensively demonstrates that the participation
of women at all levels is key to the operational
Confronting the status quo of peace and security, effectiveness, success and sustainability of peace
the Global Study sets out detailed recommendations processes and peacebuilding efforts. Mediators,
under every chapter and under each theme. It also facilitators and leadership in peace operations must
concludes with a set of general recommendations be proactive in including women in all aspects of
for policy guidance and advocacy. Discussions and peacemaking, peacekeeping and peacebuilding.
consultations with regard to the Global Study pointed The Global Study describes the substantial increase
to the following set of principles around which the in frequency of gender-sensitive language in peace
world should unite: agreements, and the number of women, women’s
groups and gender experts who serve as official
• Prevention of conflict must be the priority, negotiators, mediators, signatories, witnesses or
not the use of force. Greater attention must be in advisory bodies. Nonetheless, in many conflict-
paid to the prevention of conflict, and the use of affected contexts, women’s official participation
force must always be the last resort when all other may be temporary, their delegated roles may be
options have failed. The Global Study emphasizes more symbolic than substantive and their influential
the importance of short-term prevention measures capacity may be directly resisted by cultural norms.
such as early warning systems and intensified
efforts at preemptive dialogue at the local, national • Perpetrators must be held accountable and
and international levels. It also examines measures justice must be transformative. Perpetrators
to address the root causes and structural drivers of grave crimes against women should be held
of conflict, such as exclusion, discrimination, accountable for their actions so that women
attacks on dignity and structural inequality. These, receive justice and future crimes are deterred.
along with measures dealing with the proliferation At the same time, justice in conflict and post-
of small arms, violent masculinities and climate conflict settings must be transformative in
change should also be implemented. nature, addressing not only the singular violation
experienced by women, but also the underlying
• Resolution 1325 is a human rights mandate. inequalities which render women and girls
It must not be forgotten that resolution 1325 was vulnerable during times of conflict and which
conceived of and lobbied for as a human rights inform the consequences of the human rights
resolution that would promote the rights of women violations they experience. The Global Study
in conflict situations. Any policy or programme on explores both the importance of fighting impunity
women, peace and security must be conducted for crimes against women through criminal justice
with this in mind. Attempts to ‘securitize’ issues proceedings, while also recognizing the central
and to use women as instruments in military role played by reparations, truth and reconciliation
strategy must be consistently discouraged. The processes and in ensuring that victims and their
Global Study explores the role of human rights communities heal and recover together.
mechanisms in holding Member States accountable
for human rights obligations relating to the women, • Localization of approaches and inclusive and
peace and security agenda, including through participatory processes are crucial to the success
international treaty bodies, Universal Periodic of national and international peace efforts.
16

In the area of peacebuilding, there must be a Security Council on implementation, from more
detailed mapping and understanding of local robust sanctions, to more frequent briefings from
conditions with the participation of women civil society, to closer exchanges with the Human
themselves before programmes are designed, Rights Council, to the creation of an informal
formulated or implemented. The ‘one-size-fits-all’ expert group on women, peace and security.
policy, transferring ‘best practices,’ is not always
what is needed in many situations of conflict. The • The persistent failure to adequately finance
Global Study describes the peacebuilding period the women, peace and security agenda
as an opportunity to transform societies and work must be addressed. The failure to allocate
toward gender equality; to build economies and sufficient resources and funds has been perhaps
institutions that recognize and seek to address the the most serious and unrelenting obstacle to
specific challenges women face. implementation of women, peace and security
commitments over the past 15 years. This lack
• Supporting women peacebuilders and of financing may be somewhat overcome if
respecting their autonomy is one important Member States, regional organizations and the
way to counter extremism. Across religions and UN system all commit to earmarking a minimum
regions, a common thread shared by extremist of 15 per cent of all funding relating to peace
groups is that in each and every instance, their and security for programmes whose principal
advance has been coupled with attacks on the objective is to address women’s specific needs
rights of women and girls—rights to education, to and advance gender equality. The Global Study
public life and to decision making over their own further recommends an increase in predictable,
bodies. It is clear that military responses alone are accessible and flexible funding for women’s civil
insufficient in routing out violent extremism. The society organizations working on peace and
Global Study explores how funding and support security at all levels, including through dedicated
to women peacebuilders in contexts of rising financing instruments such as the new Global
extremism can play a critical role in ensuring that Acceleration Instrument on Women, Peace and
extremist ideologies neither survive nor thrive. Security and Humanitarian Action.

• All key actors must play their role. Member • A strong gender architecture at the United
States, regional organizations, the media, civil Nations is essential. The Study is clear: the
society and youth all have a vital role to play in United Nations must play the lead role in creating
working together to implement the women, peace a peaceful and secure world for all of us—
and security agenda, and holding one another holding true to its original vision to turn ‘swords
accountable to commitments. The Global Study into plowshares.’ To do so, the UN must adopt
explores the successes and challenges that structural changes to capitalize on its available
each set of actors has faced over the past 15 resources for women, peace and security, and
years, and sets expectations for carrying the WPS ensure that the entire system moves forward in
agenda into the future. a coherent and coordinated manner to bring
gender equality and women’s empowerment into
• A gender lens must be introduced into all the core of its work in all areas. To this end, the
aspects of the work of the Security Council. Study makes key recommendations, including the
The Security Council must continue its work on the following:
implementation of the women, peace and security
agenda, and in order to do so, requires additional o An Assistant Secretary-General, with dedicated
support and information. The Global Study resources, should be appointed at UN Women to deal
explores avenues to better inform the work of the with crises, conflict and emergencies, after a full re-
 17

appraisal of UN Women’s work in headquarters and the remains the major controversy that brings the UN,
field on women, peace and security. and the entire international community, into disrepute
in the eyes of public opinion.
o Greater resources must also be allocated to UN
Women in general, to support its work in conflict The Global Study concludes, not with a
settings. recommendation, but with a call to action. The great
changes we are undergoing must primarily
o There must be a senior gender advisor at the D1 be understood in the context of the needs
level in the office of every Special Representative and concerns of women in specific situations
of the Secretary-General, with hybrid technical of conflict. The ‘local’ must clearly be the most
gender experts in thematic units. important factor in our analysis. Nevertheless, women
spoke with one voice from every continent to convey
o The gender divisions of DPKO and DPA at a key message to the Security Council: the United
headquarters should be strengthened. Nations must take the lead in stopping the process of
militarization and militarism that began in 2001 in an
o UN Women, DPKO and DPA should jointly provide ever-increasing cycle of conflict. The normalization of
technical, political and policy expertise to the violence at the local, national and international levels
gender staffing of peacekeeping and special must cease. Networks of women peacebuilders and
political missions. peacemakers must be expanded and supported to
come to the fore. Their solidarity is essential if we are
o There should be discussion with all stakeholders with to move the world toward the original vision of the
regard to the feasibility of setting up an International United Nations, where nations turn their ‘swords into
Tribunal for Sexual Exploitation and Abuse by UN plowshares’ and act with conviction to prevent wars
peacekeepers and UN staff in the field. This issue through dialogue and discussion.
18 Chapter 1. Setting the Context

01
 19

SETTING THE
CONTEXT

“Equality between women and men is

inextricably linked to peace and security.”
Ambassador Anwarul Chowdhury,
High-Level Advisory Group for the Global Study, UN Women Video Interview, 2015
20 Chapter 1. Setting the Context

The world has changed since the Security Council everyday life a struggle and survival is everyone’s
adopted resolution 1325 in October 2000. The nature preoccupation.
of conflict in certain regions is qualitatively different,
the content of what we mean by peace and security Thirdly, since 2001, the nature of conflict in certain,
is evolving, and the understanding of what we mean specific areas of the world has changed in dramatic
by justice has also transformed. This ever-changing ways. In fact, in the survey that was undertaken
and ever-evolving reality poses major dilemmas for the among civil society organizations for the Global
four pillars of Security Council resolution 1325 and Study, 84 per cent of the respondents stated
its subsequent resolutions: the pillars of prevention, that the emerging issues of concern were violent
participation, protection, and peacebuilding and recovery. extremism and counter-terrorism. In the 1990s most
It is in this context that the Global Study undertakes a of the wars were in Africa, linked to a system of fragile
fifteen-year review of resolution 1325. It looks at the gaps States and powerful warlords. Today, there are new
that need to be filled as well as the need to revisit some types of conflict that directly involve civilian populations
fundamental assumptions. in an unprecedented manner.

While terrorist acts had been a regular phenomenon even

THE NATURE OF CONFLICT HAS earlier, since 2001 the nature and scale have proved to be
CHANGED destructive to an unprecedented degree. Suicide bombing
and explosions aimed at civilian targets seemed to reach
Since World War II, the actual number of conflicts a peak in the first decade of the century. Their cruelty and
and the number of civilians affected by conflict has brutality has actually left the international community very
drastically reduced. And yet it is public perception shaken but unusually united.
that the world is in the midst of an unprecedented,
devastating state of conflict and crisis. One reason Warfare in certain areas of the world now tends to be
for this is that the global media and advances in even more asymmetrical; rebel groups with rudimentary
communication technology have brought the stark weapons and explosives fight larger powers with state-
reality of existing conflicts into people’s living rooms of-the-art weaponry. As one woman in a conflict area
and workplaces, thereby raising awareness about the told us, “the coalition controls the sky, the rebels control
scale of destruction, and the pain and suffering of the community.” As many of the fighters for violent
civilian casualties. Our interconnectedness, therefore, extremist groups involved in these wars are drawn from
makes it appear that conflict is extremely devastating the community or are their own children, women often
and never-ending. find themselves in an ambivalent situation, torn between
a need to protect the community and their children and
Secondly, conflicts in many parts of the world are also to fight off extremism and its often negative impact on
more protracted. In these situations, for civilians living women’s rights. Many women, inspired by the discourse of
in these areas, violence has been normalized, warlords revolution or salvation, are also beginning to join extremist
become role models, the economy is unregulated and groups in large numbers as warriors and are affected by
States remain fragile for long periods of time. These conflict not only as mothers, daughters and sisters.
protracted conflicts destroy civilian life. Criminal
action becomes prevalent as drug trafficking, human In attempting to deal with this growing phenomenon,
trafficking and smuggling and corruption begin to States have reacted strongly, if not effectively. Within
dominate public life. Rapacious industries dealing with their borders and abroad their strategies have involved
raw materials also mark their entry. Private security a greater use of surveillance and force. Earlier ‘acts of
firms, paramilitaries and other shadowy armed groups terror’ were dealt with using police powers, but today it
begin to appear often splintering from main rebel is termed a “War on Terror.” This blurring of distinction
formations. The level of insecurity makes ordinary between human rights under police jurisdiction and the
 21

international humanitarian law of armed conflict has respected, leaving civilian populations deeply vulnerable
resulted in morbid symptoms for international law and with little chance of survival except as a refugee or an
administrative practice. Targeted assassinations, use IDP. In these contexts, older women often come forward
of aerial bombardment in internal, non-’armed conflict’ as peacebuilders and humanitarian actors, as they are
situations, and extraordinary legislation and executive often the only people who have the legitimacy and trust
measures taken for surveillance and detention practices of all sides to do humanitarian work.
are creating new human rights dilemmas.
In making these criticisms, one cannot be blind to certain
These measures may increase a sense of security, imminent threats posed by violent extremist groups from
and may actually deter attacks, but they also lead to diverse ethnic and religious groups who do not recognize
greater polarization and radicalization, as well as to dissent, democracy or the rights of women. However, the
group and individual acts of resistance. In this process overwhelming opinion of women living in those areas, as
many women are forced to remain ambivalent as they well as women practitioners working in the field, was that
watch their community being torn asunder or securitized force alone cannot be the answer. There must be greater
by polarizing forces. They often do not like the tactics emphasis on prevention, more empowerment of women
of the extremists but do not want to side with the peacebuilders while respecting their autonomy, and
forces that target their sons, husbands or families or more resources placed to make strategies of prevention
discriminate against them. This ambivalence is seen realizable. Conflicts must be prevented, and if they are
as complicity by counter-terrorism purists and as inevitable, they must become more humane.
inadequate commitment by ardent insurgent fighters.

The period since 2000 has also seen a great deal of THE NATURE OF ROOT CAUSES HAS
technological innovation that is changing the nature of CHANGED
warfare. Though there has been a great deal of positive
use of technology to protect populations and to assist in While the practices of war have changed in some
the humanitarian effort, the technology of weapons used parts of the world, so have many of the perceived ‘root
in conflict is much more devastating. Unmanned aerial causes.’ While the wars immediately after World War II
weapons of war, new types of aircrafts and new types were nationalist wars or political wars based on political
of ground to surface weapons have posed new and ideology, many of today’s wars are religious or ethnic
unforeseeable dilemmas for women living in warzones. in origin. They are firmly in the realm of identity politics
This is a decade where brutal ‘in your face’ beheadings and in their most extreme form, deeply conservative and
of individuals co-exist side by side with the clinical reactionary toward women and their rights.
targeting of places and individuals where women are
mere numbers in what is termed ‘collateral damage.’ In 2000 when resolution 1325 was adopted, the major
So, women in this century can be brutally gang raped issues facing women in situations of conflict were
and mutilated in one continent, requiring individual the brute force of sexual violence, losing children
survivor assistance, while being treated as merely an or loved ones to the conflict, being forced to or
anonymous, clinical number in another. voluntarily becoming a combatant, and/or leaving
one’s possessions as vulnerable refugees or internally
Today’s wars, whether in fighting traditional displaced persons. Today all these concerns remain,
civil wars or engaging in asymmetrical warfare, but in addition, in certain wars, women’s concerns have
have resulted in the largest number of IDPs and become more dire while, at the same time, the nature
refugees since World War II, leading to terrible of warfare invades their most private spaces, those
humanitarian consequences. This is made more spaces in the family and the community where their
difficult by the fact that sacrosanct humanitarian spaces sense of identity and security are deeply threatened. In
and the neutrality of humanitarian actors is not always every one of these new situations they are faced with
22 Chapter 1. Setting the Context

taken at a painstakingly slow pace because of distrust and

fears of hidden agendas.
For civilians living in these
areas, violence has been This polarization and distrust have taken a toll on the WPS
agenda as well as other thematic items on the agenda of
normalized, warlords the Council. There is a belief that the momentum behind
become role models, the resolutions such as 1325 are slowing and are resulting
economy is unregulated and in the lowest common denominator, often held hostage
the States remain fragile for to political expediency, as well as political bartering and
negotiation. For this reason, there was a belief among
long periods of time.
stakeholders that the next decade of women, peace and
security should not only seek to consolidate gains within
the Security Council but also begin to identify other forums
and institutions to propel the issues forward.
stark, impossible choices and, as a result, they are often
constantly living in a state of insecurity and ambivalence. In this regard, not only other multilateral forums linked
to the UN, but, also, regional organizations and sub-
While identity politics has become dominant, some regional organizations were identified as those that could
of the other underlying root causes of conflict, from assist in ensuring the implementation of resolution 1325.
discrimination to climate change, still remain and they National governments were also called upon to become
are consistent problems that require long-term structural the primary drivers of 1325 and women’s organizations
changes. Donor policies that emphasize the ‘project’ to be adequately funded at the community level to
only provide a Band-Aid and sometimes prevent ensure that they hold their governments accountable.
societies from addressing these issues with far-sighted UN agencies were also requested to raise the visibility of
policies. Some of the issues concerning women will take the issues concerned and create institutional structures
decades of diligent, consistent practice to change. The at headquarters and the field that will ensure no gap
international community should address its mind to these between international norms and their implementation.
long-term structural issues in a more systematic manner.

FRAGILITY OF STATES AND THE RISE OF

MULTILATERAL PROCESSES UNDER NON-STATE ACTORS
STRESS
While the doctrine of sovereignty is acquiring renewed
In 2000 when the Security Council passed resolution energy due to recent developments at the international level,
1325, after the wars in Bosnia and Rwanda, the world the nation state as the foundation of the international system
was a united place especially around issues of women, is also under stress. Globalization and global networks
peace and security as well as children and armed conflict. impinge on practically every sovereign, national decision
A great deal of activity resulted from this resolution at and regional, political, economic and social linkages are
the international, national and regional levels. Women, often even more powerful. Within States, non-State actors
as well as Member States, were galvanized. Finally there sometimes command a great deal of power whether they
were universal standards and best practices to draw from be multi-national extractive industries or armed groups
and the possibility of dialogue and communication across controlling large swathes of territory. In some contexts,
countries and cultures. However, since then, although the situation of ‘Occupation,’ where State-like entities exist
there have been major steps forward with regard to sexual without proper international recognition, is also one that is
violence, the atmosphere of easy consensus has clearly not in the best interest of their civilian population, and that
changed. The political process is far more polarized, both prevents them from having the full protection of international
within the Security Council and outside, and decisions are law and international human rights.
 23

doctrine imposes upon States a duty of due diligence,

to ensure that the actions of non-State actors meet with
Today’s wars, whether in international standards. However, if the writ of the State
fighting traditional civil wars does not run into the areas controlled by non-State actors,
how does one ensure compliance with international
or engaging in asymmetrical standards? How does one measure progress?
warfare, have resulted
in the largest number of Many States prohibit any contact between UN agencies
IDPs and refugees since and non-State actors whom they regard as criminal
gangs. However, it is important to find a recognized and
World War II, leading
acceptable way to allow humanitarians to go into territories
to terrible humanitarian controlled by non-State actors and engage them on issues
consequences. relating to the protection of civilians, including women.
Direct accountability of non-State actors for war crimes
and crimes against humanity exist under the Geneva
Conventions, and now under the Rome Statute as well as
in Security Council resolutions related to monitoring and
The rise of regional organizations has given a new reporting. These need to be strengthened so that these
opportunity for women, peace and security issues to actors also feel the full force of the law and the deterrence
have more focused energy and direction. Both the of punishment.
European Union and the African Union have begun
to play an active role on issues relating to women, A different type of non-State actor is the transnational
peace and security. The need to strengthen these corporate entity. During and after war, weak regulatory
developments cannot be overstated and there is hope frameworks allow for rapacious corporations, especially
that the initiatives will spread to other regions. in extractive industries, to make substantial investments.
These industries displace populations, have their own
However, regional organizations also pose their own systems of intrusive security, encourage rampant
set of dilemmas for women, peace and security and corruption and have enormous influence on government at
impinge on national sovereignty in new and unique all levels. Many women and their organizations complained
ways. Consultations in the Middle East, the Caucuses of being displaced and receiving little or no compensation.
and South Asia with women in the area revelealed They are also at the receiving end of violence by private
a reluctance and wariness with regard to regional security forces attached to these industries.
organizations, especially when it was felt that one or
a few major powers would dominate. In contrast, in
Africa and Europe where many of the States wielded DIVERSITY
equal power, there was a great deal of trust and
reliance on regional initiatives. In dealing with issues of One clear message that came through in consultations for
peace and security, these factors should also be taken the Global Study was that the world is a diverse place. The
into consideration. universality of UN norms and values must be understood
in that context. Acknowledging diversity requires inclusivity
The power of non-State actors in fragile States cannot in peacemaking so that women and other marginalized
be underestimated. The main type of non-State actors groups are part of any peace process. It also involves
we see around the world are, of course, armed groups in recognizing the diverse systems of justice and paths of
control of territory who run parallel governments that force reconciliation that exist around the world. When engaging
taxation and local level regulation. For civilian populations in peacebuilding, it requires that we do not adopt a one-
under their control, non-State actors do not really have size-fits-all policy and that we map local needs and skills
a clear status under international law. The Velasquez in a specific location before we implement programmes.
24 Chapter 1. Setting the Context

Recognizing diversity also means understanding diversity

among women and the different sets of problems that
each category of women face in each context. It also
means that when women are included in the peace “What’s happened in
process, the diversity among them is reflected, and their
representation in any formal process is not tokenism or
peace and security is
only reflective of the majority will. that we’ve completely
neglected half of
NATURE OF ‘PEACE’ HAS CHANGED
the population, and
For decades, peace meant mainly the silencing of so, we then become
guns and the renewal of formal politics as the way of
governance. Ceasefires and demobilization were the surprised that peace
main focus of peace processes. However, today it is
recognized that peace is something far more than the isn’t sustainable[...].
‘absence of violence.’ Peace has increasingly meant
an inclusive political process, a commitment to human
And the only way
rights in the post-war period and an attempt to deal to make something
with issues of justice and reconciliation.
sustainable is to make
Over time, research has shown that sustainable peace
is only possible if there is inclusive peacemaking—
it indigenous, to make
something that the Global Study clearly proves with it a cultural change.”
regard to women. Earlier research has also shown
that along with women’s participation, justice and
reconciliation are other factors that lead to sustainable Alaa Murabit, High-Level Advisory Group
peace, and that make programmes operationally for the Global Study, UN Women Video
effective. Both inclusivity and justice, therefore, Interview, 2015
rest on a post-conflict process that privileges
human rights as a central element in the post-war
architecture.

implies active agency, to be allowed to participate

NATURE OF ‘SECURITY’
in the decisions that are made on your behalf. While
HAS CHANGED
security in the old paradigm was linked to ensuring the
survival of individuals, in recent times it is recognized
Again, in earlier eras, security too was seen in the
as a broader term aimed at securing the well-being of
context of the ‘absence of violence.’ Today, security
individuals and their communities. While women were
is seen in a far more expansive way that is not
not a major factor in the earlier definitions of security,
only limited to containing physical violence.
current approaches—which include security in the
Security also has political, economic and social
home and the community—make them central actors
dimensions. It is both public and private. It means
and stakeholders.
absence of fear but also absence of want. It also
 25

TRANSFORMATIVE JUSTICE The competition for resources that gives peacekeeping

such a large share of the pie also has implications for
For centuries justice has been seen as the punishment women around the world, especially those not living
of perpetrators who commit crimes against victims. in conflict situations. The loss of a heightened focus
Colonial legal regimes that form the basis of much on development and social and economic rights that
of the law around the world also reinforced punitive are central to the everyday lives of women, means
notions of justice. Given the heinous nature of war that these priorities within countries that require
crimes and crimes against humanity, one cannot international support are either not funded or receive
move completely away from punitive notions, since less funding than they should.
that would mean an acceptance of impunity. In the
case of sexual violence, the international community
has already spoken loudly and clearly with one voice. AN EMPHASIS ON PREVENTION AND A
However, in recent times, punitive aspects of justice ‘NO’ TO MILITARIZATION
have been augmented by calls for reparations and
reconciliation, including the collective search for truth Reliance on the use of force as the sole means of
and the preservation of memory. In civil wars, this type conflict resolution may, itself, actually create and
of approach is seen as essential for communities to perpetuate a cycle of violence. This is why women
recover and for justice to play a transformative role in all over the world reiterated that military responses
the healing process. should be used sparingly. As was stated earlier, they
argued that prevention and protection through non-
violent means should be emphasized more by the
THE UN HAS CHANGED international system, and more resources should be
dedicated to this endeavor. If force is used, even for
In 2000, the UN was primarily seen as a development the protection of civilians, there must be clarity and
organization and UNDP was seen as its primary clear, attainable objectives.
instrument, especially in the field. Today, with a nine
billion dollar budget, UN Peacekeeping seems to have The great changes we are undergoing must also be
become the core mandate of the UN, though some understood in the context of the needs and concerns
still resist this change. This thrust into proactive peace of women in specific situations of conflict. The ‘local’
operations has caught the organization unawares. must clearly be the most important factor in our
The response has often been ad hoc, without analyses. Nevertheless, women spoke with one voice
systematic planning. A review of United Nations from every continent to convey a key message to
Peace Operations, conducted at the same time as the the Security Council: the United Nations must take
Global Study, has addressed these issues at length. the lead in stopping the process of militarization and
Women have been affected by this change in the UN’s militarism that began in 2001 in an ever-increasing
emphasis. They are far below their representation cycle of conflict. The normalization of violence at the
levels in the UN Department of Peacekeeping local, national and international levels must cease.
Operations, both in headquarters and the field. Networks of women peacebuilders and peacemakers
The issue of sexual abuse by peacekeepers and must be expanded and supported to come to the fore.
humanitarian workers still remains a problem for the Their solidarity is essential if we are to move the world
UN that requires effective and strong action. Finally, toward the original vision of the United Nations, where
the UN’s role in the protection of civilians, including nations turn their ‘swords into ploughshares’ and act
women, has now become a paramount concern of with conviction to prevent wars through dialogue and
Member States and public opinion. discussion.
26 Chapter 1. Setting the Context

02
 27

THE NORMATIVE
FRAMEWORK FOR
WOMEN, PEACE AND
SECURITY

“I don’t want the global review [of 1325]

to be turned into something nice that
nobody has to care about. The global
review will be effective if it makes people
nervous. It will be effective if somebody’s
job is assessed as having been done
ineffectively, because 1325 is not being
effectively implemented.”
Cynthia Enloe, Research Professor, Clark University,
UN Women Video Interview, 2015
28 Chapter 2. The Normative Framework

On 31 October 2000, the Security Council unanimously culminated in one revolutionary idea—an idea that
adopted resolution 1325 on Women, Peace and became a global norm and the official policy of the highest
Security. This resolution, with its four pillars of prevention, body tasked with the maintenance of international peace
participation, protection, and peacebuilding and recovery, and security. This simple, yet revolutionary idea was the
has become the focal point for galvanizing worldwide recognition that peace is only sustainable if women
efforts to deal with the many challenges that women face in are fully included, and that peace is inextricably linked
situations of conflict. Member States, UN entities and civil with equality between women and men.
society at the international, regional and national levels have
formed partnerships that have moved forward this agenda In the years since the adoption of 1325, the international
and created awareness of the normative framework that community has built up an impressive normative
governs these issues. This in fact is its greatest success. framework on women, peace and security, including
six subsequent resolutions,1 and lofty commitments
At the same time, over the last fifteen years, resolution on the part of Member States and the United Nations
1325 has been interpreted differently around the world to advance gender equality. There is much to be
with different nuances and expectations. This was brought applauded. And yet, despite this progress, it can often
out very clearly in consultations for the Global Study. In be challenging to see any improvement in the reality
the countries of the European Union and other western of life for women in conflict-affected settings. During
societies, women, peace and security has meant, primarily, consultations for the Global Study, women ex-combatants
the representation of women in the security sector, training in Nepal spoke about not having had any voice in the
of the security sector on women’s issues and a strong country’s peace negotiations in 2006. Women survivors
emphasis on preventing sexual violence in conflict, primarily of sexual violence in Bosnia-Herzegovina explained that
in Africa. There was a sense that although the women, they still have not seen justice, decades after the end of
peace and security (WPS) agenda was moving forward, the conflict there. Around the world, women continue to
there was a great deal left to be done. bear the burden of conflict, and continue to be excluded
from peacebuilding and peacemaking efforts.
In Africa and Asia, though many acknowledged the need
to deal firmly with impunity and sexual violence, more often On 18 October 2013, the Security Council adopted
the conversation would turn to reparations, livelihoods, resolution 2122, requesting that the Secretary-
and economic empowerment. There was a belief that the General commission this report: a global study on
normative framework had to be localized and there should the implementation of resolution 1325.2 The Global
be greater attention to mapping what local communities and
women actually need. For many of these women, with these
aspirations at the local level, nothing really has taken place.
For them, resolution 1325 has been a failure.
Of the more than 2200
resolutions adopted by
MANDATE OF THE GLOBAL STUDY the Security Council in
its seven decades of
Of the more than 2200 resolutions adopted by the history, it is hard to think
Security Council in its seven decades of history, it is
hard to think of one resolution that is better known for
of one resolution that is
its name, number, and content than resolution 1325. It better known for its name,
was born out of a truly global constituency of women’s number, and content than
organizations and advocates, and became one of its resolution 1325.
most powerful organizing tools. Its adoption, an historic
milestone, was a triumph of decades of activism that
 29

Study will be used to inform a High-Level Review on the

implementation of resolution 1325, to take place in 2015,
and the Secretary-General will include the results of the This simple, yet
Study in his annual report on women, peace and security
revolutionary idea was the
to the Security Council in 2015.3 However, it also aspires
to a grander purpose: to provide the UN, Member
recognition that peace is
States and civil society with an opportunity to commit only sustainable if women
to action and accountability to achieve lasting and are fully included and
meaningful peace and security for women. It is time inextricably linked with
for us all to ask: what must we do to turn rhetoric into
equality between men and
reality for women around the globe?
women.

THE HISTORY OF WOMEN, PEACE AND

SECURITY AT THE INTERNATIONAL LEVEL:
CIVIL SOCIETY ORIGINS
1969, when the Commission discussed whether women
The WPS agenda of today is the product of more than a and children should be afforded special protection during
century of international women’s peace activism. A global conflict;7 and in 2004, when the Commission considered
women’s civil society movement for peace first emerged in women’s equal participation in conflict prevention,
protest of the widespread devastation of World War I, and management and conflict resolution and in post-conflict
evolved out of several decades of smaller-scale organizing peace-building.8 Women’s civil society plays an active
on local and national levels.4 For the first time, pacifist role in moving the WPS agenda forward before the
women from around the world gathered at the International Commission, and in recent years more than 6,000 civil
Congress of Women in The Hague on 28 April 1915, society representatives have registered to participate in
determined ‘to study, make known and eliminate the the Commission’s annual meeting in New York.9
causes of war’.5 One outcome of the Congress was the
founding of the Women’s International League for Peace During the Cold War period, civil society turned its
and Freedom (WILPF), which remains active as a leader attention toward the advancement of international
in the movement for women, peace and security today.6 human rights standards, and the adoption of treaties
Throughout World War II, the international women’s peace and conventions which enshrined the right to gender
movement continued to advocate for an end to conflict equality. Among these conventions was the Convention
and for international disarmament. Peace as an end in on the Elimination of All Forms of Discrimination
itself was the center of their agenda. against Women (CEDAW), adopted in 1979. Although
the Convention does not directly address the nexus
Shortly after the founding of the United Nations in between women’s rights and conflict, it underscores the
1945, the Commission on the Status of Women (CSW) importance of women’s participation and leadership
was created in 1946 as the UN body dedicated to in all contexts, which is a foundational concept for
gender equality and the advancement of women. The the WPS agenda. Thanks in large part to civil society
Commission continues to meet annually, bringing activism and consultation, the CEDAW Committee issued
together Member States and representatives of civil General Recommendation 19 in 1992, explaining the
society, to discuss pressing issues facing the world’s relevance of the Convention on obligations to prevent,
women, evaluate progress and make recommendations, investigate and punish violence against women. Recently,
and formulate policies for gender equality. The after reviewing experiences from around the world, the
Commission’s annual meetings frequently focus on a Committee adopted General Recommendation 30 on
topics of relevance to the WPS agenda—including in women in conflict prevention, conflict and post-conflict
30 Chapter 2. The Normative Framework

situations, which outlines specific obligations to eliminate NGOs formally coalesced as a network, determined
discrimination against women in conflict-affected settings to achieve a Security Council resolution on women,
(described in detail in Chapter 12: Human Rights peace and security,15 and several intense months of
Mechanisms). work followed, culminating in the adoption of resolution
1325—the only Security Council resolution “for which the
The Fourth World Conference on Women, which took groundwork, the diplomacy and lobbying, the drafting and
place in Beijing in 1995, marked another turning redrafting was almost entirely the work of civil society.”16
point for civil society organizing around women, However, many recognized that in engaging with the
peace and security. In Beijing, the UN assembled the Council in this specific and intense way, they had to give
representatives of 189 countries, as well as 4,000 up a direct call for global peace and demilitarization and
representatives from non-governmental organizations settle for the regulation of war before, during and after
(NGOs), to discuss commitments for the promotion of conflict. It was a realistic appraisal of what was needed at
women’s equality.10 At an NGO forum held in parallel that time. Both academics and women’s rights activists are
to the official governmental meeting, 40,000 members now revisiting this policy shift in women’s civil society that
of women’s civil society also gathered.11 Through their changed the nature of civil society activism.
activism in these venues, women’s civil society played
a leading role in shaping the Beijing Platform for Action,
which States unanimously accepted at the conclusion of GROWTH OF THE INTERNATIONAL
the conference. Among the twelve areas considered in NORMATIVE FRAMEWORK, INCLUDING AN
the Platform for Action is “Women in Armed Conflict,” OVERVIEW OF WHERE THE FRAMEWORK
which calls for an increase in the participation of STANDS AT PRESENT AND WHAT IT
women in conflict resolution, and in the protection of ENCOMPASSES
women living in situations of armed conflict, among
other strategic objectives.12 Since resolution 1325 was adopted, the normative
framework for the protection and promotion of women’s
In the wake of their success in Beijing, women’s civil rights in conflict and post-conflict settings has expanded
society organizers set their sights on the Security dramatically. This expansion has taken place both in
Council, believing that Member States there could terms of the rights and obligations understood to be
also be swayed to recognize women’s contributions to contained within the agenda, as well as the institutions—
peace and security.13 At the March 2000 meeting of global, national and local—which seek to implement
the CSW, the President of the Security Council gave a the agenda and hold others accountable for its
speech, which inspired civil society to continue with this implementation.
ambitious plan.
Much of the growth of the normative framework for
“As the first International Women’s Day of the new women, peace and security has focused on obligations
millennium is observed throughout the world, to protect women in conflict settings, including from
members of the Security Council recognize that sexual violence. The Security Council has adopted four
peace is inextricably linked with equality between resolutions addressing the topic: 1820 (2009), 1888
women and men. They affirm that the equal access (2009), 1960 (2010), and 2106 (2013). Among their
and full participation of women in power structures achievements, these resolutions have required that
and their full involvement in all efforts for the UN peacekeepers receive training on how to prevent,
prevention and resolution of conflicts are essential recognize and respond to sexual violence;17 instructed
for the maintenance and promotion of peace and that the UN sanctions regime should include those who
security.” commit sexual violence in conflict;18 and established
the position of Special Representative of the Secretary-
Ambassador Anwarul Chowdhury (Bangladesh)14 General on Sexual Violence in Conflict.19
 31

In addition to advances within the UN system on

the prevention and punishment of sexual violence in
conflict, international criminal law has continued to play The framework for
an important role in advancing norms regarding the
sustainable development
prosecution of sexual and gender-based violence. The
Rome Statute for the International Criminal Court (ICC),
provides a guidepost for
which entered into force in 2002, codified and expanded advancing gender equality,
previous understandings of crimes such as rape, sexual and shows clearly the nexus
slavery, forced pregnancy and gender-based persecution; between gender equality,
advancements which are discussed in detail in Chapter
conflict and development.
5: Transformative Justice. Efforts to prevent sexual and
gender-based violence have also been extended into
other international treaties and treaty bodies. The Arms
Trade Treaty, which entered into force in December
2014, includes a provision requiring States to consider facilitate women’s full participation in post conflict
the risk of conventional arms being used to commit reconstruction, including elections; demobilization,
acts of gender-based violence.20 In 2014, the African disarmament and reintegration programmes; and security
Commission on Human and People’s Rights adopted sector and judicial reforms.24
a resolution on the situation of women and children in
armed conflict, which calls upon States parties to the The institutional capacity within the UN to implement
African Convention on Human and People’s Rights resolution 1325 and the six subsequent resolutions on
(ACHPR) to prevent violence against women and children women, peace and security has also rapidly expanded in
in conflict, and to guarantee reparations to victims to recent years. In 2007, the Secretary-General formed UN
address the consequences of violence against women Action against Sexual Violence in Conflict, a coordinating
and children.21 Making an important normative advance, body which unites the work of 13 UN entities working
the Commission also called upon States parties to to end sexual violence in conflict,25 and in 2009 the
ensure that survivors of rape, incest and sexual assault Security Council requested the appointment of the
have access to safe abortions.22 aforementioned Special Representative on Sexual
Violence in Conflict.26 In 2010, the General Assembly
Although much of the expansion of the WPS agenda has created UN Women, the United Nations Entity for Gender
focused on the protection of women and the prevention Equality and Empowerment of Women, which seeks to
of sexual violence, there has also been increased promote women’s rights worldwide. In conflict and post-
attention on obligations to ensure women’s participation conflict settings, UN Women works to ensure that the
in conflict prevention and response. With resolutions WPS agenda is a focus of the United Nations’ work.
1889 (2009) and 2122 (2013), the Security Council
turned its focus to women’s active roles as leaders in States are also increasingly being held to account for
peacemaking and conflict prevention. Resolution 1889 their obligations contained within the WPS agenda. In
addresses women’s exclusion from peacebuilding and 2013, the Committee on the Elimination of All Forms
the lack of attention to women’s needs in post-conflict of Discrimination against Women (CEDAW Committee)
recovery. Among its provisions, the resolution calls upon adopted General Recommendation 30 on women in
the Secretary-General to include gender advisors and conflict prevention, conflict and post-conflict situations.
women’s protection advisors in peacekeeping missions, This recommendation provides States Parties to CEDAW
and asks States, UN bodies, donors and civil society to with guidance on how to ensure compliance with
ensure that women’s empowerment is taken into account the Convention’s obligations before, during and after
in post-conflict planning.23 Resolution 2122 further conflict.27 It also addresses the obligations of non-State
requires, among other commitments, that UN missions actors, including corporations and organized criminal
32 Chapter 2. The Normative Framework

groups.28 The recommendation, as discussed in detail The anniversary—Beijing+20—was marked with an

in Chapter 12: Human Rights Mechanisms, requests international review of progress towards implementation
that States parties report to the CEDAW Committee on of the Platform. In preparation its 59th session, the
the implementation of the Security Council resolutions Commission on the Status of Women requested
on women, peace and security.29 Many States have also States to undertake consultative national-level reviews
volunteered to hold themselves to account for obligations of achievements, trends, gaps and challenges to
contained in the WPS agenda. To date, 54 countries implementation, to feed into regional reports prepared
have adopted National Action Plans (NAPs) for the by UN regional commissions.31 These national and
implementation of resolution 1325—policy documents regional reports, in addition to the outcomes of the
to domesticate its obligations on women’s engagement March 2015 CSW meeting, provided an opportunity
in peace and security and the protection of women in for governments and civil society to reflect on strategic
conflict, also discussed in detail in Chapter 10: Key objectives relating to women in armed conflict. Finally,
Actors - Member States.30 Regional and multi-lateral in 2015, Member States adopted new Sustainable
organizations, including NATO and the European Union, Development Goals (SDGs) for the next 15 years.32
have also adopted versions of these plans. These new objectives will continue to advance gender
equality, including the goal on peaceful societies. This
Most importantly, the original champions of women’s framework for sustainable development provides a
rights in conflict—women’s civil society organizations— guidepost for advancing gender equality, and shows
continue to mobilize around women’s peace and security clearly the nexus between gender equality, conflict and
issues, driving the agenda forward in local, national and development.
international settings. The normative advances in the
framework for women, peace and security described
above are owed chiefly to their diligent, creative and PREVIOUS STUDIES COMMISSIONED ON
strategic advocacy and activism. The responsibility of both WOMEN, PEACE AND SECURITY
States and regional organizations as well as the role of civil
society are addressed in detail in Chapter 10: Key Actors. The Global Study is not the first attempt by the
United Nations to gauge the effect of armed conflict
on women, track progress on the implementation of
THE GLOBAL STUDY IN CONTEXT resolution 1325, or make recommendations for the
future of the WPS agenda. Two landmark reports,
The Global Study takes place at a time of momentous both published in 2002, have also explored these
self-reflection and change within the UN. The High-Level themes. The occasion of the Global Study, alongside
Review of the implementation of resolution 1325, which the fifteenth anniversary of the adoption of resolution
this Study seeks to inform, occurs in the same year as 1325, warrants a moment of reflection, to consider
two other high-level reviews: the High-Level Independent these prior reports, and to track how the terrain of
Panel on Peace Operations, and the Advisory Group conflict and priorities for the WPS agenda have shifted
of Experts for the 2015 Review of the United Nations over time. In some respects, the Global Study serves
Peacebuilding Arcchitecture. Together, these three to update these previous reports. However, it will
reviews provide an opportunity for the UN to strengthen also add its unique perspective—including a focus
its responses to conflict, and to ensure that these on issues which have emerged since the adoption of
responses reflect women’s perspectives and engage resolution 1325—to the analysis of accomplishments
women’s leadership. and gaps in achievement for the implementation of the
WPS agenda.
This study also comes at the same time as the 20-year
anniversary of the Fourth World Conference on Women, Resolution 1325 itself requested that the Secretary-
where the Beijing Platform for Action was adopted. General carry out a report on “the impact of armed
 33

made to 14 areas affected by conflict, where they met

with women victims and survivors of conflict, activists,
The adoption of resolution women leaders, and representatives of women’s civil
1325 marked the society, among others. In all of these areas, they
chronicled how the militarization of society breeds
beginning of the women, new levels of violence and how impunity for these
peace and security agenda crimes becomes endemic. The report highlighted
in the Security Council, but the continuum of violence that shatters women’s
the normative framework lives before, during and after conflict. The authors,
at the end of the process reflected on just how little
for the protection and
prepared they had been for the enormity of it all: the
promotion of women’s staggering numbers of women in war who survived
rights in conflict and the brutality of rape, sexual exploitation, mutilation,
post-conflict settings has torture and displacement; the unconscionable acts
expanded dramatically in of depravity; and the wholesale exclusion of women
from peace processes.36
the years since.
In addition to its comprehensive findings and
analysis, the 2002 independent expert report set out
22 key recommendations for the full implementation
conflict on women and girls, the role of women in of resolution 1325.37 These recommendations were
peace-building and the gender dimensions of peace aimed largely at the UN system and Member States—
processes and conflict resolution.”33 The Secretary- and in particular, donor Member States—and ranged
General submitted his report, “Women, Peace and from accountability measures (an international truth
Security,” to the Security Council in 2002.34 Written by commission on violence against women in armed
the United Nations Inter-Agency Task Force on Women, conflict), to normative advances (the recognition of
Peace and Security, and drawing on existing research, gender equality in all peace processes), to shifts
the study focused largely on the UN system and its in financing (a budget analysis of humanitarian
responses to armed conflict. In addition to responding assistance and post-conflict reconstruction).
to the Security Council’s request for information
on the gendered dimensions of armed conflict and In addition to these two landmark studies, since
peacebuilding, each of the seven chapters concludes 2004 the Secretary-General has submitted an annual
with a set of thematic recommendations—19 or fewer, report on women, peace and security to the Security
per chapter—aimed at improving implementation of Council. These reports have focused on assessing
resolution 1325 within the UN system. key issue areas, which have become known as the
‘pillars’ of the WPS agenda: prevention, participation,
Alongside the Secretary-General’s 2002 report, protection, and peacebuilding and recovery. In
the United Nations Development Fund for Women addition to providing the Security Council with a
(UNIFEM, the predecessor to UN Women) published comprehensive overview of achievements, gaps,
an independent expert assessment on women, peace and challenges to implementing the WPS agenda,
and security, by Elisabeth Rehn and Ellen Johnson- each report includes a number of recommendations,
Sirleaf. That report, “Women, War, Peace,” set out aimed at the Council, other UN agencies, and
the landscape for resolution 1325, two years after Member States. Over the past fifteen years, the
its adoption, chronicling “not only what women have Secretary-General and independent UN experts have
suffered, but what they have contributed.”35 The report made countless recommendations on women, peace
was informed by a series of field visits the authors and security.
34 Chapter 2. The Normative Framework

Far too many of the recommendations set out in WITHIN THE OVERALL FRAMEWORK OF
these predecessor studies remain aspirational. With HUMAN RIGHTS
the understanding that the environment for improving
women’s participation and protection in conflict remains In recent times a great deal of research and report
challenging but not impossible, this report seeks to add writing has been done in the field of women, peace
its voice and unique perspective to the UN’s previous and security. Writers from the sector of security
studies and their recommendations. studies have also taken a great deal of interest in this
field. However, it must not be forgotten that the initial
Security Council resolution was fully conceived as
DEFINING ‘WOMEN’ – HETEROGENEITY being part of the international tradition of human rights
AND INTERSECTION and that any interpretation of its provisions and any
strategies for implementation must be done with that
The Global Study is premised upon an understanding origin in mind. The CEDAW Committee, in General
that women are not a homogenous group. Although Recommendation 30 highlights this intersection and
much of the framework of the WPS agenda focuses its importance in the understanding of the scope and
on women as victims—most frequently, as victims of relevance of resolution 1325 and subsequent Security
sexual violence—resolution 1325, alongside resolutions Council resolutions.
1889 and 2122, reminds us that women can and do
serve as powerful actors. Women are political and
religious leaders, public servants, peace negotiators,
and community organizers. Although women are often
a powerful force for peace, women also participate
in armed groups and terrorist groups. The Global Gender is simply one
Study aims to recognize the diversity of women’s
experiences and perspectives in conflict and post-
axis of difference, which
conflict societies, and to integrate these perspectives intersects with many other
throughout the report. forms of identity and
experience. Nationality,
Furthermore, this Study recognizes that gender
ethnicity, political and
is simply one axis of difference, which intersects
with many other forms of identity and experience.
religious affiliation, caste,
Nationality, ethnicity, political and religious affiliation, indigeneity, marital status,
caste, indigeneity, marital status, disability, age, sexual disability, age, sexual
preference; all of these, and others, are important preference; all of these,
factors in determining women’s lived experiences
of conflict and recovery. It is well understood that
and others, are important
these identities can intersect to amplify vulnerability; factors in determining
this Study also seeks to explore how intersectional women’s lived experiences
identities can be tapped as a resource, to provide of conflict and recovery.
unique perspectives for the establishment and
maintenance of peace and security in a world that is
full of diversity.
 35

REFERENCES
1. These are resolutions 1820 (2008), 1888 (2009), 1889 17. “Resolution 1820 (2008),” UN Doc. S/RES/1820 (United
(2009), 1960 (2010), 2106 (2013) and 2122 (2013). Nations Security Council, June 19, 2008), para. 6.
2. “Resolution 2122 (2013),” UN Doc. S/RES/2122 (2013) 18. Ibid., para. 5.
(United Nations Security Council, October 18, 2013), para.
19. “Resolution 1888 (2009),” UN Doc. S/RES/1888 (United
16.
Nations Security Council, September 30, 2009), para. 4.
3. Ibid.
20. Arms Trade Treaty, 2014, sec. 7(4).
4. Cynthia Cockburn, From Where We Stand War: Women’s
21. “African Commission on Human and People’s Rights,
Activism and Feminist Analysis (London; New York: Zed
“Resolution on the Situation of Women and Children in
Books, 2007), 132.
Armed Conflict,” May 12, 2014, para. 1.
5. “WILPF: History,” accessed December 26, 2014, http://
22. African Commission on Human and People’s Rights,
www.wilpfinternational.org/wilpf/history/.
“Resolution on the Situation of Women and Children in
6. Ibid. Armed Conflict.”
7. “Commission on the Status of Women-About the 23. “Resolution 1820 (2008),” para. 5.
Commission,” accessed December 30, 2014, http://www.
24. “Resolution 2122 (2013),” para. 4.
un.org/womenwatch/daw/csw/.
25. “Stop Rape Now - About,” accessed December 29, 2014,
8. Commission on the Status of Women, “Women’s Equal
http://www.stoprapenow.org/about/.
Participation in Conflict Prevention, Management and
Conflict Resolution and in Post-Conflict Peace-Building: 26. “Resolution 1888 (2009),” para. 4.
Agreed Conclusions,” March 12, 2004.
27. “General Recommendation No. 30 on Women in Conflict
9. UN Women, “Commission on the Status of Women, CSW58, Prevention, Conflict and Post-Conflict Situations,” UN
2014,” headQuarters, accessed January 5, 2015, http:// Doc. CEDAW/C/GC/30 (Committee on the Elimination of
www.unwomen.org/en/news/in-focus/csw. Discrimination against Women, October 18, 2013), para. 1.
10. United Nations - Non-governmental Liaison Service, 28. Ibid., para. 10, 13.
“Historic Overview on the World Conferences on Women,”
29. Ibid., 82, 83.
accessed December 29, 2014, http://www.un-ngls.org/spip.
php?page=article_s&id_article=1725. 30. PeaceWomen, “List of National Action Plans,” PeaceWomen.
org, accessed January 2, 2015, http://www.peacewomen.
11. Anne Marie Goetz and Joanne Sandler, “Women’s Rights
org/naps/list-of-naps.
Have No Country,” openDemocracy, January 5, 2015,
https://www.opendemocracy.net/5050/anne-marie-goetz- 31. UN Women, “Preparations: National-Level Review of
joanne-sandler/women%27s-rights-have-no-country. Implementation,” headQuarters, accessed January 5,
2015, http://www.unwomen.org/en/csw/csw59-2015/
12. World Conference on Women, Report of the Fourth World
preparations#National; UN Women, “Preparations: Regional
Conference on Women (Beijing, China 4-15 September
20-Year Review Process,” headQuarters, accessed January
1995). (New York: United Nations, 1996), para. 131–149.
5, 2015, http://www.unwomen.org/en/csw/csw59-2015/
13. Carol Cohn, Helen Kinsella, and Sheri Gibbings, “Women, preparations#Regional.
Peace and Security Resolution 1325,” International Feminist
32. “Transforming Our World: The 2030 Agenda for Sustainable
Journal of Politics 6, no. 1 (January 2004): 131; Diane
Development,” August 1, 2015.
Otto, “Beyond Stories of Victory and Danger: Resisting
Feminism’s Amenability to Serving Security Council Politics,” 33. “Resolution 1325 (2000),” UN Doc. S/RES/1325 (United
in Rethinking Peacekeeping, Gender Equality and Collective Nations Security Council, October 31, 2000), para. 16.
Security, ed. Gina Heathcote and Diane Otto (Palgrave
MacMillan, 2014), 152–72. 34. United Nations Inter-Agency Task Force on Women, Peace
and Security, “Women, Peace and Security: Women, Peace
14. “Peace Inextricably Linked with Equality between Women and Security: Study pursuant to Security Council Resolution
and Men Says Security Council, in International Women’s 1325 (2000)” (United Nations, 2002), para. 37.
Day Statement,” United Nations Meetings Coverage and
Press Releases, March 8, 2000, http://www.un.org/press/ 35. Elisabeth Rehn and Ellen Johnson Sirleaf, “Women, War,
en/2000/20000308.sc6816.doc.html. Peace: The Independent Experts’ Assessment on the Impact
of Armed Conflict on Women and Women’s Role in Peace-
15. Cohn, Kinsella, and Gibbings, “Women, Peace and Security Building,” Progress of the World’s Women (New York, NY:
Resolution 1325,” 131. United Nations Development Fund for Women, 2002), vii.
16. Cockburn, From Where We Stand War: Women’s Activism 36. Ibid., 1:xi.
and Feminist Analysis, 141.
37. Ibid., 1:xviii–ixx.
36 Chapter 1. Setting the Context

03
 37

WOMEN’S
PARTICIPATION
AND A BETTER
UNDERSTANDING
OF THE POLITICAL

“If the goal of a peace process is only to end

violence, then women — who are rarely the
belligerents — are unlikely to be considered
legitimate participants. If the goal is to build
peace, however, it makes sense to gain more
diverse inputs from the rest of society.”
Marie O’Reilly, Andrea Ó Súilleabháin, and Thania Paffenholz,
“Reimagining Peacemaking: Women’s Roles in Peace Processes”1
38 Chapter 3. Women’s Participation

HIGHLIGHTS FROM THE RESOLUTIONS

Resolution 1325 Resolution 1820

Urges Member States Urges the Secretary-
to ensure increased General and his
representation of Special Envoys to invite
women at all decision- women to participate in
making levels in discussions pertinent
national, regional and to the prevention and
international institutions resolution of conflict, the
and mechanisms for the maintenance of peace
prevention, management, and security, and post-
and resolution of conflict conflict peacebuilding

2000 2008 2009

Resolution 1889
Urges Member States, stages of recovery processes,
international and regional through […] promoting women’s
organisations to take further leadership and capacity to
measures to improve women’s engage in aid management and
participation during all stages of planning, supporting women’s
peace processes […] including organizations, and countering
by enhancing their engagement negative societal attitudes about
in political and economic women’s capacity to participate
decision-making at early equally
 39

Resolution 2122
Requests the Secretary- through consultations with
General and his Special civil society, including
Envoys and Special women’s organizations,
Representatives to United in discussions pertinent
Nations missions, as part to the prevention and
of their regular briefings, resolution of conflict, the
to update the Council on maintenance of peace and
progress in inviting women security and post-conflict
to participate, including peacebuilding

2013

Resolution 2122
Further expresses its reintegration programs,
intention to include security sector and
provisions to facilitate judicial reforms, and
women’s full participation wider post-conflict
and protection in: election reconstruction processes
preparation and political where these are
processes, disarmament, mandated tasks within the
demobilization and mission
40 Chapter 3. Women’s Participation

Women have always participated in peace negotiations New empirical data is making it harder for the skeptics
and peacebuilding, but always at the informal level and to doubt the positive impact of women’s leadership
rarely visible to the formal peacemakers and keepers and participation in peace processes. This chapter
of peace. Women have surrounded buildings to make presents a growing body of research that connects
leaders stay in the room, such as in Liberia; they have the inclusion of women in peace processes—including
elected themselves as a third force, such as in Northern national dialogues and post-conflict implementation of
Ireland; they have demanded that justice be part of any peace accords—with more durable and stable peace. It
peace process, such as the Mothers of the Plaza de also highlights both good practice and implementation
Mayo; they have rallied the country with calls for peace, gaps, and proposes comprehensive recommendations
like the Women in Black in Serbia. Despite their heartfelt on the way forward.
efforts, statistics collected by international organizations,
focusing on formal processes, record only a small
percentage of women, if any, involved in peacemaking.2 INCLUDING WOMEN IN PEACE
As a result, a great deal of effort and programming at PROCESSES
the international level has gone into including women in
formal peace processes and in the formal politics of the The best-known and most celebrated diplomatic
country concerned. agreement to be settled in 2015 was not to put an end
to a war, but to prevent one. After many years of failed
At a technical level, this has meant that a great deal negotiations and decades of enmity, the Republic of
of donor money has been poured into women’s Iran and a group of countries formed by the United
programmes that attempt to develop political leadership States, Russia, China, France, the United Kingdom,
for women in formal processes. This is important, and Germany reached a historic deal to curb Iran’s
and there must be a sustained effort to increase their nuclear programme. One important feature of this
numbers, because research shows that this has an diplomatic breakthrough was the prominent leadership
important impact. However, we must also look at ‘politics’ of three women, Federica Mogherini and Helga
and ‘peacemaking’ differently—not only as a set of actors Schmid on the European side and Wendy Sherman
around a negotiation table, but as a comprehensive for the United States. They built on the previous work
process within a society that is inclusive, diverse, and of another woman, Catherine Ashton, the EU’s chief
reflective of the interests of the whole society. The diplomat until late 2014. They were all credited by
present programmes put forward by the international their colleagues on the Western side for leading the
community tend to be extremely narrow: just to bring a negotiations and ensuring a deal was reached.3 Yet,
female body to the table with some technical expertise. this is a decidedly uncommon sight.

Most of the data that is collected and circulated widely is Many actors involved in mediation and conflict
about this number. As seen below, though this does have resolution remain resistant to including women,
a direct impact, there must be a collective commitment claiming a lack of evidence about the positive
and a qualitative change in the understanding of impact of women’s participation.4 They are wary of
‘inclusive’ politics in the context of conflict situations, overloading or derailing the process, and assert
especially by institutions such as the Department of that their performance as mediators is not based on
Political Affairs and the Department of Peacekeeping inclusiveness, but on effectiveness.5
Operations at the UN and their counterparts in Member
States. Over the last few years, there have been many This definition of ‘effective’ is erroneous.
positive changes within these institutions but a great deal More than half of peace processes that reach an
remains to be done. Strengthening their gender capacity outcome lapse back into conflict within the first five
is one way to move forward. years. Women activists rightly point to a history
 41

of peacemaking littered with examples of failed The positive effects of women’s inclusion
mediation attempts and broken peace agreements
that prove that traditional models cannot be justified Based on research undertaken by the Graduate Institute
by existing assumptions about what works and what in Geneva from 2011 to 2015, an in-depth analysis
does not. As one activist has remarked, few patients of 40 peace processes since the end of the Cold
would choose a heart surgeon with only a 50 per cent War, academics have shown that in cases where
chance of success, and yet the international community women’s groups were able to exercise a strong
continues to choose operating models with a low influence on the negotiation process, there was a
effectiveness rate, even when presented with evidence of much higher chance that an agreement would be
better options.6 reached than when women’s groups exercised weak
or no influence.9 In fact, in cases of women’s
participation and strong influence, an agreement
was almost always reached. Furthermore, strong
influence of women in negotiation processes also
Women activists rightly positively correlated with a greater likelihood of
agreements being implemented. When analyzing
point to a history of commissions set up after the peace agreement to
peacemaking littered implement major aspects—from drafting and adopting
with examples of failed a new constitution, to monitoring disarmament or
mediation attempts and a ceasefire, to setting up a truth and reconciliation
broken peace agreements commission—the research found that the more
specifically an inclusive composition of these
that prove that traditional commissions is written into the agreement, the more
models cannot be justified effective they have been in practice.10
by existing assumptions
about what works and what Despite claims of the risk of overburdening processes
does not. through women’s inclusion, in these 40 case studies,
there was not a single case where organized women’s
groups had a negative impact on a peace process,
an observation that does not hold true for other social
actors.11 Quite the contrary, one of the most repeated
The issue of ‘effectiveness,’ of ‘what works’ is, at the effects of women’s involvement in peace processes
same time, core to the justifications for the inclusion of was pushing for the commencement, resumption,
women. The advocacy behind resolution 1325 rests on or finalization of negotiations when the momentum
the argument that under the equality provisions of human had stalled or the talks had faltered.
rights documents, including CEDAW, women have the
right to full and equal representation. This is buttressed This finding is complemented by recent statistical
by recent research that provides concrete evidence that analysis based on a dataset of 181 peace agreements
women’s participation is linked to better outcomes in signed between 1989 and 2011.12 When controlling
general, and that the inclusiveness of peace processes for other variables, peace processes that included
and the democratization of conflict resolution are crucial women as witnesses, signatories, mediators, and/or
to sustained peace and stability.7 Despite this continuing negotiators demonstrated a 20 per cent increase in the
to be openly or implicitly questioned and doubted, the probability of a peace agreement lasting at least two
body of empirical research illustrating the positive role of years.13 This percentage increases over time, with a 35
women’s participation only continues to grow.8 per cent increase in the probability of a peace agreement
42 Chapter 3. Women’s Participation

Relation between the influence of women in peace processes and processes’ outcomes and implementation14

Agreement reached/ Agreement reached/

Influence of Women Ongoing No agreement Agreement reached/ Agreement reached/
Partial Ongoing
in the process negotiations reached No implementation Implemented
implementation implementation
Aceh (1999-2003) Rwanda (1992-1993) IP-Oslo (1991-1995) Tajikistan (1993-2000) Kyrgyzstan (2013-present)
Colombia (1998-2002) Turkey Armenia (2008-2011) Mali (1990-1992)
Georgia-Abkhazia Israel Palestine Geneva
(1997-2007) process (2003-2013)
None to weak Moldova (1992-2005)
Cyprus (1999-2004)

Turkish- Egypt (2011-2013) Eritrea (1993-1997) Solomon Island (2000-2014) Afghanistan (2001-2005)
Kurdish Sri Lanka (2000-2004) Somalia I (1992-1994) Macedonia (2001-2013) Benin (1990-2001)
(2009-2014) Somalia II (2001-2005) Nepal (2005-2012) El Salvador (1990-1994)
Moderate Darfur (2009-2013)
Somalia III (1999-2001)
Togo (1990-2006)

Fiji (2006-2013) Guatemala (1989-1999) DR Congo (1999-2003) Yemen (2011-2014)

Mexico (Chiapas) Kenya (2008-2013)
(1994-1997) Liberia (2003-2011)
Burundi (1996-2013) N.Ireland (2001-2013)
Northern Mali (1990-1996) PNG (1997-2005)
Strong
Somaliland (1991-1994)
South Africa (1990-1997)

*italicized cases were completed before the passage of Resolution 1325

lasting 15 years.15 This builds on previous quantitative The other shift women precipitate relates to the
studies on the link between the inclusiveness of peace deepened peace dividend and its impact on post-
processes and the quality and sustainability of peace conflict peacebuilding. We know that when women
agreements. A clear correlation has been established are placed at the center of security, justice, economic
between more open models of negotiations and a recovery, and good governance, they will be more direct
higher likelihood that the outcome agreements will hold recipients of a range of peace dividends including
and prevent a relapse into conflict. Specifically, peace job creation and public services. This means that the
agreements are 64 per cent less likely to fail when civil pay-offs of peace will be delivered more rapidly to
society representatives participate.16 communities. For example, without livelihoods and
economic empowerment, as the percentage of female-
Past analysis of gendered peace processes has headed households surges during and after conflict,
focused on what women bring to the table with regards women and girls are forced into low-reward, high-risk
to addressing women’s rights or social issues. What work like survival sex, slowing community recovery and
has been less examined is what else women bring to normalization, and deepening the poverty and resentment
the table—namely, a shift in dynamics. Increasingly, of children. With access to income generation and
research is showing that the impact on effectiveness economic security as a result of just peace agreement
is a result of women bringing a particular quality outcomes, however, women tend to be quicker to invest
of consensus building to public debate, not in child welfare and education, to build food security,
necessarily on issues, but on the need to conclude and to rebuild rural economies, greatly contributing to
talks and implement agreements.17 This goal of longer term stability (see Chapter 7: Building Peaceful
consensus building is of particular value to peace talks. It Societies).
underscores the fact that it is important to recognize that
women’s participation must not mean that they are solely In short, women’s inclusion at the peace table
responsible for women’s issues. Instead, they should be shifts the dynamics towards conclusion of talks and
allowed to participate and be decision makers on the full implementation of agreements, and centralizes a
range of issues involved in the peace process. gendered and inclusive perspective on issues of
 43

FOCUS ON

Philippines peace process18

In March 2014, the Philippines government and was credited with supporting solutions to thorny issues
the Moro Islamic Liberation front (MILF) signed a at the negotiation table. Women were also close to
comprehensive peace agreement ending 17 years of one-third of the members of the transition commission
negotiations. The peace agreement paves the way for tasked with drafting the Bangsamoro Basic Law, which
the creation of a new autonomous political entity called is the equivalent of a constitutional document for this
‘Bangsamoro’ in the southern Philippines. new political entity.

The peace agreement had strong provisions on At the same time, women’s civil society groups
women’s rights: eight out of its 16 articles mention supported the process through mass action to prevent
mechanisms to engage women in governance and derailment by spoilers. For example, following the
development, or protect against violence. This was the 2012 Framework Agreement, three weeks of violence
direct result of women’s participation in the negotiations, broke out between the rebel group and the military, and
built on a long history of women’s leadership at local women led peaceful protests to pressure both sides to
and national levels over the years, including under the end the violence and maintain the momentum of the
leadership of two female presidents—Corazón Aquino talks.
and later Gloria Macapagal-Arroyo, who were both
instrumental in re-starting negotiations with the rebel Women’s influence in the negotiations has led to a
group. range of clauses and provisions that directly impact
their empowerment and rights in the new political
The important shift came in 2001, when for the first entity. The MILF initially opposed women’s participation
time, two women were appointed to the five-member in negotiations, but ended up appointing a woman
government panel. Since then every negotiating to represent their side, and have put an end to their
panel appointed by the government has included at pronouncements against women in public roles. The
least one woman. By the time of the signing of the proposed autonomous political entity must set aside
Comprehensive Agreement in 2014, one third of the at least five per cent from the official development
people at the table were women. Other government funds it receives specifically for programmes targeted
bodies supporting the process (the presidential advisor, at women. A consultation mechanism for women is to
secretariat, legal panel, technical working groups) be established, and women are to be included in the
were also headed or composed mostly of women. Bangsamoro council of leaders, and among provincial
In December 2012, Miriam Coronel-Ferrer became governors, mayors, and indigenous representatives.
the first female to chair the government panel. All the Special economic programmes will be established for
women were selected because of their past work for decommissioned female forces of the MILF. The draft
peace in Mindanao, their expertise on negotiation and Bangsamoro Basic Law requires the future Bangsamoro
technical issues, and their representation of significant parliament to enact a law recognizing the important
constituencies through their work in the women’s role of women in statebuilding and development, and
movement. They demanded that the talks include take steps to ensure their representation, including
extensive outreach efforts and public participation, in parliament. The government has announced the
including a national dialogue in 2010 that culminated in construction of six women and peace training centers in
a final report that became the basis for discussions and the proposed Bangsamoro territory.
44 Chapter 3. Women’s Participation

governance, justice, security, and recovery aspects highlighted. Member States and regional and international
of a peace agreement. These concerns, if addressed, organizations committed to stronger action. Five years
can help build a more robust and sustainable peace, later, there have been some notable improvements.
a more rapid return to the rule of law, and increased
trust in the new State.19 Women’s participation also First, there has been an appreciable rise in the
broadens the peace process to larger constituencies number of references to women in the text of peace
beyond the fighting parties and potential spoilers. agreements. Out of 1,168 peace agreements signed
International and national peacebuilding actors have between January 1990 and January 2014, only 18 per
recognized that social exclusion can be a major cent make any references to women or gender. But if one
driver of conflict, and that inclusiveness broadens looks at before and after the adoption of resolution 1325,
the number of stakeholders with an investment in the the difference is notable. Prior to 2000, only 11 per cent
system of governance, which can deepen stability. carried such a reference. Post-2000, this percentage
This is especially relevant with regards to women’s has increased to 27 per cent.20 While this is still a low
inclusion. Women’s participation aids in ensuring percentage, the trend nevertheless is encouraging. As
broader social acceptance and commitment to the monitored by the UN Department of Political Affairs using
peace deal from communities and those affected the global indicators on implementation of 1325, 50
by the conflict, who will equally be affected by the per cent of peace agreements signed in 2014 included
rebuilding of a new society. references relevant to women, peace and security,21 up
from 22 per cent in 2010.22

SIGNS OF PROGRESS IN INCLUSIVE Second, these textual references are more likely to
PEACEMAKING, BUT A LONG WAY TO GO be found in agreements where the United Nations
was involved. Since resolution 1325, 38 per cent of
In 2010, during the tenth anniversary commemoration all agreements mention women or gender equality
of the adoption of resolution 1325, the alarming lack when the UN has been party to the negotiations.23 This
of progress on women’s inclusion—arguably one number has risen significantly in the last five years.
of the most emblematic of the whole agenda—was Of the six agreements emerging from negotiations or

Percentage of peace agreements including at least a reference to women

(1990 to Oct 2000 and Nov 2000 to 2015)24

UNSCR 1325
60%
% of peace agreements referencing women

50%

40%

30%

20%

10%

0%

1990 1995 2000 2005 2010 2015

Year
 45

national dialogues supported by the UN in 2014, four even when gender experts participate, they are not
(67 per cent) contained references relevant to women, always part of the strategic planning teams and at times
peace and security.25 restricted to discussions regarding track II processes. A
more detailed analysis of conditions that can make these
Third, these references are gradually becoming less engagements effective is provided below.
tokenistic. They have moved from general references
to equality towards firmer commitments to women’s Fifth, the overall participation of women in peace
participation in various decision-making bodies, security processes is inching upwards, albeit at far too slow
arrangements, and to specific actions affecting women a rate. In 2012, a study by UN Women indicated that out
such as addressing violence against women and of a representative sample of 31 major peace processes
girls.26 For example, the presence of text that registers between 1992 and 2011, only two per cent of chief
conflict-related sexual violence as a prohibited act in mediators, four per cent of witnesses and signatories, and
UN-supported ceasefire agreements tripled from 2010 nine per cent of negotiators were women.33 A 2008 study
to 2014.27 In Burundi, women succeeded in including that scanned 33 peace negotiations had found that only
provisions on freedom of marriage and the right to choose 4 per cent of participants were women.34 In 2014, women
one’s partner into the peace agreement. In Guatemala, in senior positions were found in 75 per cent of peace
women’s organizations coordinated with the woman processes led or co-led by the UN, compared with only 36
representative at the table to introduce commitments to per cent in 2011.35 In recent years, peace talks to resolve
classify sexual harassment as a new criminal offence conflicts in Colombia and the Philippines in particular have
and establish an office for indigenous women’s rights.28 seen a significantly greater participation of women as
Further, legislative quotas for women are mentioned in 80 delegates or signatories in the formal processes.
per cent of all power-sharing agreements.29 Conversely, in
the few cases where neither the peace agreement nor the Procedures for selection for participation can be
subsequent electoral framework provided for quotas for determined by the mediator, the parties, or agreed
women’s participation in politics, the numbers of women formally by a wider set of actors.36 Such procedures have
represented in the legislature were unusually low and in included invitations, nominations, elections, open-access
the single digits. participation (typical for most public consultations),
and through public advertisement of positions within
Fourth, it has become a more routine practice both key implementation commissions. The more successful
to include gender expertise in mediation support selection processes in terms of inclusivity are transparent,
teams, and to consult with women’s organizations. and carried out by constituents in conjunction with quotas
According to DPA’s monitoring, gender expertise was or other temporary special measures for women. When
provided by the UN to 88 per cent of relevant processes in selection is driven entirely by belligerents, women’s
2013 but only 67 per cent in 2014.30 This is nevertheless capacity to influence the talks, especially with regards
a significant improvement from 36 per cent in 2011. to representing gender equality concerns, is likely to be
Similarly, 88 per cent of all peace processes with UN reduced.
engagement in 2014 included regular consultations with
women’s organizations, a notable rise from 50 per cent in It is important to note that an improvement simply
2011.31 However, consultations for this Study and DPA’s in numbers does not necessarily mean that women
internal assessments have both noted that these meetings are able to effectively influence negotiations and
are sometimes symbolic affairs—lacking thorough shape their implementation. The indicators mentioned,
preparation, representativeness, and follow-up.32 Although important as they are to highlight progress, often mask
gender expertise is systematically offered through the UN a reality that still excludes women from decision-making
Standby Team of Mediation Experts and roster of senior and limits their engagement to tokenistic or symbolic
technical experts, the overall demand from negotiating gestures. As the evidence highlights, the benefits of
parties for these skills remains significantly lower than for women’s participation are only fully realized when there is
other areas of mediation standby expertise. In addition, quality participation and the opportunity for influence.37
46 Chapter 3. Women’s Participation

FOCUS ON

Colombia peace process38

When peace talks between the government and the talks were women, and a sub-commission on gender has
Fuerzas Armadas Revolucionarias de Colombia (FARC) been established to ensure that a gender perspective
collapsed in early 2002, many women’s organizations is incorporated into the peace process, and that the
continued to insist on the need to find political solutions, views of women are included in the negotiations. Many
and to prepare the ground once again for future women now hold leadership positions and key technical
negotiations. In the absence of formal talks and despite advisory positions in the government institution leading
massive public disenchantment with peace processes, the negotiations, the Office of the High Commissioner for
women organized national marches to keep their Peace. Members of the delegations and facilitators have
demands for peace in the public eye. They also worked received both technical information about the gender
quietly in the regions to address the rising violence: dimensions of each item on the agenda of the talks, as
mediating conflicts in their communities; holding direct well as powerfully moving visits by multiple delegations of
dialogues with armed groups to release hostages, victims from all sides of the conflict, a majority of whom
prevent violence and displacement; recovering children are women.
recruited by the armed actors; and lifting road blockades
to secure the passage of food, medicines, and people. UN Women and the UN country team under the
leadership of the Resident Coordinator in Colombia have
When new rounds of peace talks were launched in supported women’s participation in all these aspects—
Norway in late 2012, all of those seated at the table, with from the public consultations, to the victims’ visits to
the exception of one Norwegian moderator, were men. Havana, to the participation of the delegates themselves.
In the formal talks, all of the plenipotentiaries and all but Also included was a landmark National Women’s Summit
one of the up to thirty negotiators on both sides were for Peace, which brought together approximately 450
also men. However, a year later, women’s mobilization representatives of Colombian women’s organizations in
and relentless advocacy, combined with international Bogotá in late October 2013. At the time of this writing,
support, resulted in women making up approximately despite the many challenges and deep divisions in
one-third of the delegates of each side of the ongoing Colombian society, this represents the most promising
peace talks in Havana, Cuba. Further, at least half of round of negotiations to end of one of the longest-lasting
participants in all public consultations about the peace armed conflicts in the world.
 47

THE PERSISTENCE OF BARRIERS TO numbers and process design. The failure to prioritize
WOMEN’S FULL PARTICIPATION inclusion, and as a result sustainable peace, lies within an
overall approach to negotiations, which if to be redressed
“It is not enough to acknowledge the right of women requires a rethinking of overall objectives and pathways
to participate in peace processes. Mediators and to peace. Conflict prevention and resolution, as practiced
negotiators, and donor governments must address today, continues to focus on neutralizing potential spoilers
the very real obstacles to women’s physical presence and perpetrators of violence, rather than investing in
at the negotiation table and at any behind-the-scenes resources for peace.
or after-hours negotiations. For example, in practice,
many women in such situations are not members The intention behind resolution 1325 was precisely to
of the warring parties coming to the table, and will enrich the methods of peacebuilding through the inclusion
not have access to the resources made available of a neglected category of peacemakers and social
to those parties. Women may also have family rebuilders. It is an attempt to illuminate the often invisible,
obligations that men do not have. In order then to informal, and unrecognized role that women and girls play
participate on an equal footing with men, women in conflict prevention and resolution, from peace activism to
may need support for childcare, transportation, day-to-day intra-family and inter-community mediation and
accommodation, and personal security.” reconciliation. It is also an attempt to seize the opportunity
and empower women at the moment when crises and
Sarah Taylor, Coordinator, NGO Working Group transitions have thrust them into new, unconventional
on Women, Peace and Security, at the UN roles; and to bring the benefits of inclusiveness,
Security Council Debate on Women, Peace and representativeness, and diversity to settings and processes
Security, 200839 that are almost exclusively male-dominated.

In recent years, despite the yearly recitation of the In tandem with positive signs and clear proof of the
obligations that emanate from resolution 1325, and a impact of women’s participation in peace processes,
few positive case studies highlighted in this chapter, the the research also found the existence of more
poor levels of representation of women in formal conflict worrisome trends. For example, across the 40 case
resolution processes persist. Whether in peace talks studies examined in the Graduate Institute of
about South Sudan, Mali, or Myanmar, women continue Geneva/Inclusive Peace and Transition Initiative’s
to be excluded or marginalized, and where they do Broadening Participation Project, women’s
participate their influence is often hampered through low inclusion was often contested, rarely a natural
and unforced element of proceedings, and mostly
initiated and achieved via concerted pressure
and lobbying by women’s organizations within the
country, rather than by the conflict parties, the
The intention behind mediators, or the organizers of the negotiations.
resolution 1325 was There are numerous examples where conflict parties
took steps to include political parties or specific civil
precisely to enrich the society organizations—to either gain legitimacy or add
methods of peacebuilding actors to the table that were perceived favorable to their
through the inclusion of agenda—but hardly ever did parties take steps to include
a neglected category of women’s organizations in the peace process. Support
for women’s participation typically came as a result of
peacemakers and social intense lobbying by the local women’s movement and
rebuilders international actors, and was almost never proposed by
the mediation team or the conflict parties.40
48 Chapter 3. Women’s Participation

FOCUS ON

Mali peace process

In the current peace process in Mali, there are over 10 participation for the reconciliation phase, once an
co-mediators, including the UN, the EU, and the AU, agreement has been reached. The diplomats involved
but the lead mediator and several co-mediators have in the international mediation team were all men above
not prioritized the participation of representatives of 55 years of age. Among the 100 delegates from the
women in the peace process, in spite of the substantive three negotiating groups at the talks, there are just five
mobilization of Malian women. Their reluctance is women, and their numbers in the mediation teams are
justified by cultural arguments, fears that it would delay also negligible.41
the negotiations, and a preference for leaving women’s

Even when women participate in significant numbers, Women’s participation also tends, consistently, to
they are not always able to influence the proceedings be limited within a timeframe, rather than sustained
and outcomes. This can sometimes be the result of from the preparatory phases of peace talks or
division among women over key issues or lack of a political transitions, right through to follow-up and
collective voice, but often, it is because a small group implementation. This is true for national dialogues too.
of male leaders makes all the important decisions, While international norms, pressure, and support are
even if the process has been opened up to include increasingly used to ensure that women are included
women’s groups. For example, the 2011 Oslo Joint during transitions, women are rarely included in the
Statement between the government of the Philippines preparation phase, and typically receive insufficient
and the National Democratic Front (NDF)—the support thereafter to implement the gains achieved.45
longest running communist insurgency in Asia—had What is lacking are more (or any) cases in which
approximately one-third female representation around women’s participation was an integral component of
the table. However, many of the women selected by the design of the peace process from the beginning
the NDF were the wives of the organization’s leaders, to the end, as asked for by resolution 1325 and
who had limited legitimacy and influence over the other global norms. In Guatemala, the 1996 peace
majority of NDF members and their operations in the accords included robust provisions on gender
Philippines. Since then, the talks remain on hold.42 equality, resulting from the direct participation of
In the 2001 Somali peace process, women were women in the peace process. And yet, even though
allocated a quota in all six reconciliation committees, women’s organizations continued their advocacy
but any decision required the authorization of a after the agreement, and they had two reserved
leadership committee of male clan elders.43 In 15 of seats in the National Council for the Implementation
the 16 national dialogues examined for this Study, of the Peace Accords, their efforts were mostly
it was found that decision-making was left to a effaced by the lack of political will, the weakness
small group of male leaders.44 of implementation mechanisms, the expansion of
 49

“[P]eace processes
that included women as
witnesses, signatories,
mediators, and/or
negotiators demonstrated
a 20% increase in the
probability of a peace
agreement lasting at least
two years. This increases
over time, with a 35%
increase in the probability
of a peace agreement
lasting 15 years.”

Laurel Stone,
“Quantitative Analysis of Women’s Participation in Peace Processes”46
50 Chapter 3. Women’s Participation

FOCUS ON

Quantity versus quality of women’s involvement – The importance of influence47

During the Kenyan-led 2001-2005 Somali peace process, female CA members formed a women’s caucus. This
an ostensibly significant role was afforded to women. failed however, because ultimately, party loyalties proved
A key element of the process was the operation of six to be more important. These dynamics limit women’s
‘reconciliation’ committees tasked with identifying and impact despite their large numbers—and despite an
presenting recommendations on key causes of conflict. advantageous quota system—and illustrate again that
Although quotas ensured women were represented in all when women are unable to speak with one voice on
six committees, their actual impact on the peace process crucial issues (such as the maternal citizenship issue)
and its overall quality was limited. All decisions arrived and lack a common goal, the result is weak overall
at by the committees required the authorization of a influence.
leadership committee dominated by male clan leaders.
The existence of this leadership committee and the By contrast, in Northern Ireland during the negotiations
decision-making dynamics in place meant that the role of for the Good Friday Agreement (1998) the top
the reconciliation committees, and the women in them, ten political parties represented at the negotiation
was effectively muted. table had no female representation at all. That was
the trigger for a few committed women to form
In Nepal, women’s participation in the Constituent a separate women’s political party (the Northern
Assembly (CA) was given a boost by the adoption of Ireland Women’s Coalition NIWC), which eventually
a quota system, which led to a total of 197 female CA won support and was given a seat next to the other
members out of 601. Women comprised almost 33 per parties at the negotiation table. Although the NIWC
cent of the total CA. They were also represented in a was outnumbered by male-dominated parties, their
number of the CA’s thematic committees. However, the decision-making power was enhanced because they
increased representation did not have a commensurate were negotiating on the same level as the other
impact on their influence. On the one hand, there political parties, and they were able to push for the
was and continues to be huge resistance among inclusion of many issues, which ultimately made
major political parties (mainly male political actors) it into the final agreement. The NIWC pushed for
to challenging inequality, discussing women’s issues equality, human rights and broad inclusion. They
and gender-sensitivity. On the other hand, the female promoted an inclusive, cooperative process, and put
political actors are divided over key issues and seriously women’s participation and women’s rights on the
lack a collective voice, which is affecting progress on top of the political agenda. The NIWC also focused
women’s issues. In an effort to improve their advocacy on preventative measures against violence, and on
for women’s issues and to develop a common agenda, prosecutions of cases on violence against women.
 51

transnational companies engaged in extractive The role of the mediator is one of the most important
industries, the significant growth of organized crime factors in determining the quality of women’s
(mainly drug trafficking), and the resulting insecurity participation in peace talks. This is the role played by
and militarization.48 Robinson in the Great Lakes and Machel in Kenya,
or Mandela in Burundi, Arnaud in Guatemala, and
Finally, the logistical barriers to participation Benomar in Yemen, among others.51 The engagement
that women face cannot be ignored. For example, of women in Yemen’s (2013-14) National Dialogue
they may need to organize childcare, they may offers an example of what can be achieved even
lack funds to travel, or they may require security to in one of the least propitious circumstances for
attend meetings. Support centers are one way of women’s political empowerment. It illustrates how
strengthening the participation of women’s groups the design of the rules and structures of a political
during negotiations. For example, during the 2001- dialogue, and the influence of the mediator’s role,
2005 Somali peace negotiations, women benefitted can determine the extent to which women’s voices
from a number of support structures sponsored by are heard. Yemen is also a striking example of
international organizations. Key among these was the importance of senior leadership and political
a resource center, fully equipped with computers, will. Whatever the subsequent developments, the
photocopiers, printers, and internet access. As one achievement of women’s inclusion in the national
of the few locations with adequate communications dialogue process despite great contextual constraints
equipment during the negotiation proceedings, the stands in stark contrast to the peace talks being
center provided women’s groups with direct lobbying embarked on in Syria at the same time. Despite
access to influential figures who were forced to use Syria’s longer history of women’s empowerment and
their equipment.49 greater number of educated women, the justification
of ‘cultural resistance’ was used far too easily.52 While
no two situations are comparable,53 and each context
Emerging good practice in women’s engagement demands its own set of uniquely designed responses,
for peace in a shifting global political context where the UN’s
relevance is increasingly questioned, a consistent
In recent years, a standard of gender-responsive commitment to universal norms and standards is an
peace processes has begun to take shape. Mediation important contributor to legitimacy.
actors know—or should know—that technical gender
expertise should always be available to the negotiating
parties and as part of the mediation support teams;
that women’s organizations need to be regularly
consulted from the outset and all the way through the In a shifting global political
implementation phase; that the agenda and outcome context where the UN’s
documents should explicitly address women’s needs relevance is increasingly
and priorities; and that the significant representation
of women should be provided for at the peace table
questioned, a consistent
and in the institutions responsible to implement any commitment to universal
agreement. Many actors involved in peace processes norms and standards is an
may be supportive of greater gender equality, but important contributor to
would like more information and guidance about legitimacy.
the specific modalities to achieve this in the actual
management of a peace process.50
52 Chapter 3. Women’s Participation

FOCUS ON

Sudan peace process54

In the IGAD-led talks in Addis Ababa, after more accountability, healing and reconciliation, as well as
than 10 rounds of negotiations and at least 7 broken their economic empowerment. However, gender-specific
ceasefires over a year and a half, women had only programming language, in areas such as humanitarian
token representation at the table. Though they were aid, security sector reform and DDR, remained
allocated some seats, the selection process was co- insufficient. In addition, the text adopted did not define
opted by the warring parties. Nevertheless, the peace a clear a role for women or civil society in monitoring
agreement signed in August 2015 revealed efforts to the ceasefire and the implementation of the peace
take into account both the participation of women in the agreement. It also did not address crucial matters about
peace and political processes, women’s specific needs the return of IDPs, prisoners of war, and child soldiers.
in and after the conflict, including transitional justice,

FOCUS ON

Yemen national dialogue55

The ten-month National Dialogue Conference (NDC) in • The National Dialogue’s Preparatory Committee
Yemen in 2013 offers several important lessons. One consisted of 19 per cent women. After much
is that stark gender inequality and cultural objections lobbying from women’s groups and the Special
to women’s empowerment can be overcome by good Advisor, the committee ultimately agreed on a 30 per
design and sustained pressure by the local women’s cent quota for women.
movement and international actors.
• In addition to this quota for women across all
In 2013, the World Economic Forum’s Global Gender constituencies, women had their own delegation of
Gap Index ranked Yemen’s disparities the worst in the 40 seats. The Preparatory Committee agreed on a
world in education, health, and economic and political three-part quota for NDC participants: 50 per cent
life. And yet, in response to Yemeni women’s demands, from Southern Yemen, 20 per cent youth, and 30 per
and building on their role during the revolution, the UN cent women. This quota applied across all groups
Special Advisor on Yemen at the time, Jamal Benomar, represented so that, for instance, youth needed to
was able to create conditions for women’s voice in include 30 per cent women, and women needed to
conflict resolution. With the support of UN entities like include 20 per cent youth. The ‘package’ quota that
UN Women and UNFPA, and international NGOs like tied the percentage of women and youth to that of
Oxfam, NDI, the Berghof Foundation, and Friedrich Ebert Southern groups may have helped prevent it from
Stiftung, the following innovations were achieved: unraveling in later discussions.
 53

• Most constituencies included women as part of their transition. These groups provided technical inputs on
delegation as required, but the Salafis left seats in issues that would affect women’s equity in the final
their delegation empty rather than include women. constitution, including electoral systems and quotas,
Overall, 28 per cent of participants were women transitional justice, and constitutional provisions on
(161 out of 565). Each constituency selected their gender equity.
own representatives, including the women, but both
the independent bloc of women and the presidential • The Office of the Special Advisor set up a meeting
appointees were selected via an open application space—the Women’s Dialogue Forum—where women
process. representatives could meet amongst themselves
and with local NGOs. Members of this Forum
• Conference resolutions were drafted by thematic reviewed the outputs from each working group with
working groups. Each working group was led the support of gender specialists, shared proposed
by a chairperson, two vice-chairpersons, and a amendments with all participants, consulted with
rapporteur. In each working group, at least one of NGOs, and compiled recommendations for each
these leadership positions was filled by a woman. of the working groups. These meetings took place
Three out of nine working groups were chaired by about once a week. Members of the Forum also held
women. The consensus committee, which helped a number of meetings with NGOs at the governorate
resolve issues that working groups could not agree level. The UN team was careful to avoid meeting
on, consisted of 25 per cent women. times that would prevent women from attending if
they had traditional obligations in the home such as
• Resolutions at the working group and conference preparing meals or looking after children.
level required 90 per cent approval to be adopted
(going down to 75 per cent in second round Many issues related to gender equality arose during
voting), making it impossible to pass resolutions the NDC, including the age of marriage (18 years), a
over the objections of the majority of women in the 30 per cent quota in parliament, the right to education,
conference. paid maternity leave, criminalization of violence against
women and sex trafficking, and the right to work. Women
• All participants were asked to make a televised two- who participated in the NDC reportedly experienced
minute presentation at the start of the conference, substantial empowerment through networking, developing
which ensured that everyone had at least one new political skills, and learning to lobby, including the
opportunity to be heard. Additionally, before the ability to speak out in the company of men, which many
National Dialogue started, USAID sponsored a had never done before. The NDC recommendations
national women’s conference. were submitted to the Constitutional Drafting Committee,
where women were represented in the same proportion
as in the National Dialogue. Although suspended due
• A focal point for women and a focal point for youth
to the deterioration of the security situation, the National
were recruited within the Special Advisor’s team
Dialogue outcome document and draft constitution are
and a consultant hired56 to support women’s civil
understood as the foundation for the future in Yemen.
society and political groups on engaging in Yemen’s
54 Chapter 3. Women’s Participation

DRAWING ON TRACK 2 PROCESSES AND investment at the local and sub-national level—or track
WOMEN’S ACTIVISM 2—where many women are already brokering peace
or shoring up the resilience of communities against
“Women are not absent because they lack the spread of conflict, is just as important and may
negotiating skills or because they cannot make be neglected. Increasing women’s participation in
vital contributions to peace processes. In peace processes requires shifting the parameters
Colombia, women’s groups have united to create of what we consider ‘political.’ For the UN this
Women for Peace, a new movement offering entails first, broadening the process beyond the
concrete recommendations and proposals for political and military elite that is often male, and
the nascent peace process. Malian women, […] second, adjusting hierarchical conceptions of track 1
have been active for months over the crisis in and track 2 peace processes.
Mali, asserting their right to engage in the efforts
to bring about a political solution to the crisis, What counts as adequate engagement of women on
and reminding all actors that women have been the ground, or significant participation of women in
specifically targeted in the violence, especially in peace processes? While there are many examples of
northern Mali.” women’s roles in peace processes over the last two
decades, these are typically not standard modes of
Bineta Diop, Founder and President of Femmes engagement that would ensure a minimum level of
Africa Solidarité, Security Council Open Debate on women’s inclusion. For many of them, women have
women, peace and security, 201257 had to overcome great barriers to participation. They
have neither enjoyed open doors nor standard modes
By focusing only on formal, national level processes, of engagement that would ensure a minimum level of
the international community literally shapes or women’s inclusion. There is no shortage of stories of
constructs what is seen as relevant and decisive in exceptional women making a difference by their sheer
peace processes, without sufficiently recognizing that courage and tenacity, as has been detailed above.

The narrow focus on national and international formal

peace processes, which often stumble or stall,
prevents full consideration from being given to the
The narrow focus on multiple actors often busy with track 2 processes,
national and international such as building peace and security ceasefires in
formal peace processes, conflict-affected communities.
which often stumble
These sub-national and local mediation initiatives,
or stall, prevents full where women usually have a very prominent role,
consideration from being receive wholly inadequate recognition and support. In
given to the multiple actors Syria, women negotiate cessations of hostilities and
often busy with track humanitarian access at the local level, but they have
until recently remained largely marginalized from the
2 processes, such as
formal attempts to address the crisis in their country,
building peace and security In spite of engaging in advocacy at the highest
ceasefires in conflict- political level both with the UN-Arab League mediator
affected communities. and the UN Security Council. In South Sudan, women
continue to mobilize for peace and promote dialogue
between the factions, as well as in relation to the
 55

tensions with Sudan, in spite of high personal cost,58 community and track 2 initiatives. Importantly, in this
and yet their ability to influence the formal process context, in its political work, the UN must ensure that
meaningfully remains elusive. its engagement with regard to women’s participation
represents the diversity of women in the country
In Colombia, as in South Sudan, women’s participation concerned; and that political and societal factors
and leadership in community peace processes have that have the potential to either hinder or facilitate
proved essential to sustaining track 1 processes. women’s inclusion in peace processes are adequately
Broadening the political therefore calls for an considered, such as public and elite support, and the
expansion of the notion of ‘peace process’ to include power of regional actors.

FOCUS ON

Women for peace and dialogue in Burundi59

In Burundi, recent political and electoral conflicts have peace and to identify strategies to build community
led to confrontations between security forces and security.
protesters, and at times, imprisonment of protestors
and civilians, significant displacement of populations Operating in groups of four mediators in 129
and growing tension and conflicts throughout the municipalities across the country, the network of
country. This is compounded by a lack of reliable women mediators was able to deal with more than
information that has the effect of inflaming tensions. 3,000 local conflicts between January and May 2015,
the majority of which were increasingly of political
Burundian women have historically played an and electoral nature. The mediators initiated dialogue
important role as agents of peace, thanks to their between the authorities, security forces, political
ability to initiate mediation and reconciliation parties, protesters, CSO and citizens. They limited
processes, to bring conflicting parties together and the negative impact of demonstrations by sensitizing
to re-start peaceful dialogue between various actors. demonstrators on the respect of personal property
A new nationwide network of women mediators, and the importance of nonviolent behavior. They
established by the UN in close partnership with the also advocated for the release of demonstrators
Ministry of Interior and civil society organizations, has and opposition parties’ members. Women mediators
proven effective in preventing violence at the local further protected families who were accused of
level, dispelling false rumors, and mitigating the impact fleeing; sought to promote tolerance by initiating
of the ongoing political crisis on populations. Through dialogue among conflicting parties and advising on the
their collaboration with provincial and local authorities, constructive handling of political and electoral conflict;
this network of women mediators has shared relevant promoted dialogue and understanding among divided
information, including early warning, and encouraged groups and communities; and countered rumors and
the organization of local consultations to discuss exaggerated fears with verifiable information.
56 Chapter 3. Women’s Participation

Transmitting women’s voices – the role of In consultations for this Study, partners raised the
external actors issue of training for women from civil society—for
example in coalition building, strategic communication,
Women have used a range of methods to engage stakeholder mapping, partnerships, and mediation.
in peace talks: through direct representation at the While the evidence points to the enhanced impact
negotiation table, as observers, as part of official or semi- and influence as a result of women’s groups
official consultations, in commissions set up to manage preparedness, the general sense was that women
the process or implement the agreements, in specific do not necessarily lack skills; and that this oft-
workshops, as part of public decision-making (for repeated solution of capacity building as the road
example, elections and referendum), and through mass to inclusion, is often simply one way of excluding
action.60 Important details, like the selection procedures women owing to their lack of capacity and skills.64
for participants or the mechanism by which civil society This is frequently used as a convenient justification
or external actors can feed ideas to the parties of the for ignoring women’s voices. Rather, what is needed
negotiation, can have significant bearing on the nature is training and awareness-raising of (mostly-male)
and impact of women’s participation. As mentioned gatekeeper, particularly on the importance of women’s
earlier, the role of external actors such as mediators and engagement.65
envoys can be particularly relevant in this regard.

Research has found that the most effective strategies

to ‘transfer’ the results of consultations for women or
the agreed priorities of women’s organizations, is to
combine the ‘insider’ tactics of submitting position
One of the most repeated
papers directly to negotiators and meeting with effects of women’s
mediators, negotiators, or technical advisors, with involvement in peace
‘outsider’ tactics like issuing public reports, lobbying processes was pushing
international actors, and conducting media outreach.61
for the commencement,
A very successful ‘transfer’ strategy used by women’s resumption, or finalization
networks and coalitions is the development of a of negotiations when the
common document expressing a unified position of momentum had stalled or
a cross-section of women’s groups, which can then the talks had faltered.
be handed to mediation and negotiation teams. In
Kenya, Machel helped women’s groups negotiate their
differences and come up with one joint memorandum
to be submitted to the AU panel, and most of its
provisions found their way into the agreement.62 In
South Africa, the National Women’s Coalition, after Political will and political skill are key to integrating
extensive research and discussion, produced the and amplifying women’s voices in political dialogue.
‘Women’s Charter for Effective Equality.’ which had Political will is applied by parties to political
significant influence on the content of the constitution, settlements and their supporters when they proactively
law, and policy.63 This demonstrates again that few engage women leaders and women’s organizations
factors are more important than then strength of the in dialogue to resolve conflict—especially when this is
women’s movement in a given country, and why it is perceived as alien to local political practice. Skill is
important for the international community to provide exercised constantly by mediators and political actors
them with sustained, long-term support. when they build political space for compromise and
 57

women’s participation is considered essential, and this

process has raised the perceived political significance
Increasingly, research is and actual impact of the women involved.
showing that the impact
Women advocates frequently face a dilemma in trying
on effectiveness is a to engage in peace talks. On the one hand, without
result of women bringing a firm policy specifying the time period within which
a particular quality of external actors mediating a conflict should meet with
consensus building women leaders, the types of women’s organizations
to public debate, not they should seek out, the frequency of meetings
and even the subjects that ought to be addressed,
necessarily on issues, but such encounters usually simply do not occur. On
on the need to conclude the other hand, there is considerable reluctance to
talks and implement tie the hands of mediators or envoys with specific
agreements. requirements or constraints on the concessions they
can make to negotiating parties in exchange for
promises to participate in talks or to come to key
agreements.

reconciliation. This can involve crafting coalitions and For this reason, practical actions to increase women’s
supporting the emergence of new political forces numbers in peace talks or to amplify their voice
that are inclusive and democratic. Often, women’s have never taken the form of hard requirements. Past
groups are politically marginalized by dominant local recommendations therefore have urged mediators
political actors and invisible to external actors, so the ‘where possible’ to do what they can to build women’s
skill required to elevate their political importance is engagement in political dialogue. In essence, such
considerable, and unfortunately, all too rare. recommendations urge mediators to make a good faith
effort, with no accountability system to monitor whether
By making no effort to engage women’s groups, any such effort was made, nor whether it went far
external actors can actually mirror domestic misogyny. enough. Stricter or more specific requirements—such
Sometimes this is out of a lack of effort to do as establishing a time-frame within which mediators
otherwise, and sometimes it is out of an exaggerated must consult with representatives of women’s
respect for what are perceived to be local mores. organizations, or requiring such consultations to recur
This same respect for social norms however, is with a specific frequency; or mandating that mediators
not extended when it comes to the participation of help negotiate between women’s groups and other
other groups deemed crucial to successful political political actors to secure influential positions for
dialogue—such as key power-brokers in exile, business women in political processes—are generally rejected
leaders, representatives of refugee communities, or as overly crude instruments.
representatives of marginalized regions, religions or
races. Some of these interest groups may not be While these might be inappropriate to a particular
welcomed by dominant domestic political interests, context or process, or they might trigger backlash
but external actors often know their participation is or work better at a later stage of the process, in the
crucial, and use their political skill to ensure their absence of such good faith actions by mediators
engagement. In the rare cases in which mediators and envoys after fifteen years of pleas to consult with
have done this for women, their actions have had the women, the time has come to propose more specific
valuable effect of signaling to local interlocutors that measures that can be monitored and accounted for.
58 Chapter 3. Women’s Participation

RECOMMENDATIONS

Moving progress beyond 2015: Proposals for action

The UN should: including leaders of belligerent parties, to include

women in their delegations and to address
✓ Include a specific responsibility drafted into the women’s concerns in their negotiations. Member
Terms of Reference of every mediator and envoy, states in contact groups supporting specific
every SRSG and Deputy SRSG, to advance peace processes could offer the negotiating
women’s engagement in national decision-making parties various incentives to do this—training,
processes, and specifically all aspects of conflict logistical support, or adding delegate seats for
resolution, power-sharing, national dialogue and example.
reconciliation.
✓ Commit to include agenda items on women’s
✓ Ensure that UN-appointed mediators and special participation in meetings with Groups of Friends
envoys report on their consultations and outreach and other facilitators of national dialogue,
to women’s groups in line with Security Council including organizing meetings between
resolution 2122 (2013). representatives of national women’s organizations
and the Member States making up Groups of
Friends.
Member States, the UN, and the international
community should:
✓ For each process, develop and fund a strategy
of long-term support to build the capacity of
✓ Ensure that all actors, mediators, Groups of Friends, women’s networks to engage in political dialogue,
and parties to the conflict guarantee that women’s strengthen the gender awareness of mediators,
participation in talks is equal and meaningful, and facilitators and conflict parties, address practical
barriers to their participation, whether these exist in issues that may limit women’s engagement—from
law or in practice, are completely eliminated. granular details such as procedures for circulation
of agenda and materials to bigger issues like
✓ Desist from any use of observer status as a the use of local languages, and protect women
substitute for real and effective participation. Women activists from potential backlash.
should not be on the sidelines observing, but an
integral part of negotiations and decision-making on ✓ Advocate for and support inclusive and
the future of their country. transparent selection criteria for women at
negotiations or beyond, including, for example, by
✓ Invest in developing tools that examine the gendered ensuring women’s participation in the leadership
impacts of various outcomes of peace talks, whether committees of peace talks, national dialogues,
they be federalism, constitution making, transitional and consultative forums; and creating formal
justice, power sharing, or cease fire provisions. mechanisms to transfer women’s demands to the
negotiation table.
✓ Commit to mediate between women’s
organizations and dominant national political ✓ Support women’s engagement and participation
leaders to encourage national political actors, not just in peace talks, but in preventive
 59

diplomacy and the monitoring and implementation ✓ Commit to raise, as a matter of course and
of agreements. This should be extended to both routine, specific gender issues for inclusion
the preparatory and implementation phases of in ceasefires and peace talks, such as the
peace processes and political transitions, rather prevention of sexual violence, justice for gender
than limited to a given round of negotiations or crimes, temporary special measures for women’s
national dialogue. political engagement, specific gender quotas
in the leadership of post-conflict commissions
to implement the peace accord, and gender-
Member States should: specific provisions in administrative and economic
recovery arrangements (including women’s
✓ Increase the number of women in their foreign land access and property rights). For example,
service and national security establishments, and military power sharing should focus not just on
take steps to ensure that women diplomats are merging armies and command structures, but also
engaged in leadership roles in conflict resolution. putting in place rights protections, civilian and
democratic accountability, and ensuring women’s
representation throughout. Territorial power-sharing
Mediators and Special Envoys should: should include protection for women’s rights and
participation at the sub-national level, with attention
paid to the relationship between women’s rights
✓ Assume a specific responsibility to advise all
and local customary and traditional laws.
parties to dialogue/peace talks/constitutional
reform about the value of temporary special
measures to increase the numbers of women ✓ Commit to include a gender advisor on the
on negotiating parties. At the same time, the mediation team as well as to include women who
mediator/envoy’s office must advise national are experts in political analysis and other areas
women’s organizations of the range of temporary covered by the team.
special measures available and their effectiveness
in other contexts. ✓ Recognize that women’s participation does not
mean that they are solely responsible for women’s
✓ Commit to meet with representatives of a cross- issues, but that they are allowed to participate and
section of women’s organizations within the first be decision-makers on the full range of issues
30 days of any deployment, and to follow this with involved in the peace process.
periodic (at least four times a year), scheduled,
and minuted meetings. These meetings should be ✓ Commit to ensure that technical experts on a
used not only to hear women’s perspectives on mediators’ team are trained on the gender-related
conflict resolution, but also to provide women’s aspects of their technical area, and that these
groups with information about opportunities to technical experts themselves have the relevant
engage in upcoming dialogue, donor conferences, technical knowledge on the impact of women’s
and informal and formal peace processes. participation and the skills to support effective
inclusion.
60 Chapter 3. Women’s Participation

REFERENCES
1. Marie O’Reilly, Andrea Ó Súilleabháin, and Thania and Peace Agreements between the Philippines and the
Paffenholz, “Reimagining Peacemaking: Women’s Roles National Democratic Front,” 2015; Christine Bell, Sissela
in Peace Processes” (International Peace Institute, June Matzner, and Catherine O’Rourke, “A Chronology of
2015), 1. Colombian Peace Processes and Peace Agreements,”
2015; and Irene M. Santiago, “The Participation of
2. Pablo Castillo Diaz and Simon Tordjman, “Women’s
Women in the Mindanao Peace Process,” June 2015.
Participation in Peace Negotiations: Connections between
as well as a growing body of existing research on the
Presence and Influence,” in UN Women Sourcebook on
impact of women’s participation: O’Reilly, Ó Súilleabháin,
Women, Peace and Security (UN Women, 2012).
and Paffenholz, “Reimagining Peacemaking: Women’s
3. Suzanne Kianpour, “Iran Negotiations: The Women Roles in Peace Processes”; Laurel Anne Stone, “Women
Who Made the Iran Nuclear Deal Happen,” BBC News, Transforming Conflict: A Quantitative Analysis of Female
August 6, 2015, http://www.bbc.com/news/world-us- Peacemaking,” Available at SSRN 2485242, 2014, http://
canada-33728879. papers.ssrn.com/sol3/papers.cfm?abstract_id=2485242.
4. O’Reilly, Ó Súilleabháin, and Paffenholz, “Reimagining 9. Paffenholz et al., “Making Women Count: Assessing
Peacemaking: Women’s Roles in Peace Processes.” Women’s Inclusion and Influence on the Quality and
Sustainability of Peace Negotiations and Implementation.”
5. Ibid., 4.
Cross-tabulation shows the degree of women’s
6. Remarks made by Sanam Anderlini, Executive Director influence on the negotiation/implementation/outcome of
of the International Civil Society Action Network (ICAN) cases. 40 in-depth qualitative negotiation case-studies
at the symposium ‘Negotiating a Better Peace: Women analyzed, including implementation in period 1999-2013.
and Civil Society at the Table’, organized by UN Women, Participation/inclusion was defined as taking part in an
ICAN, Global Network of Women Peacebuilders (GNWP) inclusion modality in both official and non-official roles.
and the United States Institute of Peace (USIP), June Negotiation cases include peace, constitution-making and
2014. political transition negotiations. Sustainability ofagreements
refers to the degree to which provisions are addressed in
7. For some years the international community has noted the post agreement phase and conflict-related violence
the need for transitions to be ‘inclusive enough’ in order reduced 1 year and 5 years after agreements. Values
to succeed (see, in particular, “World Development aggregated on case level, which may obscure women’s
Report 2011: Conflict, Security and Development” (The influence or lack thereof on some inclusion modalities.
World Bank, 2011).). While the norm of inclusion seems
to be well-established and prioritized by mediators, the 10. Paffenholz et al., “Making Women Count: Assessing
question of who is included is less decided. In practice, Women’s Inclusion and Influence on the Quality and
women have not been seen as a necessary group Sustainability of Peace Negotiations and Implementation,”
for inclusion as they are not traditionally perceived as 40-43; O’Reilly, Ó Súilleabháin, and Paffenholz,
potential spoilers. See, Sara Hellmüller, Julia Palmiano “Reimagining Peacemaking: Women’s Roles in Peace
Federer, and Mathias Zeller, “The Role of Norms in Processes,” 17.
International Peace Mediation” (NOREF Norwegian
11. Paffenholz et al., “Making Women Count: Assessing
Peacebuilding Resource Centre, 2015).
Women’s Inclusion and Influence on the Quality and
8. This section draws on research commissioned from Sustainability of Peace Negotiations and Implementation,”
academics, policy analysts and practitioners for the 40-43; O’Reilly, Ó Súilleabháin, and Paffenholz,
Global Study, including: Thania Paffenholz et al., “Reimagining Peacemaking: Women’s Roles in Peace
“Making Women Count: Assessing Women’s Inclusion Processes,” 11.
and Influence on the Quality and Sustainability of
12. Laurel Stone, “Quantitative Analysis of Women’s
Peace Negotiations and Implementation” (Graduate
Participation in Peace Processes,” Annex II in
Institute Geneva, Centre on Conflict, Development and
“Reimagining Peacemaking: Women’s Roles in Peace
Peacebuilding, April 13, 2015); Christine Bell, “Text and
Processes.”
Context: Evaluating Peace Agreements for Their ‘Gender
Perspective’” (University of Edinburgh, Global Justice 13. Ibid.
Academy, UN Women, March 2015); Christine Bell,
14. Paffenholz et al., “Making Women Count: Assessing
“Unsettling Bargains? Power-Sharing and the Inclusion of
Women’s Inclusion and Influence on the Quality and
Women in Peace Negotiations” (University of Edinburgh,
Sustainability of Peace Negotiations and Implementation,”
Political Settlements Research Programme, March
21.
2015); Virginia Bouvier, “Gender and the Role of Women
in Colombia’s Peace Process” (UN Women, April 27, 15. Stone, Quantitative Analysis of Women’s Participation
2015); Christine Bell and Vanessa Utley, “Chronology of in Peace Processes,” Annex II in “Reimagining
Mindanao Peace Agreements,” 2015; Christine Bell and Peacemaking: Women’s Roles in Peace Processes.”
Helia Farahnoosh, “Chronology of the Peace Process
 61

16. Desirée Nilsson, “Anchoring the Peace: Civil Society Peace and Security in the Conflict Prevention and
Actors in Peace Accords and Durable Peace,” Resolution Work of the UN Department of Political Affairs
International Interactions 38, no. 2 (April 2012): 258. See (2010-2014),” 14.
also, Thania Paffenholz, Darren Kew, and Anthony Wanis-
26. Bell, “Text and Context: Evaluating Peace Agreements for
St. John, “Civil Society and Peace Negotiations: Why,
Their ‘Gender Perspective.’” Out of all the agreements
Whether and How They Could Be Involved,” International
that mention quotas for women, 79 per cent of them were
Studies Association Conference, March 2006.
signed after resolution 1325. Similarly, as for specific
17. Paffenholz et al., “Making Women Count: Assessing provisions related to violence against women and girl, 83
Women’s Inclusion and Influence on the Quality and per cent of them appear in agreement signed after 1325
Sustainability of Peace Negotiations and Implementation.” was adopted.
18. Santiago, “The Participation of Women in the Mindanao 27. “Report of the Secretary-General: Women and Peace and
Peace Process.” Security,” UN Doc. S/2014/693 (United Nations Security
Council, September 23, 2014), box 9.
19. For further elaboration, see Michelle Bachelet,
“Empowering Women to Meet New Challenges, from 28. Christine Bell, “Unsettling Bargains? Power-Sharing
National Development to Conflict Prevention and and the Inclusion of Women in Peace Negotiations”
Post-Conflict Recovery,” UN Women, May 17, 2011, (University of Edinburgh, Political Settlements Research
http://www.unwomen.org/en/news/stories/2011/5/ Programme, March 2015), 23.
empowering-women-to-meet-new-challenges-fromnational-
29. O’Reilly, Ó Súilleabháin, and Paffenholz, “Reimagining
development-to-conflict-prevention-and-post-c.
Peacemaking: Women’s Roles in Peace Processes,” 11.
20. Bell, “Text and Context: Evaluating Peace Agreements for
30. This data is calculated annually by UN Women for the
Their ‘Gender Perspective.’”15
report of the Secretary-General on Women and Peace
21. “Report of the Secretary-General: Women and Peace and and Security. See, “Secretary-General’s Report on
Security,” UN Doc. S/2015/716 (United Nations Security Women and Peace and Security (2015),” para. 19.
Council, October 9, 2015), para. 14. DPA has been
31. Ibid., para. 20.
tracking data since 2011 against the indicator on “the
percentage of peace agreements with specific provisions 32. “Taking Stock, Looking Forward: Implementation of UN
to improve the security and status of women and girls.” Security Council Resolution 1325 (2000) on Women, Peace
See, “Taking Stock, Looking Forward: Implementation of and Security in the Conflict Prevention and Resolution Work
UN Security Council Resolution 1325 (2000) on Women, of the UN Department of Political Affairs (2010-2014).”
Peace and Security in the Conflict Prevention and
33. Castillo Diaz and Tordjman, “Women’s Participation in
Resolution Work of the UN Department of Political Affairs
Peace Negotiations: Connections between Presence and
(2010-2014)” (United Nations Department of Political
Influence.”
Affairs, March 2015).
34. Vicenç Fisas, “Anuario 2008 de Procesos de Paz”
22. “Report of the Secretary-General: Women and Peace and
(Barcelona: Escola de Cultura de Pau, 2008), 20–22.
Security,” UN Doc. S/2015/716 (United Nations Security
Council, October 9, 2015), para. 14. 35. This data is calculated annually by UN Women for the
Secretary-General’s report on Women and Peace and
23. Bell, “Text and Context: Evaluating Peace Agreements for
Security. See “Secretary-General’s Report on Women and
Their ‘Gender Perspective.’” This is in contrast to 25 per
Peace and Security (2015),” 12–13.
cent when the UN is not a party to negotiations.
36. Paffenholz et al., “Making Women Count: Assessing
24. Bell, “Text and Context: Evaluating Peace Agreements
Women’s Inclusion and Influence on the Quality and
for Their ‘Gender Perspective,” 15 and appendix I. These
Sustainability of Peace Negotiations and Implementation,”
figures include any reference to ‘gender,’ to ‘women’
28-29.
or to a type of woman--for example: widow, girl, girl-
orphans, mothers, or wives; to a women’s organisation 37. Paffenholz et al., “Making Women Count: Assessing
(even just as a signatory to the agreement); to a women’s Women’s Inclusion and Influence on the Quality and
convention; or to resolution 1325 itself; to gender- Sustainability of Peace Negotiations and Implementation.”
violence, or sexual violence, or specific crimes of sexual
violence such as ‘rape’; and to sex or gender equality 38. For a longer history of women’s engagement in the peace
(but not general references to equality where these terms process in Colombia, see Bouvier, “Gender and the Role
were not specifically mentioned). of Women in Colombia’s Peace Process.”

25. “Taking Stock, Looking Forward: Implementation of UN 39. “NGO Working Group on Women, Peace and Security
Security Council Resolution 1325 (2000) on Women, to the Security Council Debate on Women, Peace and
62 Chapter 3. Women’s Participation

Security” (Peacewomen, October 29, 2008), http://www. Initiative,” ICAN, accessed September 10, 2015, http://
peacewomen.org/sites/default/files/ngowg_wps_08_0. www.icanpeacework.org/better-peace-initiative/. DPA’s
pdf. high-level seminar on gender and inclusive mediation
processes, supported by the EU, Norway, Finland and in
40. There are a few exceptions, such as: the Burundi
partnership with Crisis Management Initiative and PRIO,
peace process from 1999-2003, the government of the
has been conducted eight times, reaching 168 envoys,
Philippines in negotiations in 2001 and since 2004,
mediators, and senior officials. The seminar addresses
the National Democratic Front in the Philippines in
skills and strategies for more inclusive process design
2011, the reconciliation committees of the 2001 Somali
and options for gender-related provisions in agreements,
peace process, and the Free Aceh Movement (GAM) in
including specific language for key thematic areas.
Indonesia in 2005. In addition, the Papua New Guinea-
Bougainville Peace Negotiations from 1997-2005, 51. Mary Robinson, the first woman appointed by the UN
women were one of three main groups at the peace as a chief mediator, launched the Great Lakes Women’s
table, and were among the signatories of the 2001 Peace Platform for the Peace, Security and Cooperation
Agreement. Women in Papua New Guinea traditionally Framework, to ensure that women in the region were
played a significant role in dispute resolution. See, engaged in the implementation of the agreement. By
O’Reilly, Ó Súilleabháin, and Paffenholz, “Reimagining January 2015, 36 women’s groups had received grants
Peacemaking: Women’s Roles in Peace Processes”; through this platform, with additional grantees to be
Paffenholz et al., “Making Women Count: Assessing selected throughout 2015.
Women’s Inclusion and Influence on the Quality and
52. Despite their involvement in activism within the country,
Sustainability of Peace Negotiations and Implementation.”
Syrian women have been largely excluded from high
41. O’Reilly, Ó Súilleabháin, and Paffenholz, “Reimagining level peace processes. See, Hibaaq Osman, “Where
Peacemaking: Women’s Roles in Peace Processes,” 9. Are the Syrian Women at the Geneva Peace Talks?,” The
Guardian, January 23, 2014, http://www.theguardian.
42. Ibid., 20–21. The government maintains a negotiating
com/commentisfree/2014/jan/23/syria-women-geneva-
panel of five members that includes two women who both
peace-talks.
have strong affiliations with peace advocacy groups and
civil society organizations in the Philippines. 53. While one relates to peace talks and the other to a
national dialogue process, both are processes for
43. Ibid., 29.
transition and negotiation.
44. Paffenholz et al., “Making Women Count: Assessing Women’s
54. Kelly Case, “Without Inclusion, No Hope for Peace in
Inclusion and Influence on the Quality and Sustainability of
South Sudan,” New America - The Weekly Wonk, August
Peace Negotiations and Implementation,” 29.
13, 2015, http://www.newamerica.org/the-weekly-wonk/
45. Research undertaken through an independent study by without-inclusion-no-hope-for-peace-in-south-sudan/.
Kristi Samuels, commissioned by UN Women in 2015 on
55. Research through an independent study by Kristi
national dialogues and participatory political transitions.
Samuels, commissioned by UN Women in 2015 on
46. Laurel Stone, “Quantitative Analysis of Women’s national dialogues and participatory political transitions.
Participation in Peace Processes,” Annex II in
56. Contracted by UN Women.
“Reimagining Peacemaking: Women’s Roles in Peace
Processes.” 57. “Statement by Ms Bineta Diop, Security Council Open
Debate on Women, Peace and Security,” November 30,
47. Paffenholz et al., “Making Women Count: Assessing
2012, http://www.peacewomen.org/sites/default/files/
Women’s Inclusion and Influence on the Quality and
bineta_diop_0.pdf.
Sustainability of Peace Negotiations and Implementation,”
20. 58. For example, many of the members of the Taskforce
on the Engagement of Women, a cross-border coalition
48. Input provided by Luz Mendez, member of the High-Level
of activists from Sudan and South Sudan, have lost
Advisory Group for the Global Study.
multiple family members in the recent conflict. See, Case,
49. Paffenholz et al., “Making Women Count: “Without Inclusion, No Hope for Peace in South Sudan.”
AssessingWomen’s Inclusion and Influence on the
59. Information provided to the Global Study by the UN
Quality and Sustainability of Peace Negotiations and
Women Country Office in Burundi.
Implementation,” 32.
60. Paffenholz et al., “Making Women Count: Assessing
50. In a recognition of the need for tools to assist on the
Women’s Inclusion and Influence on the Quality and
practicalities of ‘how’ to establish processes that are
Sustainability of Peace Negotiations and Implementation;”
simultaneously inclusive of civil society and gender
O’Reilly, Ó Súilleabháin, and Paffenholz, “Reimagining
sensitive in substance, one civil society organization,
Peacemaking: Women’s Roles in Peace Processes.”
ICAN, developed the ‘Better Peace Tool’ – an open
source tool on how to be inclusive in all stages of 61. Paffenholz et al., “Making Women Count: Assessing
a peace process/ mediation. See “Better Peace Women’s Inclusion and Influence on the Quality and
 63

Sustainability of Peace Negotiations and Implementation;” and one that would have significant outcomes. One
O’Reilly, Ó Súilleabháin, and Paffenholz, “Reimagining area where all actors - mediators, civil society, experts
Peacemaking: Women’s Roles in Peace Processes.” - would benefit from increased capacity building is
on operationalizing gender equal outcomes within all
62. Paffenholz et al., “Making Women Count: Assessing
technical areas of peace talks. Research shows that
Women’s Inclusion and Influence on the Quality
the generic normative training or a purely normative
and Sustainability of Peace Negotiations and
approach is limited in impact and in fact owing to
Implementation,” 30.
existing attitudes can in fact entrench resistance amongst
63. Ibid., 36. gatekeepers. Rather, a more operational approach
of engaging on and seeking entry points through the
64. This was repeated in the report of the High-Level
specific technical discussions may yield more impacts.
Independent Panel on United Nations Peace Operations.
For example, research on power sharing has revealed
See, “Uniting Our Strengths for Peace - Politics,
that while women’s organizations and gender equality
Partnership and People,” UN Doc. A/70/95–S/2015/446
advocates have been wary of engaging in discussions
(High-Level Independent Panel on United Nations Peace
on power sharing, that in fact securing language in these
Operations, June 16, 2015); O’Reilly, Ó Súilleabháin, and
agreements has a considerable impact on quotas for
Paffenholz, “Reimagining Peacemaking: Women’s Roles
women’s political participation post-agreement. If actors
in Peace Processes.”
are to intervene effectively to shape the equality outcome
65. The long term impacts on success of processes through of a peace process, they must understand the technical
women’s inclusion and on the ‘how’ of inclusion, is elements of power sharing and how these can be used
perhaps the greater deficit that needs to be addressed, as entry points to further women’s rights.
64

04
 65

PROTECTING
AND PROMOTING
THE RIGHTS AND
LEADERSHIP OF
WOMEN AND GIRLS
IN HUMANITARIAN
SETTINGS
66 Chapter 4. Protecting Rights

HIGHLIGHTS FROM THE RESOLUTIONS

Resolution 1325 Resolution 1820

Calls on all parties to armed Requests the Secretary-
conflict to take special General and relevant United
measures to protect women Nations agencies, […] to
and girls from gender-based develop effective mechanisms
violence, particularly rape and for providing protection from
other forms of sexual abuse, violence, including in particular
and all other forms of violence sexual violence, to women and
in situations of armed conflict girls in and around UN managed
refugee and [IDP] camps

2000 2008 2009

Resolution 1888
Demands that all parties to
armed conflict immediately take
appropriate measures to protect
civilians, including women and
children, from all forms of sexual
violence
 67

Resolution 1960
Calls upon parties prohibition of sexual
to armed conflict to violence in Codes of
make and implement Conduct, military field
specific and time-bound manuals, or equivalent;
commitments to combat and further calls upon
sexual violence, which those parties to make
should include, inter and implement specific
alia, issuance of clear commitments on timely
orders through chains investigation of alleged
of command prohibiting abuses in order to hold
sexual violence and the perpetrators accountable

2010 2013

Resolution 2122
Recognizes the armed conflict and post-
importance of seeking conflict situations... Notes
to ensure humanitarian the need for access to
aid and funding includes the full range of sexual
provision for the full and reproductive health
range of medical, services, including
legal, psychosocial regarding pregnancies
and livelihood services resulting from rape,
to women affected by without discrimination
68 Chapter 4. Protecting Rights

This Study on the implementation of resolution 1325 received the largest number of allegations of sexual
has coincided with one of the most brutal waves of violence by armed militias in Darfur to date, after 20
organized violence in recent times. Armed conflict has such updates to the Council over the years. Most of
erupted or escalated in many corners of the world. The the victims were alleged to have been gang-raped by
number of people in need of international assistance militias while tending their farms or collecting firewood
has tripled over the past decade, and 80 per cent of and water, a depressingly familiar pattern to that
these are affected by armed conflict.1 Recent research detected and brought to the world’s attention by NGOs
indicates a 28 per cent increase in the death toll from more than 10 years ago.9 In that very same week, the
wars in 2014,2 and a steady increase in conflict-related UN mission in South Sudan reported that at least 172
violence since 2007.3 Last year saw one of the highest women and girls had been abducted by armed actors
numbers of refugees and internally displaced persons in Unity State and that an additional 79 had been
(IDPs) ever recorded, the highest number recorded subjected to sexual violence. Witnesses described
since 1995, and the largest annual increase since women being dragged out of their dwellings and
1990.4 This means that, on average, every single day gang-raped in front of their infant children, or burned
of 2014, 42,500 people were forced to leave their alive inside their houses after being raped.10 The 2015
homes, not knowing when or whether they could annual report of the Secretary-General on conflict-
return.5 The average duration of displacement is now related sexual violence highlighted harrowing accounts
over 17 years. of rape, sexual slavery, forced prostitution, forced
pregnancy, enforced sterilization and other forms of
These statistics and other similar ones that have been sexual violence of comparable gravity in 19 different
repeated in numerous reports in recent months cannot countries.11
possibly capture the immensity or individuality of the
human pain behind them. With frightening regularity, The same persistence can be found in the perpetration
armed actors demonstrate disregard for human life, of other forms of violence against women and girls.
human suffering and international law.6 They target Almost two decades ago, the International Rescue
the most vulnerable in society and deliberately attack Committee began supporting clandestine schools
schools, hospitals, journalists and aid workers. More for girls in Afghanistan. Education for millions of
than 90 per cent of casualties of explosive weapons Afghan girls stands as that country’s greatest
in urban, populated areas are civilians.7 Speaking to achievement in modern times. But hundreds of vicious
the Security Council in the first weeks of 2015, the attacks against schoolgirls, female teachers and
representative of the International Committee of the girls’ schools continue to take place every year.12
Red Cross (ICRC) concluded: “I regret to say, based While the kidnapping of 276 schoolgirls in Chibok,
on our observations in the field, that I cannot report Nigeria received significant media attention, less
any significant progress in the way armed conflicts has been said of the more than 2,000 women and
are being waged, or any significant alleviation of their girls abducted in Northern Nigeria since 2014, many
impact on civilians throughout the world.”8 of them used as sexual slaves, human shields and
suicide bombers.13 Year after year, we hear too many
For women and girls, the impacts of war are horrific stories of women political leaders, media
compounded by pre-existing gender inequalities personnel, women’s human rights defenders and
and discrimination. Most strikingly, all forms of members of civil society and grassroots organizations
violence against women and girls increase during being assaulted, threatened and killed. Intimate partner
armed conflict. This violence may be more visible violence and early, forced and child marriage have
now, both to policy makers and the general public, become more widespread during and after war.14
but it has not abated. For example, in June 2015, the
prosecutor of the International Criminal Court (ICC) Crises exacerbate already existing discrimination
reported to the Security Council that her office had against women and girls that render them less
 69

likely to have access to even the most fundamental international humanitarian, refugee and human
of their rights, including the right to health care, rights law, including, but not limited to, their right
education, food, shelter and even a nationality. to life and physical integrity.
Struggling to feed their families, look after the sick and
educate their daughters and sons, women are the first • Second, that women’s rights to education, health,
to suffer from restrictions in movement and the closure land and productive assets and to participation,
of schools, medical facilities and markets. Girls may be decision-making and leadership in village or
fed last and be the first to go hungry in the face of food community matters are strongly linked to women’s
insecurity. Whether in detention or in refugee or IDP security.
camps, women and girls suffer from inadequate sanitary
conditions and supplies, especially during menstruation • Third, that we are still far from genuinely
and lactation, as well as from a lack of sexual, embracing gender equality as an organizing
reproductive and maternal health care services which principle of humanitarian work, and this
can mean a death sentence for many women during undermines the effectiveness of humanitarian
childbirth or when seeking to terminate a pregnancy. assistance.
Girls drop out of school and women lose access to
land and livelihoods. For many, survival sex or early
marriages become the only options. The right to life and physical integrity

Discriminatory norms and lack of documentation Since resolution 1325 was adopted, and since the
impede many women and girls from claiming their first programmes in the mid- and late 1990s that
human rights, including their access to property, addressed sexual and gender-based violence in
and from seeking asylum. In urban settings, where humanitarian settings, much has changed.16 Public
the majority of refugees and IDPs now reside, awareness of sexual and gender-based violence has
women are at risk of human trafficking by organized increased exponentially, measured by the proliferation
crime; harassment, exploitation and discrimination of media attention, social media activism, public health
by landlords and employers; and arbitrary arrest, campaigns and social research. The attention to this
detention and refoulement by the authorities. A dearth issue in policy-making circles has also grown. From
of humanitarian services properly tailored for cities 2008 to 2013, the Security Council adopted four
only makes matters worse. As was recently noted by resolutions in five years devoted to sexual violence
the Special Rapporteur on violence against women, in conflict as a threat to international peace and
“they flee to escape arbitrary killings, rape, torture, security and created a dedicated post of Special
inhuman or degrading treatment, forced recruitment Representative of the Special Representative of the
or starvation, but too often, they encounter the same Secretary-General on Sexual Violence in Conflict.
level of insecurity, violence, and threats of violence,
reinforced by impunity, at their destination, including Similarly focused resolutions and declarations have
camps for internally displaced persons.”15 been adopted by the UN General Assembly, the
Human Rights Council, the G8 and other forums.17
This chapter is organized around three simple In the last three years, the foreign ministers of two of
messages: the world’s most powerful countr—the United Kingdom
and the United States—have launched ambitious
• First, that humanitarians, development workers, campaigns to address sexual and gender-based
the international and regional human rights system violence in conflict and emergencies. A global summit
and the interventions of our peace and security in London in 2014 convened almost 2,000 delegates
actors must address the full range of violations and representatives from more than 120 countries,
of the rights of women and girls protected by an unprecedented scale for a meeting on this topic.18
70 Chapter 4. Protecting Rights

zero-tolerance policies and codes of conduct and

appointed special advisors. Beyond sexual violence,
there has also been growing attention to other forms
“Now the same girls that of violence and harmful practices in humanitarian

were encouraged to go settings, such as child, early and forced marriage or

the targeted killings of women in leadership or public
to school, aren’t going roles, including women’s human rights defenders.19

back. Some, because This attention has not only punctured the silence
and neglect that has traditionally accompanied
of the fear of all this conflict-related violence against women and girls but
crisis[...]. But other also led to tangible changes in the response of the
international community, from human rights monitoring
cases are because of to access to health care for survivors, transitional
justice responses and the training and patrolling
their own families, their of peacekeepers. In the last 15 years, international

own parents. Some courts have produced a growing body of convictions

of war criminals and robust international jurisprudence
parents say, no more on this topic. The UN and international NGOs have
increased their capacity to address the issue in
school for their children, emergencies.20 Hundreds of thousands of women
and girls are now reached by one or more of the
no more school for variety of programmes that aim to help survivors and
their girls—especially prevent more violence, such as emergency medical
care, mental health and psychosocial assistance,
girls—because they are shelters and safe houses, special police units, mobile
courts, prevention and awareness programmes,
afraid of the girl being post-exposure prophylaxis (PEP) and dignity kits,

abducted, being killed, to name a few. Strategies include changing harmful

behaviours and social norms, targeting religious
and so on, so forth.” and cultural leaders for sensitization on women’s
rights, empowering women and girls (including with
livelihood programmes), finding alternative energy
Sylvie Jacqueline Ngodongmo, President, sources to firewood and ensuring the safety of
Women International League for Peace and water points, latrines and bathing spaces in or near
Freedom, Cameroon, UN Women Video refugee camps. In particular, locally driven initiatives
Interview, 2015 exemplify the strength and resilience of conflict-
affected communities and their agency in developing
their own, context-specific responses to trauma.
Strengthening capacities are also a big part of this
effort: for example, training local health-care staff
At the global level, sexual violence and other gross on clinical management of rape, social workers on
human rights violations against women appear much psychosocial counselling, humanitarians on sexual
more frequently in the mandates of peacekeeping exploitation and abuse, and police, prosecutors and
missions or sanctions committees. At the national judges on investigating and prosecuting sexual and
level, some countries have adopted laws, action plans, gender-based violence.
 71

FOCUS ON

UN actors on sexual violence in conflict

The Office of the Special Representative of the UN Action Against Sexual Violence in Conflict is
Secretary-General on Sexual Violence in Conflict an inter-agency network that unites the efforts of 13
(SRSG-SVC) was established by Security Council UN entities from across the spectrum of human rights,
resolution 1888 (2009) and became operational in humanitarian, public health, peace, security, political
April 2010. The SRSG-SVC serves as the United and development sectors. Its goal is to foster a multi-
Nations’ spokesperson and leading advocate on stakeholder response to sexual violence during and in
conflict-related sexual violence and is responsible the wake of conflict. Launched in 2007, it represents a
for mobilizing global political will and action and for concerted effort by the UN system to ‘deliver as
preparation of the annual reports of the Secretary- one’—improving coordination and accountability,
General covering all relevant situations of concern and amplifying advocacy, building knowledge and capacity
naming and shaming perpetrators. The SRSG works and supporting country-level efforts to prevent
with the Security Council to propose sanctions and conflict-related sexual violence and respond more
other targeted measures against those who commit, comprehensively to the needs of survivors. Through
command, or condone sexual violence crimes, as successive resolutions since 2008, the UN Security
well as with State and non-State parties to conflict to Council has acknowledged UN Action as the primary
obtain specific commitments to prevent and respond coordination platform on this agenda. Chaired by the
to sexual violence. The UN Team of Experts on the SRSG-SVC, UN Action’s work is funded exclusively by
Rule of Law/Sexual Violence in Conflict was also voluntary contributions from a range of governments
established pursuant to resolution 1888 to support whose funds are pooled in a Multi-Partner Trust Fund
countries to strengthen prevention and response (MPTF). The MPTF serves as a vital tool for incentivizing
efforts (see further, Chapter 5: Transformative Justice). cooperation, transparency and strategic partnerships
by financing joint initiatives that bridge disciplinary and
sectoral divides.

Less is known about the impact that these initiatives such as early marriage or female genital mutilation.
have, what works and under what circumstances. But they have been less effective in addressing
Several reviews published in recent years and new the cause: in other words, in challenging the
research initiatives are tackling these questions.21 gender norms that trigger violence before,
For example, the evaluations of several programmes during and after war. These include entrenched
focused on changing behaviours, attitudes or social norms around women’s status and behaviour as well
norms in the community tell us that these may be as women’s reproductive and sexual rights. There is
effective in increasing recognition of different types of also little evidence that these interventions decrease
violence, reducing levels of victim blame, decreasing recidivism or make potential offenders desist.22 Many
acceptance of violence, increasing knowledge of of the interventions that involve working with the
rights and reducing the incidence of harmful practices police showed mixed results and were often perceived
72 Chapter 4. Protecting Rights

to be less effective. For example, a multi-country

assessment in 2012 revealed that 50 per cent of the
caseload of the special protection units of the South It was clear that women in
Sudan police service reportedly involved prosecuting
conflict-affected settings
women and girls for their sexual behaviour, including
adultery.23 Additionally, although 55 per cent of
favour interventions that
precincts in the Philippines had women’s desks, are focused […] more on
most of these prioritized mediation and family empowering women and
reunification. girls and putting them at
the frontline of service
What we do know is that, as impressive as the
above list of types of interventions may seem and as
delivery.
prominent as the global advocacy on violence against
women has become, the actual coverage of activities
and programmes on the ground is grossly insufficient
and in many cases almost non-existent. With resources
being focused on communications, coordination and find out what works must both be tempered by the fact
technical specialists, and concentrated in the capitals that in many contexts there are not many programmes
of donor countries or the headquarters of international to evaluate, or only interventions that are small in
organizations, growing awareness of the issues has scope, duration and coverage. For example, numerous
been most visible in the amount of reports, standards, media stories and UN and NGO reports have raised
training resources, guidelines and other tools and the alarm on the increase of child marriage in Syria
materials rather than in actual, large-scale programmes and neighbouring countries since the beginning of the
for survivors in conflict-affected countries. Médecins conflict. This was documented with not only individual
Sans Frontières (MSF) refers to this phenomenon in stories but also hard numbers: inside Syria, prior to
their widely read “Where Is Everyone?” report,24 which the conflict, the percentage of girls being married
highlights sexual violence as one of those areas where before the age of 18 was estimated as between 13
the distance between words and action is particularly and 17 per cent.28 Once the civil war had erupted,
pronounced. In refugee camps, even the most basic a 2013 assessment put that number at 51 per
level of protections such as the three Ls, or lighting, cent among Syrian refugees in host communities in
locks and latrines, and the location of water points Jordan.29 Other assessments systematically tracked
are very unevenly implemented.25 The new global the gradual increase. In 2011, the percentage of
guidelines on gender-based violence in emergencies total registered Syrian marriages that involved a girl
will be launched in 2015 with the knowledge that, over was 12 per cent. This number rose to 25 per cent
10 years, the previous version of these guidelines was in 2013 and 32 per cent in 2014 as the conflict
seldom applied in practice.26 escalated. And yet, inside Syria, out of 67 projects
financed by the pooled funding available for 2014,
We also know that funding for these interventions none addressed child marriage, only one specifically
continues to be astonishingly low, discussed in addressed gender-based violence and only three were
Chapter 13: Financing WPS.27 The laudable objective given a gender mark that indicated that their principal
to obtain better data about sexual and gender-based purpose was to advance gender equality.30 This is
violence against women and girls in conflict settings, representative of other funding pools as well, where
including prevalence and incidence data, and the protection is typically one of the least funded sectors
impetus to evaluate interventions more rigorously and in humanitarian action.31
 73

Through the consultations and civil society inputs overwhelming majority of women and girls do
conducted for this Study, it was clear that women in not report violence not just because of shame
conflict-affected settings favour interventions that are or stigma but even more so because there are
focused less on perpetrators or potential perpetrators often no easily accessible services or ways to
and more on empowering women and girls and report safely, receive help and be treated with
putting them at the frontline of service delivery.32 dignity. This should be an unmissable element of
And practitioners and conflict-affected women also every primary intervention, rapid assessment or initial
insist that while the international community should planning in humanitarian response: what do the
continue to invest in assessments, mappings and women in the affected community think would improve
evaluations, they should also scale up programmes, their safety? What kinds of interventions do they need
including locally driven initiatives that have already the international community to fund and support from
shown promise. They also observed that short-term the outset? And how can we ensure that our tools—
trainings often have a limited impact and the affected the overwhelming majority of them in English and
populations prefer either direct service provision or highly technical—are understood and useable by the
long-term capacity building, both of which are more local population, who are after all the main actors
expensive and require much more time and resources. delivering humanitarian assistance and protection and
Perhaps most importantly, they note that the strengthening community resilience.

FOCUS ON

Women’s human rights defenders

Women’s rights defenders face all of the challenges and journalists are directly related to gender or
experienced by human rights defenders in general, women’s rights efforts. Women’s rights defenders
such as death threats, killings, arbitrary detentions, have created community networks for solidarity and
eviction, threats of violence against family members, protection, and these efforts should be supported and
break-ins and other forms of intimidation. However, expanded. Within these networks, they have called
they also face gender-specific threats and violence, for international attention to violence against them
such as rape and sexual violence, and additional and demanded that those responsible be prosecuted.
resistance from family or community members who In some cases they have also raised funds for legal
want to enforce traditional gender norms.33 Attacks assistance, medical assistance and security. Rapid
against women’s human rights defenders often focus response grants such as the ones disbursed to
on their reputation and/or their sexuality as not activists within a week or less by the Urgent Action
conforming to dominant stereotypes of appropriate Fund provide a crucial lifeline to women’s human
female behaviour. In many instances, it is all too rights defenders worldwide and should be better
clear that killings of women’s rights defenders funded by the international community.
74 Chapter 4. Protecting Rights

The right to health

Basic health care for women and girls in conflict-

affected areas is not only a fundamental human “We perceive peace
right but also a key building block to overcoming
the devastation brought about by war. And yet, in
to mean being free
consultations for the Global Study, it was clear that this from all incapacitating
crucial right is out of reach or under assault for tens
of millions of women and girls in conflict zones. The health conditions
challenges are manifold and impossible to summarize
in this short section except to highlight some of the
that bring misery and
most salient and recurrent. trauma caused by
First, many people, from both the affected communities violent conflict. Peace
and elsewhere, devote their lives, often at great
risk, to provide medical care in the most dangerous to women means
corners of the world, in places where the health
sector has collapsed or has always been extremely
being healthy (the
weak. Their work represents one of the most needed body); having hope and
forms of service to other human beings. And yet,
attacks against health-care facilities and workers are confidence in oneself
on the rise. A study conducted by the ICRC in 2014
documented more than 1,800 incidents involving
as we plan for our
serious acts or threats of violence affecting the families (mind); and
delivery of health care in 2012 and 2013.34 In Mali,
when rebels took over the north of the country, armed being free from anger
men systematically entered into delivery rooms and
expelled pregnant women to make room for their and rage, especially as
wounded.35 While women and girls experience perhaps
the most direct consequences from these acts, the
their painful conflict
fall out is felt by everyone. After more than 90 health- experiences are
care workers in polio vaccination teams, most of them
women, were assassinated in Pakistan in recent years, concerned (spirit).”
the number of polio cases recorded in that country
soared to its highest in 14 years.36
Participant in the 2014 Open Day,
Women, Peace and Security, Uganda
Second, women and girls suffer from malnutrition and
infectious diseases brought about by the appalling
living conditions and the lack of sanitation and health
care, including reproductive health care, in many of the
IDP and refugee settlements in which they live during
and after conflict. In some of the current camps for 200 to 300 people.37 In displacement sites in the
IDPs in South Sudan, the density of people in living Central African Republic, a February 2014 assessment
spaces at the beginning of the recent conflict was 13 found that there was no medical assistance in 90 per
times higher than the recommended humanitarian cent of the sites. This lack of coverage, and gaps in
minimum, and there was one latrine available for every assistance are fairly representative. In 2001, the UN
 75

Refugee Agency (UNHCR) issued five commitments

to refugee women and girls. The fifth, provision of
sanitary materials to all women and girls of concern in
UNHCR assistance programmes, has only been fully “Bullets are often fired
reached in 21 per cent of all camps, with another 21
per cent of camps having more than 90 per cent of
over the clinic and our
sanitary needs met.38 And yet, in some displacement staff members have to lie
contexts, the quality of services provided inside camps
is better than that available to the host community, down until the shooting
which quickly becomes a source of tension.
stops. But we have no
Third, gender inequality, exacerbated by conflict, plans to stop providing
contributes to the heightened risk of infection with HIV
and AIDS that women and girls face. Women and girls a space for women’s
have less access to information about the risk of HIV,
fewer resources to take preventative measures and health. These women will
much greater barriers to negotiation of safer sex due
to unequal power dynamics in relationships, and they
not be afterthoughts.”
represent the overwhelming majority of survivors of
sexual violence.39 Additionally, women face increased Meinie Nicolai, President, MSF Belgium40
burdens as caregivers for the sick and for children
orphaned by the disease. The gender gap in HIV
prevalence is stark.

Percentage of people living with HIV, 15-49 Years old, 201341

4.5
Central African Republic 3.1
4.4
Guinea-Bissau 3.1
3.2
Cote d’Ivoire 2.2
3.0
Chad 2.0
2.6
South Sudan 1.8
2.3
Haiti 1.6
1.8
Sierra Leone 1.3
1.3
Liberia 0.9
1.3
Democratic Republic of the Congo 0.9
1.3
Burundi 0.8 Female
1.1
Mali 0.7 Male
0.7
Eritrea 0.5
0.5
Somalia 0.5
0.4
Myanmar 0.8
0.2
Sudan 0.2
0.0
Yemen 0.1
0.0
Afghanistan 0.0
76 Chapter 4. Protecting Rights

FOCUS ON

Health pandemics

The presence of pandemic diseases can make the rebuilding after successive civil wars, can contribute
challenges of peacebuilding more complex as well as to devastating economic impacts in addition to the
pose a threat to peace and security in and of themselves. individual and community losses. Health pandemics have
This was evidenced by the Security Council’s creation particular gendered effects that contribute to the spread
of the first mission ever to address a health pandemic of the disease and inform their impact on the population
as a threat to peace and security in relation to the 2014 but can equally be harnessed to mitigate spread and
outbreak of the Ebola virus in West Africa (UNMEER). impact if they are understood and made central to
For countries newly emerging from conflict, the spread of prevention and response. For example, the common
HIV and AIDS as a result of increased levels of violence cultural expectation in some societies that women care
against women and lack of access to health facilities for the sick increases their workloads and can place
or means of protection can significantly undermine a them at higher risk of infection; this is true with Ebola in
country’s capacity to stabilize, as recognized in Security West Africa and with cholera in Haiti, where women and
Council resolution 1983 (2011).42 The response to the girls are exposed through their work cleaning latrines,
disease may be hampered by weak or still nascent fetching water and preparing raw food.43 Addressing
State institutions, low levels of community resilience to gender inequalities in access to health care is one of the
social strain and, as was evidenced most recently with most effective ways to stem the spread of disease and
the outbreak of Ebola in the context of a region still mitigate its consequences.44

Fourth, psychosocial support and mental health violence or abuse has taken place.45 Importantly,
care was frequently identified as a gap area, with mental health and psychosocial interventions should
too few actors or programmes addressing these avoid reinforcing gendered stereotypes around female
needs. Good practice in this area requires involving victimhood, and seek instead to transform gender
the women in the community in the design of any norms and other social inequalities. Mental health
intervention, both to understand their possible needs care is something increasingly understood to be a
and to build on what may already exist and design necessity, not a luxury, both at the individual and
culturally appropriate services. For example, some society level for post-conflict recovery. And yet it is
communities may see one-on-one counselling as a underfunded throughout the world. Chronically low
Western construct, and alternative approaches such numbers of trained psychologists, psychiatrists and
as group-sharing of problems, community dialogue, other mental health professionals in fragile states in
traditional healing rituals, art-based projects and particular means that most countries’ mental health
initiatives and engagement in livelihood projects may systems are completely wiped out by conflict.
be more appropriate. Recent research has shown that
these types of interventions can bring about significant Of these various challenges, perhaps the two that
results both in contexts of chronic and ongoing most affect the health of women and girls are
insecurity as well as many years after the actual reproductive health care and gender-based violence.
 77

Maternal Mortality Ratio, deaths per 100,000 live births, 2013 estimates46

Conflict and Post-conflict 531

Global rate 210

Maternal mortality and morbidity are highest in crises- hospital, reducing maternal mortality by 74 per cent.54
affected countries.47 Over half of the world’s maternal Still, far too many women’s lives are damaged or lost
deaths occur in conflict-affected and fragile states—and due to inadequate access to reproductive care in
the majority of these are preventable.48 Sierra Leone conflict-affected areas.
registered the highest maternal mortality ratio in the
world in 2013, at 1,100 maternal deaths per 100,000 Access to safe abortions and post-abortion care is a
live births, more than five times the global rate of 210.49 lifesaving part of comprehensive reproductive health
One in 16 women in Somalia is likely to die from a care. Unsafe abortion is one of the five leading causes
maternal cause.50 Inside most IDP and refugee camps, of maternal mortality, causing 13 per cent of maternal
there are few female doctors and little or no access to deaths worldwide. In conflict and post-conflict settings,
sex education, contraceptives or gynaecological health.51 where pregnancy is particularly dangerous and is often
In some countries, the proportion of births attended by the result of sexual violence, access to safe abortion
skilled health professionals is extremely low, contributing is especially important. International humanitarian
directly to high maternal mortality numbers. law protects the right of the wounded and sick to the
medical care required by their condition. Pregnancy
With the impetus of the Millennium Development from conflict-related sexual violence aggravates the
Goals (MDGs),52 the international community has serious, sometimes life-threatening injuries from the
been working toward improvements in reproductive rapes themselves. Studies have shown that unwanted
health services in conflict-affected settings, with some pregnancy through rape as well as the conditions
remarkable progress made. For example, Nepal imposed by war—malnutrition, anaemia, malaria,
has reduced maternal mortality by 78 per cent in exposure, stress, infection, disease—increase the risks
the past 15 years, while trained midwives, improved of maternal mortality.55 Exclusion of one medical
immunization coverage and rising girl’s education service, abortion, from the comprehensive
levels in Afghanistan have resulted in substantial medical care provided to the wounded and sick
improvements to women’s health.53 In some cases, in armed conflict, where such service is needed
simple and low-cost solutions are sufficient to make by only one gender, is a violation not only of the
major gains in maternal health outcomes: in one right to medical care but also of the prohibition
district in Sierra Leone, MSF introduced an ambulance on “adverse distinction” found in Common Article
service to transport women experiencing complications 3, the Additional Protocols to the Geneva Conventions
from pregnancy and childbirth from local clinics to the and customary international law.56 Importantly, it is
78 Chapter 4. Protecting Rights

also in violation of international human rights law. pregnancy safely would have an immeasurable impact on
The Committee on the Elimination of Discrimination women’s lives.
against Women (CEDAW Committee) has specified
that “it is discriminatory for a State party to refuse Since 1999, humanitarian agencies have rolled out
to legally provide for the performance of certain a Minimum Initial Service Package (MISP) for both
reproductive health services for women.”57 Also, the reproductive health and clinical management of
Committee establishes that “laws that criminalize medical rape, but this standard—revised in 2010—has not
procedures only needed by women and that punish been attained in most settings. Research shows
women who undergo those procedures” are a barrier to that the more fundamental issue is that the MISP
women’s access to health care.58 The Committee on the assumes some level of pre-existing, functioning
Rights of the Child has also recommended that “States health infrastructure, disrupted due to conflict, that
ensure access to safe abortion and post-abortion care humanitarians can help patch up and reactivate.
services, irrespective of whether abortion itself is legal.”59 However, the health system in places such as
Libya or Syria quickly collapses with the mass
In recent years, a growing chorus of actors have raised flight of health professionals, while in places such
their voice in support of this position. To the Human as South Sudan, the only existing health system is
Rights Committee, the Committee against Torture and the one created by the UN and non-governmental
the UN Special Rapporteur on this topic, denial of agencies. This shows once again the need to work
abortion to women and girls made pregnant by rape on ensuring safe, quality reproductive health care
can constitute an act of torture or cruel, inhuman and access for women and adolescent girls as part of
degrading treatment.60 In 2013, in his report on women, not just the emergency response but also long-term
peace and security, the Secretary-General urged that development interventions. In many conflict-affected
humanitarian aid and funding provide for the full range countries, the health cluster reports that national
of medical, legal, psychosocial and livelihood services health professionals, from doctors to nurses, have
to victims of rape, “including access to services for safe not been trained in clinical management of rape.66
termination of pregnancies resulting from rape, without And although a two-day training in the midst of an
discrimination, and in accordance with international emergency is a positive step, it cannot cover relatively
human rights and humanitarian law.”61 In resolution complex, sensitive gender dynamics about violence
2122 (2013), the Security Council recognized the and entrenched social norms such as blaming the
importance of medical services for women affected by victim alongside technical elements about PEP kits
armed conflict and specifically noted “the need for sexual and emergency contraception kits.
and reproductive health services, including regarding
pregnancies resulting from rape, without discrimination.”62
Since 2012, the European Parliament has adopted
at least four resolutions supporting this view.63 And in
2013, the CEDAW Committee recommended that States
parties ensure that sexual and reproductive health
care includes safe abortion services and post-abortion Over half of the world’s
care.64 International human rights law and international maternal deaths occur
humanitarian law apply universally, irrespective of
in conflict-affected and
national legislation. This includes the aid policy of
the world’s largest donor, the United States, and the
fragile states – and the
restrictive effect it has on the provision of abortion by majority of these are
humanitarian agencies worldwide.65 In war zones, women preventable.
who are raped almost never have access to emergency
contraception. Supporting their choice to terminate their
 79

FOCUS ON

Mobile health programming for survivors of sexual violence

In 2004, the Foundation RamaLevina (FORAL), a medical care they had received and planned treatment
Congolese health and social NGO, started a mobile and follow-up.68 The group also worked with community
health programme to address the barriers to access members through partnerships with community health
identified by gender-based violence survivors and their workers. Findings from a study of the programme show
families in rural South Kivu province, Eastern Democratic that access to health care for female survivors of gender-
Republic of the Congo.67 FORAL expanded its mobile based violence and their male partners increased, the
health services in 2010 and developed a clinical quality of services improved and community members
monitoring and evaluation system to record patients’ participated more actively in education sessions held at
histories and their experience of sexual violence, the the beginning of each mobile clinic.

The right to education

The experiences of Pakistani teenager Malala

“I was a girl in a land Yousafzai in 2012 and of hundreds of schoolgirls

where rifles are fired in Chibok, Nigeria, in 2014 are only two of the best
known examples of how girls’ education comes under
in celebration of a son, direct attack during conflict. Girls in Somalia have been
forcibly removed from schools to become ‘wives’ of Al-
while daughters are Shabab fighters. In Afghanistan, the Taliban frequently
bomb girls’ schools, attack the students with acid,
hidden away behind poison their water supplies and set up improvised
a curtain, their role in explosive devices on the routes used by female
students to attend school. Each attack has a multiplier
life simply to prepare effect on girls’ access to education. For example, it is
estimated that in 2009, the Taliban’s attacks and violent
food and give birth to threats against girls, their families and teachers resulted

children.” in 120,000 female students and 8,000 women teachers

ceasing to attend schools in the Swat District.70 In Gaza,
66 per cent of schools were damaged or destroyed
Malala Yousafzai, during the hostilities in July and August 2014.71 And in
Nobel laureate69 the majority of armed conflicts in recent years, non-
state armed groups and government forces have used
schools for military purposes.72
80 Chapter 4. Protecting Rights

Adjusted Net enrolment ratio in primary school, girls, 201373

Conflict and Post-conflict 76%

Global rate 91%

Conflict widens the gender gap in school enrolment strategies to cope with scarcity and insecurity and
and retention and in literacy. Conflict-affected countries as a result of gender norms that privilege boys over
typically divert resources away from education, and girls.75 Refugee and asylum-seeking girls—and women
heightened insecurity keeps schoolchildren and of all ages seeking to complete secondary or tertiary
girls in particular, away from the classroom. In South education—encounter great difficulties in urban areas,
Sudan, a girl is three times likelier to die in pregnancy especially if they cannot afford the fees or if schools
or childbirth than to complete primary education.74 in the host community are already overstretched.
In the Democratic Republic of the Congo, the fear Women and girls who return from captivity, particularly
of sexual violence keeps an untold number of girls if they were forced into marriage and birthed at least
away from classrooms. In many settings, there are one child, are very unlikely to re-enroll in education.76
very few female teachers, especially in positions of Approximately half of out-of-school children of primary
authority, and minimal or no sanitation facilities, which school age live in conflict-affected areas,77 where
are particularly critical for adolescent girls. Frequently, girls’ net enrolment rate in primary education is 13.53
girls are left at home due to their own families’ percentage points below the global rate.78 Each
additional year of a girl’s education has a dramatic
impact on maternal mortality, infant mortality and
early marriage, to say nothing of the overall social
and economic benefits, contributing greatly to overall
Each additional year of stability particularly in post-conflict settings.79 And
a girl’s education has gender equality programming has been shown to
improve access to education and education outcomes
a dramatic impact on for girls and boys, demonstrating the crucial link
maternal mortality, infant between gender equality and the effectiveness of
mortality, early marriage, humanitarian assistance.80
and has social and
economic benefits. Much more must be done to address this issue as
a violation of international humanitarian and human
rights law. The CEDAW Committee’s forthcoming
general recommendation on girls’ and women’s
 81

rights to education must pay special attention to the to pursue their claims, through either non-formal
actions of armed actors and the obligations of States. or statutory means, particularly when they have to
For example, where violations of girls’ and women’s navigate unresponsive authorities, ineffective courts
rights to education have occurred as a result of armed and biased attitudes among family and community
conflict, education providers should include special members.83 As a result, the percentage of women with
outreach and remedial education programmes for legal titles to land is significantly lower in conflict and
girls associated with armed forces or forcibly married, post-conflict countries.
displaced or trafficked.
Much can be done to address this gap, including
through legislative reform, land reform campaigns and
The right to property, housing and livelihoods changes in registration procedures.84 Where statutory
law is not in compliance with international human
Without access to land, credit, tenure, skills training rights obligations of equality and non-discrimination,
or information, women’s power to build peace and humanitarian and development actors should advocate
promote recovery from conflict is seriously impaired. for the removal of discriminatory legislation and the
In many fragile settings, women do not have access amendment of marriage, inheritance and related laws
to assets, such as land, livestock, credit, farm to ensure women’s equality in accessing land and
implements or fishing boats and nets. They are housing. Donors can invest in legal representation for
instead left with what they can accomplish with their women and other measures to address the practical
own hands in time not given over for caregiving. This barriers women face in accessing justice resulting
has a profound impact not only on their poverty and from their poverty, illiteracy or marginalization.
marginalization but also on their ability to improve their
communities and shape their future. International organizations should always register
women independently from male heads of households,
Parties to armed conflict regularly use occupation promote this practice with government counterparts
or destruction of land as a deliberate strategy of and refrain from documenting and registering housing
war. They confiscate land illegally, evict occupants or land assets only in the name of the principal adult
by force, secure property transactions under duress male in the household.85 However, cultural, religious
and destroy documentary evidence of ownership.81 and customary practices, which often exist in parallel
For women, violations of their rights to land and with statutory laws, can also have an impact on
housing are central to their experience of war. In
many cases, they are the ones at home when armed
actors take over or destroy their property, usually
violently. In other cases, in the context of displacement
and return, family loss or separation, they are only
able to access their land through the men in their
Without access to land,
family.82 Young, widowed, single or divorced women credit, tenure, skills
are particularly likely to experience difficulties with training or information,
access to land or land rights. For women who are ex- women’s power to build
combatants, pregnant from rape outside of marriage
peace and promote
or otherwise stigmatized, the challenges can become
insurmountable. Even when laws provide for women’s
recovery from conflict is
right to inherit property and land, women may be seriously impaired.
unaware of this or may lack documents and titles.
Few will possess the social and economic resources
82 Chapter 4. Protecting Rights

Incidence of female agricultural landowners (legal titles), 201386

Conflict and Post-conflict 9%

Aggregate figure for 7 conflict and post-conflict countries

Global rate 19%

Aggregate figure for 74 developed and developing countries

women’s rights related to land, property and housing; marriage, intimate partner violence and bargaining
the role of customary and religious law is addressed in power associated with HIV risk. For example, a
detail in Chapter 5: Transformative Justice. combination of microcredit with participatory gender
training, social support groups and community
Once again, women’s participation in decision-making mobilization reduced intimate partner violence by
charts the most direct path to meaningful change, 55 per cent in the target group. A 2012 randomized
whether in formal institutions addressing land reform control trial concluded that economic strengthening
or in informal community-level mediation forums programmes, when delivered in combination with social
where land disputes are adjudicated (which are interventions, had reduced Ugandan adolescent girls’
overwhelmingly dominated by men). A few years after reporting of “having sex unwillingly” to almost zero.88
the genocide, Rwanda embarked on an ambitious land
tenure reform programme aimed at eliminating all major
forms of discrimination. In every land commission and The right to asylum, nationality, and
committee responsible for parcel demarcation, adjudication, documentation
disputes and objections and issuing leases, women had to
represent at least 30 per cent of the commissioners and In resolution 2122 (2013), the Security Council
committee members. As a result, women now have the right expressed concern at women’s vulnerability in
to deal in and inherit land, and both women and men are relation to forced displacement, as a result of unequal
required to be present during the registration of owners. By citizenship rights, gender-biased application of asylum
March 2012, private land owned by individuals was held as laws and obstacles to accessing identity documents.
follows: 11 per cent by women, 5 per cent by men and 83 Currently, gender is not expressly included in the
per cent jointly by married couples.87 international definition of a refugee as a person with a
well-founded fear of persecution on the basis of race,
Although under-researched and under-utilized in religion, nationality, political opinion or membership
humanitarian settings (despite most of these being of a social group—something that women and refugee
protracted emergencies spanning many years), advocates have been trying to change for a long time.89
livelihood interventions targeting young women and
adolescent girls in development settings have been Various challenges confront women and girls who flee
shown to have positive effects on girls’ sense of safety, conflict or persecution and are in search of asylum,
rates of unwanted sex, risky sexual behaviours, early including lack of proper documentation establishing
 83

country of origin in gender-related claims, and case in practice.91 Some countries require women to
adjudicators characterizing sexual violence in conflict as a produce a marriage certificate before permitting birth
private act rather than politically motivated persecution.90 registration. In others, a birth must be registered by the
Consequences of sexual violence, especially the child’s father, regardless of any nationality issues or
associated social stigma, are also often not taken into whether he is known or not.
consideration by adjudicators in assessing the risk of
further persecution or internal flight alternatives. Nationality laws that do not grant women equality
with men in conferring nationality to their children
While the number of women becoming heads of cause statelessness, a problem that impacts at
household as a result of displacement is increasing, least 10 million people worldwide.92 Currently 27
discriminatory citizenship laws in both resident and countries across the world have laws that discriminate
home countries prevent them from owning property, against women in their ability to confer nationality to
accessing land rights or being entitled to a full range their children.93
of other economic, social and political rights. Refugees
have a right to documentation, including identity papers The impact of statelessness is severe and gives rise
and travel documents, and returnee women and girls to discrimination that can result in denial of access to
have equal rights to these documents and for these to basic resources including health care, education and
be issued in their own names, but this is often not the employment opportunities. While the challenges are

Nationality laws and discrimination against women94

Lebanon

Iraq

Kuwait

Syria Bahrain

Iran Nepal
Libya
Bahamas
Mauritania
Barbados
United Arab States
Brunei
Jordan Darussalam
Kiribati
Saudi
Arabia
Oman
Sudan
Qatar
Sierra Leone
Togo
Somalia
Liberia Burundi
Malaysia

Madagascar

Swaziland

Note: The figure uses a colour scheme to divide the laws of the 27 States into three categories: (1) countries (yellow) with nationality laws that do
not allow mothers to confer their nationality to their children with no, or very limited, exceptions; (2) countries (blue) that have some safeguards
against the creation of statelessness (for example, making exceptions for mothers to confer nationality if the father is unknown or stateless); and
(3) countries (light green) that also limit the conferral of nationality by women but have additional guarantees to ensure statelessness will only arise
in very few circumstances.
84 Chapter 4. Protecting Rights

enormous for any stateless individual, women and girls

have a greatly increased risk of sexual exploitation and
abuse, such as trafficking for commercial sex work,
illegal adoption and child labour.95 Gender discriminatory “As the men are
laws are creating statelessness in several contexts. For
example, high casualty rates and forcible separation
fighting and trying
mean a quarter of Syrian refugee families are headed by to make sure that
women, but the law does not allow women to pass their
nationality to their children, giving rise to generational they control power,
statelessness. Anecdotal evidence has also suggested
an emerging trend of stateless young girls being married
everything in the
off at an early age by families as a measure to protect household and the
them from the consequences of statelessness.114
community is left in the
On a more positive note, 12 States have reformed
their laws in the past decade to eliminate gender hands of women. This
discrimination in citizenship. The Global Campaign for
Equal Nationality Rights was launched in June 2014
is very clear when you
with the aim of eliminating gender discrimination in look at IDP and refugee
nationality laws, and in the same year UNHCR launched
its Campaign to End Statelessness in 10 Years, which camps: you don’t find
includes as one of its key actions the removal of gender
discriminatory laws at the national level.
men taking charge of
the livelihood of their
The right to food households.”
It has been known for some time that gender norms
Ruth Ojiambo Ochieng,
and gender inequality render women and girls
High-Level Advisory Group for the Global Study,
particularly vulnerable to food insecurity. Not only
UN Women Video Interview, 2015
are women and girls made primarily responsible for
feeding their families in a context of food scarcity, in
many cases as heads of households, but often their
nutritional needs take a back seat to those of men and
boys. Furthermore, as women, particularly in situations One of the earliest ways in which humanitarians took
of displacement, are often impeded from earning an gender issues into account was by targeting women
income outside the house, they are typically more and girls during food distribution. For example, in
dependent on food assistance. For example, the 2001, one of UNHCR’s five major commitments to
World Food Programme (WFP) estimated in 2015 that refugee women was ensuring their participation in the
female-headed households among the Syrian refugee management and distribution of both food and non-
population in Jordan were more dependent by at least food items,117 and WFP policy instituted that same year
10 percentage points on WFP food vouchers than was that women should control the family food aid
male-headed households.97 In a refugee population entitlement in 80 per cent of WFP food distributions.99
of that size, this gap translates into tens of thousands Already by 2005, the majority of refugee camps were
of female-headed households that are extremely distributing as much food directly to women as to
vulnerable to any changes in food assistance. men.100
 85

The benefits are clear. Food distribution interventions from beatings to rape and attempted rape.105 Safe
that target women as main recipients help to Access to Fuel and Energy (SAFE) has grown into a
substantially reduce child malnutrition rates. A recent full-fledged sector of its own,106 and cookstove and
multi-country study shows that prioritizing women in fuel projects by WFP, the United Nations Environment
food distribution is strongly correlated with greater Programme (UNEP), UNHCR, the Women’s Refugee
dietary diversity and, in one country, a 37 per cent Commission (WRC) and others have had measureable
lower prevalence of hunger.101 WFP case studies in success in reducing women’s fuel collection trips,
Chad and the DRC indicate that providing take-home often by half. These efforts have sometimes been
rations for girls in their last two years of primary linked to a reduction in violence and an increase
school contributed to a decrease in the frequency of in community-based protection strategies, such as
early marriage. women travelling in groups to collect firewood or
greater involvement of men in its collection.107
However, this standard is not always attained. A recent
assessment in North Kivu showed that only 23 per Distribution of fuel-efficient stoves and fuel itself must
cent of IDP women and 8 per cent of returnee women be considered essential in acute emergencies on par
were registered for ration cards. The situation was with food distribution. Most importantly, the design,
even more lopsided in the case of agricultural inputs, planning and implementation of these interventions
as 96 per cent of the agricultural kits were given must be driven by the women in the community
to men, in a country where women produce 75 per themselves. The effect of women’s participation is
cent of the food.102 Syrian refugee women reported evident. In Turkana, Kenya, the inclusion of women
having to wait for 8–12 hours in order to receive food in water and infrastructure committees has resulted
vouchers or other necessities, and distribution lines in women being able to influence the location,
were said to be the second highest risk area for sexual maintenance and design of water points, making
harassment after the home.103 Women are often at risk women and girls 44 per cent less likely to walk more
of violence on the way to and from food distribution than 60 minutes each way to access drinking water.108
points, or in their homes, as husbands react negatively Women’s participation in leadership is crucial to
to women becoming the family’s ration holder. Equally, ensure that these initiatives are effectively tailored to
food distribution and assistance may be used for the each context and are transformative and sustainable in
purpose of sexual exploitation, as those who have the long-term.
surplus food (or non-food items) have power over
those who have no food, and those who distribute
food are usually men. The importance of women’s leadership and
gender equality in humanitarian action
In the last decade, the international community has
paid significant attention to the fact that, in many of In 2011, UNHCR organized multiple refugee dialogues
these unstable settings, women and girls walk very and documented their consultations with thousands
long distances to collect food, water or firewood, of refugees, with an emphasis on the needs and
in conditions of constant danger and insecurity.104 priorities of women and girls.109 The women they spoke
For example, in camps in Chad, women travel an to had to contend with overcrowded and unhealthy
average roundtrip distance of 13.5 kilometers to shelters, inadequate health services and education
collect firewood. In Kenya, women refugees spend opportunities, little to no livelihood possibilities and
approximately 40 hours each month collecting daily fears for their safety. And yet, in each dialogue,
firewood for cooking. During 2014, both in Chad and women brought up their desire for active participation
in Uganda’s Nakivale refugee camp, more than 40 in decision-making—something few humanitarians
per cent of households reported incidents of violence would cite as a primary need of women. This is not
during firewood collection in the previous six months, a rhetorical aspiration but a universal demand from
86 Chapter 4. Protecting Rights

women on the ground, including those in the direst of girls among the most susceptible to natural
circumstances. It is also one of the greatest tools available disasters—particularly in conflict-affected settings.
for increasing the effectiveness of humanitarian assistance; For example, the tsunami that struck conflict-ravaged
something that is greatly needed in the current context of Sri Lanka in 2004 killed nearly one in five displaced
increasing needs and limited capacities. women, more than twice the mortality rate of displaced
men. As natural disasters increase in frequency and
The humanitarian community must embrace gender severity due to climate change and environmental
equality as a central organizing principle of its work and degradation, the international community must respond
promote women’s leadership in humanitarian action. through inclusive strategies that recognize women’s
Between 2011 and 2014, less than two per cent agency and respect their rights and needs.
of all humanitarian programmes in the Financial
Tracking System of the Office for the Coordination Even as not nearly enough is done to assist women
of Humanitarian Affairs (OCHA) had the explicit and girls and protect and defend their rights, the
goal of advancing gender equality or taking poster image of the aid world is a woman or a girl
targeted action for women and girls.110 Despite in need. Frequently, women are portrayed alongside
growing evidence that gender equality programming children, either in pictures or in the pages of reports,
improves humanitarian outcomes,111 many interventions and they are almost universally shown as defenseless
remain gender-blind, the data collected are rarely and vulnerable victims. This has had an effect in policy
disaggregated by sex and age, and the gap between and in practice. Our most urgent interventions to assist
standards and guidelines and the reality on the ground women and girls in crisis situations are focused on
is abysmal.112 Recent research has demonstrated that their protection rather than their empowerment. They
the existence of independent women’s groups is the are unlikely to be consulted on programme design, let
single most important factor in addressing violence alone engaged as partners. It is only relatively recently
against women and girls. Yet women’s organizations that the international community has paid some
continue to be marginalized in the planning and attention to women’s leadership in camp committees,
implementation of humanitarian response—something women’s inclusion in participatory assessments and
that the new Global Acceleration Instrument on Women, women’s deliberate engagement in empowerment
Peace and Security and Humanitarian Engagement programmes so they can better assist themselves and
could begin to address (see Chapter 13: Financing others and claim their rights.
WPS). 2014 was the first time gender equality indicators
were included in Humanitarian Response Plans. In
the first-ever world humanitarian summit in 2016, the
humanitarian community will chart a path towards more
sustainable, equitable and effective ways of working.113
Gender equality and women’s empowerment and A multi-country study
leadership should be prominent in those discussions found that gender equality
and in the outcomes of the summit. programming contributes
to improving access to
Principles of gender equality in humanitarian assistance
are not limited to conflict-affected settings but equally
and use of humanitarian
relevant to natural disasters. Increasingly, natural services by women, men,
disasters leading to emergencies and humanitarian girls and boys as well
crises have a complex relationship with conflict and as makes programming
gender inequality. Lack of access to information
and resources, entrenched gender stereotypes and
overall more effective.
inequalities and cultural restrictions make women and
 87

For example, through regular elections with gender that gender equality programming116 contributes
quotas, women reached parity in camp management to improving access to and use of humanitarian
committees in Eastern Nepal. In the Meheba services by women, men, girls and boys as well
settlement in Zambia, campaigns encouraging women as makes programming overall more effective.
to present their candidacy to refugee representative In the specific sectors examined—health, education,
elections resulted in one-third female representation, water, sanitation and hygiene (WASH) and food
from a baseline of almost none before then, and security—an improvement in access and programme
women responded to concerns about women’s lack effectiveness was shown for all groups, with significant
of participation in food distribution by setting up improvements documented for women and/or girls in
all-women committees. In Colombia, women have education, WASH and health. For example, in Turkana,
increasingly left national organizations of displaced Kenya, gender equality programming increased the
people, traditionally dominated by male leadership literacy rates of boys, health outcomes among girls,
and oriented towards judicial actions without a women and men and access to water for women,
gender perspective, and formed their own women’s men, girls and boys—as well as leading to a greater
organizations, generally oriented toward economic variety of food. In Nepal, gender equality programming
survival needs.114 was linked to increased participation of women in
household and community decision-making processes
A large body of evidence in the development sector as well as higher levels of self-confidence, self-esteem
has established that gender equality programming that and pride among women. Women- and child-friendly
ensures equitable access to services, empowerment spaces, services for survivors of gender-based
of women and girls and sensitization of men and violence and sensitization programmes reduced the
boys–including for men and boys to take on non- prevalence of such violence in all settings.
traditional gender roles–results in significant, concrete
benefits for the entire community. We now have Several surveys and consultations have cited
evidence that these benefits apply in humanitarian patriarchal cultural bias held by local men and male
settings as well.115 A multi-country study that humanitarian workers as a major barrier—and many
examined the impact of gender equality saw it as the key barrier—to women’s needs being
programming on humanitarian outcomes found met as well as to women being engaged as partners
in humanitarian action.117 Often, humanitarian staff
actively resist the incorporation of a gender equality
lens in their work, citing the ‘tyranny of the urgent’ or
fear of offending local customs. And yet, when women
Gender equality and men in humanitarian settings were consulted,
researchers found that people made an exception to
programming contributes the general resentment of the imposition of external
to improving access to agendas when it came to gender equality. In fact,
and use of humanitarian women and men both expressed widespread
services by women, men, appreciation for international actors’ promotion
girls and boys as well of gender equality and were able to cite positive
outcomes of such efforts.118 Beyond the many
as makes programming policies and guidelines adopted by humanitarian
overall more effective for agencies on gender equality, the gender handbook
women, men, girls and of the Inter-Agency Standing Committee (IASC),
boys. published almost a decade ago, is unequivocal:
“Promoting gender equality must be seen as central
to the humanitarian community’s responsibility to
88 Chapter 4. Protecting Rights

protect and provide assistance to those affected by that the humanitarian system’s collective failure
emergencies.”119 to recognize the ability of local civil society
organizations and women and girls to act as
partners with valuable knowledge and experience
CONCLUSIONS severely limits our effectiveness. Efforts to support
the voice and choice of women in the assessment,
One of the themes that emerged in the consultations design and delivery of assistance remain the exception
for this Study is that women, peace and security, on the to the rule. Other highlighted gaps identified in this
one hand, and gender equality in humanitarian action, Study are the needs of women and girl survivors of rape
on the other, have the same broad objectives, the same who are left with unwanted pregnancies, the difficulties
focus on women’s leadership and women’s human faced by women and girls who lack documentation to
rights and pay the same special attention to women’s exercise their rights or find asylum, the multiple ways
needs and priorities. Both also deal with largely the in which girls are attacked in school or prevented by
same settings, as most complex emergencies are violence and insecurity from attending school, the
related to armed conflict and have become increasingly worrisome gap between the attention and visibility of
protracted. In fact, women in disaster-affected sexual violence in conflict in global policy circles and
communities have called for the formal application of absence of actual services and justice for survivors
1325 to those settings as well, as they found it such on the ground outside capital cities and the persistent
a valuable guiding framework.120 Both communities exclusion of women from land and productive assets,
would stand to benefit from working more closely which perpetuates their dependence on male relatives,
together. For example, women’s organizations that work their poverty and/or their subordinate role.
on peacebuilding could be more quickly mobilized
in humanitarian action, and national action plans on As in other areas, the call for greater resources and
1325 should include a much more forceful articulation accountability must be answered. While Organisation
of international human rights law, international for Economic Co-operation and Development (OECD)
humanitarian law and humanitarian action.121 countries spent $135 billion in 2014 on aid, bilateral
cooperation and humanitarian relief, many of the
Similarly, at the level of the systems that the programmes and interventions highlighted in this
international community employs to respond to these chapter received a surprisingly limited amount of
gaps, those addressing exclusively gender-based funds from donors and low prioritization by UN and
violence and those focusing more comprehensively on humanitarian agencies. This is despite donors’ own
all gender equality issues affected by armed conflict strong policies and vocal calls for gender equality
and crises should combine efforts more regularly.122 and greater respect for women’s and girls’ rights
In spite of the repeated call to bridge the distance during conflict. This deficit should be regularly tracked
between development and humanitarian actors, none and made public. On the following pages are some
of the 169 individual targets contained in the 17 system-wide recommendations on the way forward, to
sustainable development goals addresses the specific be added to the issue-specific recommendations that
needs of women and girls—or civilians generally—in can be found throughout the chapter.
conflict zones. Both the High-Level Review of the
implementation of 1325 in October 2015 and the 2016
World Humanitarian Summit offer opportunities to speak
loudly and clearly about the many issues highlighted
in this chapter and to advocate for countries to tackle
these in their national targets and action plans.

Another main theme of the consultations was

 89

“In communities
ravaged by conflict,
humanitarian responses
must be mobilized [...]
with women and girls
included in the design,
delivery and evaluation
of programmes.”

Brigitte Balipou,
magistrate in the Central African Republic, board Member
of Femmes Africa Solidarité (FAS), and Founding Member
of the Women Lawyer Association of the Central African Republic,
at the Security Council Open Debate on Women,
Peace and Security, 2014
90 Chapter 4. Protecting Rights

RECOMMENDATIONS

Moving progress beyond 2015: Proposals for action

Member States should: be increased until they reach at least 5 per cent in
the next three years, before setting progressively
✓ Remove discriminatory laws and regulations that more ambitious targets in the following years.
impede full equality in accessing basic rights Funding for core operations, advocacy and
and services during and after conflict—including capacity building should match funding for
the rights to life, health, education, property and projects.123
livelihood—and remove discriminatory laws and
regulations that impede full equality in accessing ✓ Fund the establishment of an independent
basic rights and services, including the right to monitoring mechanism run by women’s civil
nationality. society groups and women’s human rights
defenders to track the compliance of humanitarian
assistance with normative frameworks and
Member States and the UN should: standards and international human rights law as
well as performance on gender equality—from the
✓ Ensure that preparations for and outcomes of the collection of sex-disaggregated data and gender-
2016 World Humanitarian Summit have gender sensitive analysis to the systematic application of
equality and women’s human rights as a focus the Gender Marker and the engagement of local
area as well as integrated throughout the other women.
themes.
✓ Invest in translating all relevant tools on sexual
and reproductive health and prevention and
Donors, including Member States and private response to sexual and gender-based violence into
foundations, should: local languages to ensure local engagement and
sustainability. Translations and long-term capacity
✓ Expressly mandate that all programmes adopt building should be prioritized over the repetitive
and apply the Gender Marker and relevant IASC production of new tools, strategies, guidelines
guidance on gender and gender-based violence and advocacy campaigns from capitals in donor
interventions in humanitarian settings throughout countries.
the entire project cycle and require it in all funding
applications.
The UN and NGOs should:
✓ Increase current levels of targeted funding for
women’s and girls’ programming to a minimum ✓ Commit to create a humanitarian workforce that is
of 15 per cent. Current levels of approximately 1 50 per cent women and 100 per cent trained in
per cent funding for local women’s organizations, gender equality programming and the protection of
including women’s human rights defenders, should women’s human rights.124
 91

The UN should: as emergency response for survivors of domestic

and sexual violence, including emergency
✓ Ensure that UN Women is a member of all relevant contraception and abortion/post-abortion services.
high-level inter-agency forums on peace and Increased investment must be made in local health
security and humanitarian response, including the systems’ ability to provide quality sexual and
IASC and the Senior Advisory Group on peace reproductive health and care for survivors and to
and security, to ensure a gender perspective is put in place referral pathways to specialist care in
mainstreamed throughout the UN’s response in all fragile settings.
conflict and emergencies.
✓ Ensure that women affected by humanitarian
crises, including refugees, internally displaced
All relevant actors, including Member States, the and stateless women, are supported to participate
UN, donors, and civil society, should: meaningfully and equally in community decision-
making, in leadership roles and in the design,
✓ Ensure that all global humanitarian and local implementation, monitoring and evaluation
health-care workers are trained in basic life-saving of humanitarian interventions. Obstacles to
sexual and reproductive health care, in accordance their participation should be addressed within
with international human rights standards, as well programme design.
92 Chapter 4. Protecting Rights

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 93

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Groups and Organs of Society to Promote and Protect gender-based-violence-africa-great-lakes.
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which links up the work of several UN agencies and Emergencies - the Fatal Confusion between Protecting Girls
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in emergencies. This work ranges from country-level
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coordination, to the development of tools, such as the
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in humanitarian action (available at www.gbvguidelines.
org), to the rapid deployment of technical support in 30. Danielle Spencer, “‘To Protect Her Honour’ Child Marriage in
emergencies. For more information on the GBV AoR, see Emergencies - the Fatal Confusion between Protecting Girls
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21. See, e.g., Jo Spangaro et al., “What Evidence Exists 31. Julian Murray and Joseph Landry, “Placing Protection at the
for Initiatives to Reduce Risk and Incidence of Sexual Centre of Humanitarian Action: Study on Protection Funding
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Crises? A Systematic Review,” ed. Patricia Kissinger, Cluster, September 17, 2013).
PLoS ONE 8, no. 5 (May 15, 2013): e62600; Charlotte
32. “Global Report: Civil Society Organization (CSO) Survey
Watts, Mazeda Hossain, and Cathy Zimmerman, “War
for the Global Study on Women, Peace and Security:
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CSO Perspectives on UNSCR 1325 Implementation
New England Journal of Medicine 368, no. 23 (June
15 Years after Adoption” (Global Network of Women
6, 2013): 2152–54; Wietse A. Tol et al., “Sexual and
Peacebuilders, Cordaid, NGO Working Group on Women,
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Peace and Security, International Civil Society Action
Systematic Review of Mental Health and Psychosocial
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Support Interventions,” Conflict and Health 7, no. 1
(2013): 16. 33. “Report of the Special Rapporteur on the Situation of
Human Rights Defenders, Margaret Sekaggya,” UN Doc. A/
22. “Gender-Based Violence in Emergencies” (Humanitarian
HRC/16/44 (United Nations General Assembly, December
Policy Group, February 2014); Gerry Mackie et al., “What
20, 2010).
Are Social Norms? How Are They Measured?” (UNICEF,
University of California at San Diego, and the Center on 34. “Health Care and Violence: The Need for Effective
Global Justice, July 27, 2015). Protection,” Position Paper (International Committee of the
Red Cross, September 25, 2014), 1.
23. Jeanne Ward, “Scoping Mission: South Sudan, May 2011”
(Global Protection Cluster, May 2011), 32. 35. Lakshmi Puri, “Words Alone Won’t End Violence against
Women in Armed Conflict,” The Guardian, July 2, 2013,
24. Sean Healy and Sandrine Tiller, “Where Is Everyone?:
http://www.theguardian.com/global-development/poverty-
Responding to Emergencies in the Most Difficult Places”
matters/2013/jul/02/violence-against-women-armed-conflict.
(Medecins Sans Frontieres, July 2014).
36. Pakistan, Afghanistan, and Nigeria are the three remaining
25. “Gender-Based Violence in Emergencies,” 13; Ward,
polio-endemic countries in the world. In Pakistan, armed
“Scoping Mission: South Sudan, May 2011,” 32.
actors started targeting polio vaccination campaigns, and
26. “Guidelines for Integrating Gender-Based Violence the female health-care workers helping to carry them out,
Interventions in Humanitarian Action: Reducing Risk, when the Pakistani Taliban leadership began declaring
Promoting Resilience, and Aiding Recovery” (Inter-Agency fatwas against them. In 2014, the number of polio cases
Standing Committee, 2015). recorded in Pakistan soared to 306. “Polio This Week,”
Global Polio Eradication Initiative, September 23, 2015,
27. There are indications that this may be beginning to change,
http://www.polioeradication.org/dataandmonitoring/
as campaigns like the Call to Action, Prevention of Sexual
poliothisweek.aspx; “Polio Eradication Initiative: Pakistan,”
Violence Initiative, and Safe from the Start have been
World Health Organization, accessed September 26, 2015,
accompanied by increases in funding. “New World Bank
http://www.emro.who.int/polio/countries/pakistan.html.
Project Will Help Survivors of Sexual and Gender-Based
Violence in Africa’s Great Lakes Region,” The World Bank, 37. The humanitarian standard is one latrine per 20 people,
June 26, 2014, http://www.worldbank.org/en/news/press- and three latrines for women per every latrine for men,
94 Chapter 4. Protecting Rights

but this is almost never the case. After the earthquake 48. “State of the World’s Mothers 2014: Saving Mothers and
in Haiti, an assessment carried out by IOM between Children in Humanitarian Crises” (Save the Children,
February and March 2010 found that the population 2014), 1.
averaged 411 per latrine, with some sites reaching
49. “Trends in Maternal Mortality, 1990 to 2013,” 1–2.
more than 900 people per latrine. IOM also found
that 33 per cent of the sites had no latrines, that they 50. “State of the World’s Mothers 2014: Saving Mothers and
were not separated by sex, and that they did not have Children in Humanitarian Crises,” 72.
locks or light. As a result, most latrines were not used
51. In his submission to the Global Study, the Special
or only occasionally used. See, Prisca Benelli, Dyan
Rappoerteur on the rights of internally displaced persons
Mazurana, and Peter Walker, “Using Sex and Age
recommended a preventative approach to sexual
Disaggregated Data to Improve Humanitarian Response
and gender-based violence in the context of internal
in Emergencies,” Gender & Development 20, no. 2 (July
displacement, including gender-sensitive training to
2012): 227.
public service and security providers, and a focus on
38. A further 26.6 per cent of camps met 50-89 per cent of prevention within homes and communities. See, Chaloka
sanitary needs, while 19 per cent of camps met 1-49 Beyani, “Note from the Special Rapporteur on the Human
per cent of needs, according to a survey of 94 camps by Rights of Internally Displaced Persons: Considerations
UNHCR undertaken in 2010. in Light of the High-Level Review on Progress in
Implementing Resolution 1325 on Women, Peace and
39. “General Recommendation No. 30 on Women in Conflict
Security” (United Nations Office of the High Commissioner
Prevention, Conflict and Post-Conflict Situations,” UN
on Human Rights, March 2015).
Doc. CEDAW/C/GC/30 (Committee on the Elimination of
Discrimination against Women, October 18, 2013), para. 37. 52. Millennium Development Goal five focuses on
improvements to maternal mortality. “United Nations
40. Meinie Nicolai, “Introduction,” in Because Tomorrow
Millennium Development Goals,” accessed May 13, 2015,
Needs Her (Medecins Sans Frontièrs, 2015).
http://www.un.org/millenniumgoals/maternal.shtml.
41. Data submitted to the Global Study by UNAIDS, the Joint
53. “State of the World’s Mothers 2014: Saving Mothers and
United Nations Programme on HIV/AIDS.
Children in Humanitarian Crises,” 68.
42. “Resolution 1983 (2011)” UN Doc. S/RES/1983 (United
54. “Obstetric Emergencies,” in Because Tomorrow Needs Her
Nations Security Council, June 7, 2011).
(Medecins Sans Frontiers, 2015).
43. “Strategy for Integrating a Gendered Response in Haiti’s
55. “The Right to an Abortion for Girls and Women Raped
Cholera Epidemic,” Briefing Note (UNICEF Haiti Child
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Protection Section/GBV Program, December 2, 2010), 1.
Non-Discriminatory Medical Care under the Geneva
44. World Health Organization, Integrating Gender into HIV/ Conventions” (Global Justice Center, 2011), 5; “Re:
AIDS Programmes in the Health Sector: Tool to Improve Written Contribution to the Human Rights Committee, Half
Responsiveness to Women’s Needs (Geneva: World Day of General Discussion on Article 6 ‘Right to Life’”
Health Organization, 2009). (Global Justice Center, June 26, 2015); “Submission from
the Global Justice Center: Serving the Needs of People in
45. In Kabul, Medica Mondiale offered group counseling
Conflict by Guaranteeing the Rights Specific to Conflict”
to GBV survivors many years after the actual abuse or
(Global Justice Center, May 2015); Jean-Marie Henckaerts
violence suffered by the women, and yet the vast majority
et al., eds., Customary International Humanitarian Law
of participants reported an improvement in their social
(Cambridge ; New York: Cambridge University Press,
life and general health. A trial of therapeutic interventions
2005). Additionally, the Geneva Conventions accord
in North and South Kivu, using individual counseling for
expectant mothers “particular protection and respect” and
one group of survivors and group counseling for another
the Additional Protocol reiterates that medical care must
group of survivors, showed much greater improvement
be given in accordance with the needs of the patients.
through group therapy. See, Rebecca Holmes and Dharini
Bhuvanendra, “Preventing and Responding to Gender- 56. Louise Doswald-Beck, “Letter to President Obama,” April
Based Violence in Humanitarian Crises,” 11. 10, 2013.
46. “Report of the Secretary-General: Women and Peace and 57. “General Recommendation No. 24, Article 12 of the
Security,” UN Doc. S/2014/693 (United Nations Security Convention (Women and Health),” UN Doc. A/54/38/
Council, September 23, 2014), box 20. Rev.1 (Committee on the Elimination of Discrimination
against Women, 1999), para. 11.
47. “Trends in Maternal Mortality, 1990 to 2013: Estimates by
WHO, UNICEF, UNFPA, The World Bank, and the United 58. Ibid., para. 14.
Nations Population Division” (World Health Organization
59. “General Comment No. 15 on the Right of the Child to the
(WHO), UNICEF, United Nations Fund for Population
Enjoyment of the Highest Attainable Standard of Health
Activities (UNFPA), World Bank, United Nations
(art. 24),” UN Doc. CRC/C/GC/15 (Committee on the
Population Division, 2014).
Rights of the Child, April 17, 2013), para. 70.
 95

60. “Information Series on Sexual and Reproductive Health Humanitarian Crises,” Network Paper (Humanitarian
and Rights: Abortion” (United Nations Office of the High Policy Group, January 2014), 10.
Commissioner for Human Rights (OHCHR), July 2015).
69. Malala Yousafzai and Christina Lamb, I Am Malala: The
61. “Report of the Secretary-General: Women and Peace and Girl Who Stood up for Education and Was Shot by the
Security,” UN Doc. S/2013/525 (United Nations Security Taliban, First edition (New York, NY: Little, Brown, &
Council, September 4, 2013), para. 72(a). Company, 2013).
62. “Resolution 2122 (2013),” UN Doc. S/RES/2122 (United 70. Global Coalition to Protect Education from Attack,
Nations Security Council, October 18, 2013); “Resolution “Submission to the Committee on the Elimination of
2106 (2013),” UN Doc. S/RES/2106 (United Nations Security Discrimination against Women: Discussion on Girls’/
Council, June 24, 2013); “Secretary-General’s Report on Women’s Right to Education (Article 10),” July 7, 2014.
Women and Peace and Security (2014)”; “Guidance Note of
71. “Secretary-General’s Report on the Protection of Civilians
the Secretary-General: Reparations for Conflict-Related Sexual
in Armed Conflict (2015),” para. 33.
Violence” (United Nations, June 2014).
72. “Lessons in War 2015: Military Use of Schools and
63. European Parliament, “Resolution on the Situation
Universities during Armed Conflict” (Global Coalition to
in Nigeria,” 2015/2520(RSP) (European Parliament,
Protect Education from Attack (GCPEA), May 2015).
April 30, 2015). European Parliament, “Resolution on
Between January 2005 and March 2015, national armed
the Situation of the Yarmouk Refugee Camp in Syria,”
forces and non-state armed groups used schools and
2015/2664(RSP) (European Parliament, April 30, 2015);
universities in at least 26 countries as bases, barracks,
European Parliament, “Resolution on the Millennium
detention facilities, interrogation and torture centers,
Development Goals- Defining the Post-2015 Framework,”
observation posts, military training facilities, or weapons
2012/2289(INI) (European Parliament, June 13, 2013);
and ammunition storage.
European Parliament, “Resolution on Equality between
Women and Men in the European Union- 2011,” 73. “Secretary-General’s Report on Women and Peace and
2011/2244(INI) (European Parliament, March 13, 2012). Security (2014),” box 19.
64. “CEDAW General Recommendation No. 30 (2013),” 30. 74. “Building a Better Future: Education for an Independent
South Sudan” (UNESCO, June 2011), 1.
65. The Editorial Board, “Abortion and Women Overseas,”
The New York Times, March 17, 2013, http://www. 75. “Guidelines for Integrating Gender-Based Violence
nytimes.com/2013/03/18/opinion/abortion-and-women- Interventions in Humanitarian Action: Reducing Risk,
overseas.html; Brian Atwood and Peter Fenn, “The Promoting Resilience, and Aiding Recovery.”
President Should Permit Aid to Allow Abortions for
76. Khristopher Carlson and Dyan Mazurana, “Forced
Wars’ Rape Victims,” The Washington Post, February
Marriage within the Lord’s Resistance Army, Uganda”
13, 2014, https://www.washingtonpost.com/opinions/
(Feinstein International Center, Tufts University, May
the-president-should-permit-aid-to-allow-abortions-for-
2008), n. 20; Jeannie Annan et al., “The State of Female
wars-rape-victims/2014/02/13/68cb0298-9359-11e3-
Youth in Northern Uganda: Findings from the Survey of
84e1-27626c5ef5fb_story.html; Serra Sippel, “Time to
War-Affected Youth (SWAY),” April 2008, 53. Females
Act for Women and Girls Raped in Conflict,” Huffington
who were forced into marriage and birthed at least one
Post, October 29, 2014, http://www.huffingtonpost.com/
child in captivity are three times less likely to return to
serra-sippel/time-to-act-for-women-and_b_6069086.
school than those who did not give birth while in captivity.
html; Michael D. Shear, “Religious Leaders Urge U.S. to
Fund Abortions for Rape Victims in Conflicts Abroad,” 77. Data sourced from: http://en.unesco.org/gem-report/
The New York Times, June 4, 2015, http://www.nytimes. sites/gem-report/files/PR_conflict_en.pdf
com/2015/06/05/us/rights-leaders-urge-us-to-fund-
abortions-for-rape-victims-in-conflicts-abroad.html. 78. Data sourced from UNESCO Institute for Statistics (UIS),
2015 estimates for 2013 enrolment data: http://data.uis.
66. Even if local practitioners have the knowledge and the unesco.org/
skills, there is frequently no regular supply chain, national
protocol, or mandate for them to intervene, so they may 79. “Background Paper on Attacks Against Girls Seeking to
lack the supplies or their supervisor may be telling them Access Education,” 20–22.
to focus on other priorities. For more information, see 80. “The Effect of Gender Equality Programming on
Chen Reis, “Challenges to Achieving the MISP Standard Humanitarian Outcomes” (UN Women and the Institute of
for Clinical Management of Rape in Humanitarian Crises” Development Studies, April 2015).
(SVRI Forum, 2013).
81. “UNHCR Handbook for the Protection of Women and
67. Anjalee Kohli et al., “A Congolese Community-Based Girls” (United Nations High Commissioner for Refugees
Health Program for Survivors of Sexual Violence,” Conflict (UNHCR), 2008).
and Health 6, no. 1 (August 29, 2012): 1.
82. Research undertaken by UN Women in 2011 found at
68. Rebecca Holmes and Dharini Bhuvanendra, “Preventing least 115 countries that specifically recognise women’s
and Responding to Gender-Based Violence in
96 Chapter 4. Protecting Rights

property rights on equal terms with those of men. Even laws, some countries use “membership of a social
when laws provide for women’s right to inherit property group” to grant asylum to women fleeing gender-based
and land, women may lack documents and titles violence.”
83. “UNHCR Handbook for the Protection of Women and 90. Valerie Oosterveld, “Women and Girls Fleeing Conflict:
Girls”; “Realizing Women’s Rights to Land and Other Gender and the Interpretation and Application of the
Productive Resources” (United Nations Office of the High 1951 Refugee Convention” (United Nations High
Commissioner for Human Rights (OHCHR), UN Women, Commissioner for Refugees (UNHCR), September 2012),
2013). 20, 41.
84. Equal rights to housing and land are part of international 91. “UNHCR Handbook for the Protection of Women and Girls.”
human rights law. See “International Covenant on
92. “Background Note on Gender Equality, Nationality
Economic, Social and Cultural Rights,” December 16,
Laws and Statelessness 2015” (United Nations High
1966, 27; “Convention on the Elimination of All Forms
Commissioner for Refugees (UNHCR), March 6, 2015).
of Discrimination against Women,” December 18, 1979,
Art. 14(2), 16(1)(h); Paulo Sergio Pinheiro, “Housing 93. “Removing Gender Discrimination from Nationality
and Property Restitution in the Context of the Return of Laws,” Good Practices Paper (United Nations High
Refugees and Internally Displaced Persons,” UN Doc. Commissioner for Refugees (UNHCR), 2014), 1.
E/CN.4/Sub.2/2005/17 (United Nations Economic and
94. “Background Note on Gender Equality, Nationality Laws
Social Council, June 28, 2005). Principle four of the
and Statelessness 2015,” 3.
Pinheiro Principles reaffirms the right to equality between
men and women, and the equal right of boys and girls, 95. Ibid. See also, “CEDAW General Recommendation No.
to housing, land, property restitution, including legal 30 (2013).”
security of tenure, property ownership, equal access to
inheritance, as well as the use, control of, and access 96. Emma Batha, “War May Make Hundreds of
to housing, land, and property. It specifically states that Thousands of Young Syrians Stateless,” Reuters
housing, land and property restitution programmes, UK, September 17, 2014, http://uk.reuters.com/
policies, and practices shall not disadvantage women article/2014/09/17/uk-foundation-syria-crisis-stateless-
and girls, and that states should adopt positive measures idUKKBN0HC1W620140917.
to ensure gender equality in this regard. 97. “Comprehensive Food Security Monitoring Exercise: May
85. Monica Sanchez Bermudez, Laura Cunial, and Kirstie 2015, Jordan” (World Food Programme, May 31, 2015).
Farmer, “Life Can Change: Securing Housing, Land 98. “UNHCR’s Commitments to Refugee Women” (United
and Property Rights for Displaced Women” (Norwegian Nations High Commissioner for Refugees, December 12,
Refugee Council, March 2014). 2001).
86. “Secretary-General’s Report on Women and Peace and 99. World Food Programme, “Policy Commitments to Women:
Security (2014),” para. 50. 1996-2001” (World Food Programme, 1995).
87. “Realizing Women’s Rights to Land and Other Productive 100. Benelli, Mazurana, and Walker, “Using Sex and Age
Resources.” Disaggregated Data to Improve Humanitarian Response
88. Carolyn Caton et al., “Empowered and Safe: Economic in Emergencies.”
Strengthening for Girls in Emergencies” (Child Protection 101. “The Effect of Gender Equality Programming on
Crisis Network, Women’s Refugee Commission, United Humanitarian Outcomes.”
Nations Children’s Fund (UNICEF), 2014). UNICEF and
the Women’s Refugee Commission have led research 102. Benelli, Mazurana, and Walker, “Using Sex and Age
and programming guidance on economic strengthening Disaggregated Data to Improve Humanitarian Response
interventions targeting adolescent girls in humanitarian in Emergencies.”
settings. 103. “Inter-Agency Assessment: Gender-Based Violence and
89. In 2002, UNHCR issued two guidelines on gender- Child Protection Among Syrian Refugees in Jordan, with
sensitive assessment and processing of asylum claims. a Focus on Early Marriage”; “Are We Listening? Acting
See, “Guidelines on International Protection: Gender- on Our Commitments to Women and Girls Affected by
Related Persecution within the Context of Article 1A(2) the Syrian Conflict” (International Rescue Committee,
of the 1951 Convention And/or Its 1967 Protocol September 2014).
Relating to the Status of Refugees” (United Nations 104. It also is normally seen as the responsibility of
High Commissioner for Refugees (UNHCR), May 7, women, no matter whether they may be pregnant or
2002). In addition, several governments, including elderly. Women’s Commission for Refugee Women
Australia, Canada, the United States, South Africa, and and Children, Beyond Firewood: Fuel Alternatives and
the United Kingdom, as well as the European Union, Protection Strategies for Displaced Women and Girls.
have issued legislation and regulations to guide asylum (New York: Women’s Commission for Refugee Women
determinations in this area. In the application of asylum and Children, 2006). See also “Safe Access to Fuel and
 97

Energy (SAFE) - History of SAFE,” SafeFuelAndEnergy. access and benefits to women, men, boys and girls,
org, accessed September 26, 2015, http://www. and avoid placing any group at risk, and facilitate equal
safefuelandenergy.org/about/history.cfm. opportunities to participate in decision making.
105.Global Alliance for Clean Cookstoves, “Statistical 117. Including a survey of civil society conducted in 2015
Snapshot: Access to Improved Cookstoves and Fuels in preparation for the World Humanitarian Summit and
and Its Impact on Women’s Safety in Crises” (Global “The Listening Project.” See, Mary B. Anderson, Dayna
Alliance for Clean Cookstoves and UNHCR, 2014). Brown, and Isabella Jean, “Time to Listen: Hearing
People on the Receiving End of International Aid”
106.Initiatives to provide clean cookstoves are not just linked
(Cambridge, MA: CDA Collaborative Learning Projects,
to the workload of women and girls or their exposure to
November 2012).
violence, but also to important health and environmental
factors. Most women in humanitarian settings still cook 118.Ibid., 63.
on open fires or polluting cookstoves, and every year
119. The CEDAW Committee has also affirmed that States
more than four million people die from health-related
parties are bound to apply the CEDAW convention in
problems related to inhaling smoke from solid fuel
bilateral or multilateral assistance for humanitarian aid.
stoves.
“CEDAW General Recommendation No. 30 (2013),”
107. A 2013 study found positive links between fuel-efficient para. 9.
stoves, GBV sensitization, and reduced exposure to
120. This was noted repeatedly in consultations on gender
the risk of GBV during firewood collection in Kakuma,
equality in humanitarian action in preparation for the
Kenya, where the World Food Programme has provided
2016 World Humanitarian Summit.
fuel-efficient stoves to refugees and host communities.
“WFP SAFE Project in Kenya: Kakuma Fuel-Efficient 121. There are notable exceptions: for example, gender-
Stoves and Gender-Based Violence Study Report” responsive humanitarian action is an explicit focus in the
(World Food Programme, June 2013). new Norwegian National Action Plan, vthe inclusion of
the gender perspective has been a priority in Norwegian
108.“The Effect of Gender Equality Programming on
humanitarian aid for several years. The Georgian NAP
Humanitarian Outcomes.”
identifies a series of objectives, related activities,
109. This led to the adoption of its Age, Gender and Diversity and indicators to protect internally displaced women,
Policy: “Age, Gender and Diversity Policy: Working with including in order to assess the compliance of Georgian
People and Communities for Equality and Protection” legislation with international conventions, acts, and
(United Nations High Commissioner for Refugees accords, and mechanisms for ensuring the protection of
(UNHCR), June 8, 2011). conflict-affected women from physical, social, economic
and political threats.
110. “Funding Gender in Emergencies: What Are the
Trends?,” Briefing Paper (Global Humanitarian 122. “Contributions to the Global Study on the
Assistance, September 2014). Implementation of Security Council Resolution 1325 on
Women, Peace and Security” (Gender Capacity Standby
111. “The Effect of Gender Equality Programming on
Project (GenCap Project), July 2015).
Humanitarian Outcomes.”
123.The Call to Action to End Violence Against Women and
112. “Restoring Humanity - Global Voices Calling for Action:
Girls in Emergencies, and the written commitments from
A Synthesis of the Consultation Process for the World
member states that emanate from it, offer an interesting
Humanitarian Summit” (United Nations, August 2015).
model to promote the adoption of these commitments.
113.See “World Humanitarian Summit,” 2016, http://www. “A Call to Action on Gender and Humanitarian Reform:
whsummit.org/. From the Call to Action on Violence Against Women
and Girls in Emergencies to the World Humanitarian
114. “UNHCR Input into Global Study on Implementation
Summit,” Policy Brief (CARE International, September
of UNSCR 1325 (2000)” (United Nations High
2014).
Commissioner for Refugees (UNHCR), 2015).
124. Training could be piloted through the new humanitarian
115.“The Effect of Gender Equality Programming on
leadership academy and based on the IASC Gender
Humanitarian Outcomes.”
Equality in Humanitarian Action training, which is
116.Gender equality programming reflects the incorporation currently voluntary and nearly completely taken up by
of a contextual gender analysis to help ensure equal NGO rather than UN staff.
98

05
 99

TOWARDS
AN ERA OF
TRANSFORMATIVE
JUSTICE

“We are not talking about any peace.

We are talking about sustainable peace
built on justice—and we call that real
democratic peace.”
Syrian women's rights leader,
“The Pieces of Peace: Realizing Peace Through Gendered Conflict Prevention”1
100 Chapter 5. Transformative Justice

HIGHLIGHTS FROM THE RESOLUTIONS

Resolution 1325
Emphasizes the responsibility relating to sexual and other
of all States to put an end to violence against women
impunity and to prosecute and girls, and in this regard
those responsible for genocide, stresses the need to exclude
crimes against humanity and these crimes, where feasible
war crimes including those from amnesty provisions[...]

2000 2008

Resolution 1820
Notes that rape and other forms for such acts, to ensure
of sexual violence can constitute that all victims of sexual violence,
a war crime, a crime against particularly women and girls,
humanity or a constitutive act have equal protection under
with respect to genocide, [...] the law and equal access
and calls upon Member States to to justice and stresses the
comply with their obligations for importance of ending impunity
prosecuting persons responsible for such acts
 101

Resolution 2122
Recognizing in this regard that
more must be done to ensure
that transitional justice measures
address the full range of violations
and abuses of women’s human
rights, and the differentiated
impacts on women and girls of
these violations and abuses as well
as forced displacement enforced
disappearances, and destruction of
civilian infrastructure

2013

Resolution 2106
Draws attention to the
importance of a comprehensive
approach to transitional
justice in armed conflict
and post-conflict situations,
encompassing the full range
of judicial and non-judicial
measures, as appropriate
102 Chapter 5. Transformative Justice

Among academic circles and women’s rights

practitioners, there is a debate today about the nature
and quality of justice in situations of armed conflict. For “The paucity of
some, the priority should be given to individual justice,
punishing the perpetrator and creating a system of domestic prosecutions
deterrence so such acts do not occur again. For others,
justice must be ultimately seen from the perspective of for crimes of sexual
the larger community; how mechanisms and processes
of justice, while giving recourse to individuals, also help
violence, the limited
societies to heal and recover from past violations and volume of international
move toward a sustainable peace.
prosecutions for
Consultations around the world provided a clear
indication that individual justice is essential for all
these crimes and the
women who have been victimized. They have a strong scale worldwide of
sense of grievance and are deeply offended by
and often insecure about states of impunity that are crimes of sexualized
granted to perpetrators in certain post-war situations.
For example, after a Gacaca trial in Rwanda that violence, particularly
had encounters between victims and perpetrators
but allowed them to go back to living in the same
in situations of armed
communities, one woman asked angrily, “So you want conflict, continue to
me to go back and live next door to the man who raped
me and killed my husband and sons?” Individual justice leave an impunity gap
for women like her is very important and necessary, and
must be part of any justice framework that deals with
so distinct that it has
conflict situations. become the focus
At the same time, in Global Study consultations across of several Security
the globe, few issues resonated more universally
than women’s demands that justice be treated as Council resolutions.”
inseparable from broader concerns about the wellbeing
of their communities. For women, whose experiences Ms. Jane Adong Anywar
of violence are directly related to their unequal status, Women’s Initiatives for Gender Justice, UN
justice is as much about dealing with the past as it is Security Council Open Debate on Sexual
about securing a better future that includes guarantees Violence in Conflict, 2013
of non-recurrence.

INCREASING PROSECUTIONS AND

CLOSING THE IMPUNITY GAP
developments in international law on gender-
The atrocities committed in Rwanda and the former based crimes. The governing statutes of these
Yugoslavia prompted the establishment of two courts included the first explicit formulation of rape
International Criminal Tribunals in the 1990s (the as a crime against humanity to be prosecuted,
ICTR and ICTY respectively), which saw significant and the jurisprudence in these tribunals has secured
 103

groundbreaking redress for crimes committed against One of the Rome Statute’s significant innovations
women. A number of seminal cases at the ICTR and was the introduction of victim participation in court
ICTY, as well as the Special Court of Sierra Leone have proceedings. This provided a concrete platform for
expanded the scope of international law on sexual victims to be formally recognized by the ICC, to
violence, establishing key principles including: that rape participate in the legal process, and to express their
can be an instrument of genocide;2 that sexual violence views and interests via a legal representative. In order
can be a foreseeable consequence of other wartime to ensure the protection of victims and witnesses,
violations;3 and that forced marriage can constitute a hearings can be conducted in camera, and the Court
crime against humanity.4 Further, the jurisprudence of has the authority to order the use of pseudonyms,
the courts defined the constituent elements of rape the expunging of names from the public record and
as a war crime and a crime against humanity, rape as for testimony to be presented by means other than
torture and as enslavement and defined the contours of in person including through technology enabling
‘outrages against dignity.’ the alteration of pictures or voices.7 Other important
provisions require staff in the Victims and Witnesses
Perhaps the most momentous progress in this area Unit in the Registry, responsible for witness protection
in the past 15 years was the adoption of the Rome and wellbeing, to have expertise in sexual violence-
Statute, which established the International Criminal related trauma.8
Court (ICC) and provides the most progressive
and comprehensive legal framework on gender- The Rome Statute also provides for reparations to
based crimes to date. The Rome Statute codified victims, either through direct contribution from the
past developments and went beyond them, explicitly convicted individual or through the ICC’s Trust Fund
recognizing rape, sexual slavery, enforced prostitution, for Victims (TFV), which is the first of its kind. Since
forced pregnancy and enforced sterilization and other 2008, the TFV has provided support to over 110,000
forms of sexual violence as crimes against humanity, victims of crimes under the jurisdiction of the Court,
war crimes and constituent acts of genocide. With 123 including tens of thousands of survivors of SGBV,
State Parties to the Rome Statute representing over through physical and psychological rehabilitation and
60 per cent of all nations, the ICC represents a shared material support.9
resolve to look beyond national borders to a collective
system of justice, with definitive priority given to seeking While the frameworks for securing justice for SGBV
accountability for sexual and gender-based crimes.5 crimes are clearly in place, operationalization still has
some way to go. Charges for gender-based crimes
have been brought in six of the nine situations under
THE INTERNATIONAL CRIMINAL COURT investigation by the ICC, and in 14 out of 19 cases
– SECURING JUSTICE FOR SEXUAL AND involving crimes of genocide, crimes against humanity
GENDER-BASED CRIMES

Learning from the experiences of past courts, the ICC

has emphasized the procedures required to ensure
gender-based crimes are dealt with appropriately. While the frameworks for
The Office of The Prosecutor (OTP), one of the four securing justice for SGBV
organs of the Court, has specific obligations to take
appropriate measures to protect the safety, physical and
crimes are clearly in
psychological well-being, dignity and privacy of victims place, operationalization
and witnesses, to investigate crimes of sexual and still has some way to go.
gender-based violence (SGBV) and to appoint specialist
advisors in the area. 6
104 Chapter 5. Transformative Justice

FOCUS ON

Sexual violence: Some recent findings

International, regional and national initiatives on sexual sexual violence during conflict.10 There is also similar
violence, its prevention and prosecution have also led research pointing to the fact that intra group dynamics
to a great deal of academic research with regard to are perceived by former combatants as one of the
sexual violence in situations of conflict. Though much main causes, if not the main cause, of sexual violence
of the research points to gaps in implementation, in conflict and the need for combatants to perform
recent work in the social sciences has focused on the before their peers.11 As a result, even women have
group dynamics that are central to the perpetration of been involved in acts of sexual violence against other
sexual violence during conflict. Interviews with former women. These research findings since 2006 highlight
combatants who engaged in acts of violence seem further the need for accountability, prosecution and
to suggest that the attitude and influence of leaders deterrence as important instruments in countering the
of armed forces and armed groups is a key aspect of criminal behaviors of groups and their leaders.

and war crimes. However, in the three verdicts issued crimes perpetrated against both women and men,
by the Court so far, there have been no convictions women judges were on the bench.12 The ICTR case of
for gender-based crimes. To address this record, in Akayesu, the first time that a defendant was convicted
2014 the OTP released a Policy Paper on Sexual of rape as an instrument of genocide and as a crime
and Gender-Based Crimes in which it affirmed its against humanity, originally went to trial without
commitment to the prosecution of these crimes. The charges or evidence of sexual violence, and with the
Policy Paper marks an important shift in the OTP’s prosecutor claiming it was impossible to document
methods, signaling the operationalization of a gender- rape because women would not speak about it.13 It
conscious approach to prosecution which should allow was only as a result of the advocacy of domestic and
it to better account for the full range of SGBV crimes international women’s civil society—and in particular,
committed. the efforts of the sole female judge on the bench14—
that the charge sheet was amended to include these
crimes after evidence emerged in testimony. While it
REPRESENTATION OF WOMEN AT ALL cannot be presumed that women judges and staff will
LEVELS OF ICC STAFFING necessarily bring to their work a gender perspective
that contributes to women’s rights, in practice they
Ensuring that women are represented among court are more likely to do so. This lends credence to the
staff, including in senior positions, can be an important importance of applying the women, peace and security
means of making courts more accessible to women. framework to the equal participation of women in all
From 1993-2004, in every case before the ICTY justice efforts.
resulting in significant redress of sexual violence
 105

only the most exceptional criminal cases. In recent years,

a number of States Parties to the Rome Statute have
While it cannot be amended their penal codes to criminalize a broad range
presumed that women of gender-based violations in line with their obligations to
domesticate the Statute. Research undertaken in 2014,
judges and staff will which tracked State ratification of the Rome Statute, found
necessarily bring to that of the 122 State Parties studied, 95 had introduced
their work a gender subsequent domestic legislation that addressed violence
perspective that against women (though not necessarily crimes related to
international law). This suggests a possible cascade effect
contributes to women’s
of international norms being translated and applied to the
rights, in practice they are domestic sphere.16
more likely to do so.
As international law has evolved, there has been
progress in the domestic prosecution of sexual violence
as an international crime. During the armed conflict in
Guatemala, indigenous women from the village Sepur
In October 2012, the Special Court for Sierra Zarco were victims of sexual and domestic slavery for
Leone was invited to brief the UN Security Council on five years, held in a military detachment. In 2011, women
progress made towards completion of its mandate. from Sepur Zarco, with the support of two Guatemalan
Representing a first in the history of international women’s rights organizations, filed the first ever legal
courts and tribunals, all ‘principals’ of the Court at complaint in the Guatemalan justice system for sexual
the time—the president, registrar, prosecutor and violence crimes committed during that country’s conflict,
defender—were women, constituting one of the in a case that highlights the army’s use of rape as a
most significant symbols of women’s advancement weapon of war and of genocide.17 Colombian courts
in leadership positions. Institutionally, the ICC pursues are also increasingly using international jurisprudence in
gender parity in its staffing—including providing for fair national sexual violence cases. For example, Clodomiro
representation of female and male judges, OTP and and César Niño Balaguera were both former paramilitary
registry staff and recognizing the need to include judges members accused of abducting, raping and torturing a
with legal expertise on violence against women and woman. In November 2014, the Criminal Chamber of the
children. The ICC’s current composition reflects these Supreme Court overturned a ruling from a lower court
gender-responsive aspirations: women currently hold that had failed to find that the rape charge amounted to
47.9 per cent of all staff positions including the senior a war crime. In finding that the rape was closely related
position of Prosecutor and women comprise 10 of the
18 judges.15 In addition, a number of women have been
appointed at a senior level including the President of the
ICC, Vice-President of the Court, Chief Prosecutor and
Special Gender Advisor to the Prosecutor. As international law
has evolved, there has
been progress in the
COMPLEMENTARITY AND NATIONAL LEVEL domestic prosecution
PROSECUTIONS
of sexual violence as an
A founding principle of the ICC is its establishment as international crime.
a court of last resort, focused on furthering the aim of
building domestic justice capacities, and addressing
106 Chapter 5. Transformative Justice

“Sexual violence is not an

issue disconnected from
the issue of participation
[...] those affected
by or living in fear of
sexual violence are less
able to participate in
political processes and
have less access to the
justice system. Member
States must increase the
number of women in the
judiciary [...] as a means of
increasing women’s access
to justice.”

NGO Working Group on Women, Peace and Security,

Statement of the Security Council at the Open Debate
on Women, Peace and Security, 2008
 107

to the conflict, and thus amounted to a war crime, the Such actions are positive steps forward towards
Chamber relied extensively on decisions of the ICTY, changing the culture of impunity for sexual violence
among other sources. It convicted both accused for this crimes, as well as acknowledging the use of SGBV
crime and increased their sentences.18 as a tactic of conflict. They also show the impact
that international frameworks can have in catalyzing
Specialized chambers or courts have been established domestic accountability. Nevertheless, the actual
to handle conflict-related crimes in such countries number of domestic level prosecutions of SGBV crimes
as Croatia, the DRC, Liberia, Serbia and Uganda, continues to be a fraction of the total crimes committed,
and prosecution and investigatory units have been and increased expertise, funding, capacity support
created to deal specifically with SGBV.19 Prosecutions and political will is sorely needed to ensure that these
of this nature require national jurisdictions to have crimes are no longer met with silence and impunity.
the capacity to investigate and prosecute SGBV as
international crimes, an effort to which increasing Ultimately, realizing the full progress of the
numbers of international actors are now contributing. international justice system and its potential
For instance, the UN Organization Stabilization Mission for victim redress will require not just the
in the DRC (MONUSCO) is supporting national military adoption of definitions of crimes at the domestic
investigations and prosecutions of serious violations level, but the domestication of the full Rome
through Prosecution Support Cells.20 MONUSCO, Statute architecture. This ensures that States will
UNDP and OHCHR, in consultation with civil society have a comprehensive framework for investigating
and other partners, have collaborated with the ICC’s and prosecuting SGBV as international crimes,
OTP to: train Congolese officials in the investigation dedicated procedures for victim and witness support
and prosecution of SGBV; provide support to that are matched with adequate resources for
investigation missions; reinforce judicial monitoring; their implementation, and provision for necessary
conduct awareness raising and outreach activities, reparations. Each of these components has a significant
and put in place a witness protection system.21 impact on women’s access to justice, and all are part of
These efforts have resulted in increasing numbers of the broader Rome Statute, but are often ignored in the
convictions being registered.22 narrower discussions on complementarity.

FOCUS ON

Initiatives to strengthen the capacity of national jurisdictions

Using Technology to Further Justice Efforts for developing MediCapt, a mobile application that health
Conflict-related SGBV care workers can use to digitize standard medical
information while conducting a medical exam on
New technology is helping to capture conflict violations a sexual violence survivor, for use as evidence in
and better collect disaggregated data for evidence courts of law.23 While the main purpose of MediCapt
of sexual and gender-based crimes. For example, is to aid sexual violence prosecutions at the national
Physicians for Human Rights (PHR) are currently level, the technology also captures geospatial
108 Chapter 5. Transformative Justice

metadata, allowing for real-time tracking and mapping The TOE has worked with the Kampala-based
of sexual violence cases that can expose patterns International Conference on the Great Lakes Region
and ultimately aid in mass crimes investigations.24 (ICGLR) Training Facility on Sexual Violence to
Mapping technology tools such as KoBo Toolbox can conduct training for police from ICGLR countries on
also assist in collecting data that describes trends in the use of forensic evidence.
conflict-related human rights violations.25

JRR-UN Women SGBV Justice Experts Roster

Team of Experts on the Rule of Law and Sexual
Violence in Conflict The unique sensitivities surrounding SGBV crimes
and the extreme vulnerability of its victims has
The Team of Experts on the Rule of Law and Sexual meant that specific expertise is needed, including
Violence in Conflict (TOE), established pursuant to in the methods for gathering information that will
Security Council resolution 1888 (2009), has focused “do no more harm.” This includes special training in
its efforts on strengthening the capacity of national rule interviewing victims and witnesses without detriment
of law and justice actors, including in the specialized to their safety, privacy and dignity, and skills related
areas of criminal investigation and prosecution; to appropriate documentation and storage of evidence
collection, analysis and preservation of evidence; for use in national or international justice processes.
military justice system investigation and prosecution; Furthermore, this expertise needs to be available
criminal and procedural law reform; protection of rapidly, in a matter of weeks or even days, in order to
victims, witnesses and justice officials; security sector have the most impact on situations.
oversight systems/bodies; and reparations.26
UN Women and Justice Rapid Response (JRR),
Key examples of the TOE’s work include the following: an intergovernmental roster, have developed an
initiative with the Institute for International Criminal
• In the Democratic Republic of the Congo, in close Investigations to train experts on investigating cases
collaboration with the UN system in-country, the of SGBV as international crimes, and to place them on
TOE supported investigations and prosecutions a dedicated SGBV Justice Experts Roster comprised
by military magistrates and military mobile courts, of individuals who are available for deployment to
and assisted national authorities to develop an international and national justice mechanisms. Thus
implementation plan for the joint communiqué on far, UN Women, in close collaboration with OHCHR,
the fight against sexual violence in conflict signed has deployed SGBV investigators from the joint roster
by the Government and the UN in March 2013. to all UN commissions of inquiry (COIs) established
since 2009.28 As knowledge and visibility of this
• As a result of technical support from the TOE specific facility and partnership has grown, requests
to the Guinean Panel of Judges, 12 military for deployments have similarly risen, expanding
officers, including senior officers, and a gendarme demand for experts beyond commissions of inquiry
have been indicted for crimes, including sexual and fact-finding missions to the International Criminal
violence, allegedly committed during the events of Court, regional mechanisms for accountability, national
28 September 2009.27 A judicial expert deployed processes investigating conflict-related crimes and
by the TOE continues to assist the Panel in to support the UN’s own efforts at comprehensive
investigations and case-building. accountability outcomes.
 109

MOVING BEYOND PROSECUTIONS:

A TRANSFORMATIVE AGENDA FOR
TRANSITIONAL JUSTICE
“Just offering justice
Support to transitional justice mechanisms and and punishment for
processes has become not only a critical component of
efforts to strengthen the rule of law post-conflict, but a the perpetrators is not
regular feature of post-conflict recovery, and integral to
the peacebuilding agenda. Rooted in the premise that enough, as many women
in the wake of mass human rights violations, the social
fabric of society needs to be rebuilt, transitional justice
want reparations and
comprises the full range of processes and mechanisms rehabilitation. Without
associated with a society’s attempt to come to terms with
a legacy of large-scale human rights abuses. These may this, women won’t come
include both judicial and non-judicial mechanisms and
processes including institutional reforms, prosecutions,
forward.”
truth telling, reparations programmes, traditional justice
and the vetting of public officials. Participant at the Nepal civil society
consultation for the Global Study
Evidence from surveys focusing on attitudes and
perceptions of transitional justice conducted by the
Harvard Humanitarian Initiative with over 30,000
individuals in eight conflict-affected areas over a
number of years revealed that women tend to be less of justice for instance. According to the surveys, in some
informed, and report lower levels of access to both countries women were more supportive than men of
formal and traditional justice mechanisms than men.29 accountability and truth seeking, and of formal justice
The surveys—which are one of the largest and most over traditional justice mechanisms. In other countries,
comprehensive datasets covering these issues—found the direct opposite was true. This underscores the critical
that gender-based differences in attitudes and opinions importance of broad-based consultations with women
about justice cannot be assumed, and that the meaning and communities, including through perception surveys
of justice is context-specific. Context had a significant at the earliest stages of any transitional justice design
bearing on how women prioritized different mechanisms process.30

LIMITATIONS OF TRANSITIONAL JUSTICE

MECHANISMS – THE EXCLUSION OF
WOMEN’S EXPERIENCES
Gender-based differences
in attitudes and opinions Over the past 15 years, there has been a proliferation
about justice cannot be of transitional justice mechanisms, in particular
assumed, and that the criminal tribunals and truth commissions, which have
promised accountability for perpetrators and redress
meaning of justice is for victims. Many such mechanisms now emerge as a
context-specific. consequence of negotiations among warring factions to
bring violent conflict to an end. However, waging wars
and negotiating peace agreements have been, and
110 Chapter 5. Transformative Justice

continue to be, predominantly male affairs. Women’s extremist groups—including the use of sexual violence
exclusion at the peace table, and in peace and security as a tactic of terror but equally encompassing an attack
decision-making more generally, adversely impacts the on the full range of women’s rights, from education to
design of post-conflict justice mechanisms. As a result, to health care, family life and participation in public life.
date, many of these mechanisms have paid limited attention Documentation, justice and accountability for these
to women’s experiences of conflict, their priorities and crimes must equally place women’s rights at the core of
needs, and the significance of pervasive gender inequalities their response.
and biases that limit women’s meaningful participation at
every level and stage of post-conflict transition. The crime of enforced disappearance is one issue that
highlights the gender bias in the construction of harms
The narrow scope of transitional justice mechanisms— prioritized by transitional justice mechanisms. While
which often fail to address the structural inequalities and no exact figures exist, according to the UN Working
vulnerabilities created by systems of war or repressive rule Group on Enforced or Involuntary Disappearances,
that affect women disproportionately compared to men— the overwhelming majority of reported cases of
has far-reaching human rights implications. For example, disappearances are of men.32 However, women constitute
the rights violations that have invariably been the focus the majority of family members left behind, and in
of transitional justice mechanisms have been violations contexts of pre-existing gender inequalities, they suffer
of civil and political rights, with a priority placed on either exacerbated social and economic discrimination as a
physical integrity or personal freedom.31 While this covers result of, or aggravated by, the loss of a male family
some of the harms women experience, it ignores the ways member.33 Recent research on the impact on women of
in which women and girls often do not enjoy the conditions enforced disappearances that occurred during Lebanon’s
that make the exercise of civil and political rights possible civil war (1975-1990) reveals extreme legal, financial
in the first place, or their disproportionate experience of and emotional hardship. Lebanon’s lack of recognition
socio-economic rights violations. of the legal status of the missing created obstacles to
accessing bank accounts that were in the husband’s
Moreover, this narrow focus fails to address the structural name, obtaining identity documents for children,
inequalities and vulnerabilities created by systems of war resolving issues of child custody, claiming inheritance,
or repressive rule that affect women in disproportionate remarriage and the transferring of property from the
numbers and have far-reaching human rights husband to another family member. 34 Such experiences
implications. The mandate and scope of transitional of systemic discrimination and marginalization are not
justice measures is particularly relevant today, as we captured or redressed through the rights violations focus
witness the direct targeting of women and girls’ rights by of transitional justice mechanisms.

TRUTH-SEEKING
The mandate and scope Truth commissions have valuable potential for transforming
of transitional justice gender relations post-conflict. They can provide an
measures is particularly extraordinary window of opportunity to highlight
relevant today, as we neglected abuses, research the enabling conditions of
gendered violations, provide a forum for victims and
witness the direct targeting survivors to share their experiences of conflict, and
of women and girls’ rights recommend institutional reforms and the provision of
by extremist groups. reparations. While the full transformative impact of truth
commissions is still to be realized, there have been
notable advancements in their gender-responsiveness
 111

since the adoption of resolution 1325. Importantly, there roles, as well as policies and procedures for protecting
are emerging examples of truth commissions that are the security and dignity of victims and witnesses, to
showing how the mandate and scope of transitional encourage them to come forward. Other measures
justice can be expanded to address the full range of include compensation for time constraints and mobility
violations women experience during conflict. such as travel and childcare costs; ensuring outreach
and information processes take place in local languages;
In the past 15 years, truth commissions in Peru (2001- and if necessary, providing identity documents. Kenya’s
2003),35 Timor-Leste (2001-2006) and Sierra Leone Truth, Justice and Reconciliation Commission (TJRC)
(2002-2004) have been pioneers in integrating a gender for example, held 39 separate hearings for women
perspective into their work. The Peruvian Truth and across the country,40 provided translation services, and
Reconciliation Commission (Comisión de la Verdad y covered transport and childcare costs where necessary
Reconciliación) was the first in which sexual violence to facilitate their attendance. The TJRC also engaged
was fully acknowledged, and a commitment was made the services of counselors to offer pyschosocial support
to mainstream gender into proceedings overseen by before, during and after hearings.
a special gender unit. Timor-Leste’s Commission for
Reception, Truth and Reconciliation (CAVR) is credited as In some circumstances where women are not
being one of the best examples of incorporating gender comfortable coming forward to share their testimonies,
into a truth commission thus far.36 The Commission’s alternative approaches may be necessary. In Timor-
gender unit was integrated in a wide range of areas, Leste, the CAVR undertook efforts to compensate for
from statement taking to public hearings, and its victim the underrepresentation of women’s statements which
hearings were able to examine sexual violence, as well included in-depth interviews and case histories of 200
as violations of women’s socio-economic rights. This female survivors that provided a body of oral history
is reflected in the final report of the Commission that narrating women’s experiences.41 In Liberia, rather
demonstrates how forced displacement resulted in a than having to testify in person, the United Nations
range of harms affecting women, from starvation and Development Fund for Women (UNIFEM, the predecessor
exacerbated vulnerability to sexual abuse.37 of UN Women) organized peer meetings in affected
communities where women could share their experiences
The framework of Tunisia’s Truth and Dignity commission and have them transmitted.42 In this context, partnerships
(TDC) is another example of progress. The TDC, with women’s civil society groups can contribute a great
established under Tunisia’s Transitional Justice Law, deal to supporting a truth commission’s capacity to
addresses violations of economic and social rights, address gender issues, and strengthening its legitimacy.
including corruption and disappearances, as well as
civil and political rights, and is mandated to develop The final report and recommendations of a truth
a comprehensive individual and collective reparations commission can provide an important road map for
programme for victims.38 ‘Victim’ includes not only an gender-sensitive societal reforms. The recommendations
individual who has suffered harm, but also groups and of Sierra Leone’s TRC included gender-specific legal
family members and “every region which was marginalized and institutional reforms, including the repeal of all
or which suffered systematic exclusion.”39 The ability of the discriminatory legislation, enactment of
Commission to consider group victims as well as socio- gender-progressive laws and ensuring that at least
economic violations provides a framework that allows 30 per cent of candidates for public elections are
it to address the structural context that renders women women. As a direct result of the truth commission’s
vulnerable to violence, with transformative impact. recommendations, three women’s rights Acts were
passed by Parliament addressing key aspects of gender
Specific measures are often required to ensure women’s inequality. The best-designed truth commission will
full participation in truth-seeking processes. These can have little impact, however, if there is no political will to
include quotas for women’s representation in leadership implement its recommendations.
112 Chapter 5. Transformative Justice

FOCUS ON

Alternative truth-seeking initiatives

National-level or official truth commissions are not and given ownership of the tribunal.44 Women gave
the only mechanisms available for truth-seeking testimony over the course of three days, highlighting the
in the aftermath of conflict. Women and women’s continuity of violence before, during and after conflict, the
organizations have often been at the forefront of consequences of gender-based violence on their families
designing and implementing informal or alternative and communities, the climate of ongoing impunity
truth-seeking initiatives, particularly when their needs and the importance of strong women’s networks for
and the needs of their communities for truth and overcoming barriers to justice and equality. 45
justice have been ignored by official processes. For
example, the Association of Women from Prijedor Izvor In December 2014, survivors of sexual violence in
in Bosnia and Herzegovina spent 14 years creating the armed conflict in Nepal testified before a women’s
a catalog of every person killed in the municipality of tribunal hosted by the Nepalese National Human Rights
Prijedor from 1992-1995, including photographs and Commission and convened by Nepalese women’s
basic information about each person.43 civil society organizations.46 The women, most of
whom had not previously spoken publicly about their
Women’s Tribunals are one key example of experiences, gave disturbing accounts of rape, torture,
women’s organizations leading and designing truth- and subsequent abandonment by their families and
seeking and accountability mechanisms to secure communities. The Tribunal’s jury, comprised of regional
acknowledgement of women’s concerns, and advocate and international human rights experts, found violations
for official action. Although the judgments of these of Nepalese law and international law, and made
tribunals are not binding, they nevertheless help to end wide-reaching recommendations, including that the
the silence that surrounds gender-based violence, and National Human Rights Commission urgently investigate
can create moral pressure for formal recognition of the cases, take all other appropriate steps to achieve
women’s rights violations. Civil society organizations justice and include survivors in national reparations
have held dozens of tribunals around the world, with schemes. 47
themes ranging from sexual violence, to the rights of
indigenous women, to the effects of neoliberal policies In December 2011, a women’s hearing was held in
on gender inequality. Cambodia, to examine experiences of sexual violence
under the Khmer Rouge regime from 1975 to 1979. The
A few of these recent tribunals are highlighted below: panel of human rights activists who presided over the
hearing found that victims had experienced violations
In May 2015, hundreds of women from all corners of the of international human rights law and international
former Yugoslavia came together in a tribunal organized criminal law, which required redress by the national
by women’s groups, an initiative that in itself bridged and international community, including through
political and ethnic divides. Its design was the result of criminal justice, reparations and guarantees of non-
a participatory process where survivors were consulted recurrence.48
 113

COMMISSIONS OF INQUIRY AND Mandated by the Human Rights Council in 2013 to

FACT-FINDING MISSIONS investigate the systematic, widespread and grave violations
of human rights in the country, the Commission’s final report
In the last 15 years, the number of commissions of includes findings in relation to specific gender-based crimes
inquiry and fact-finding missions established by the UN as well as the gendered impacts of all nine major areas of
has grown. A commission of inquiry is often the first human rights violations investigated by the body. Specific
opportunity for the UN to create a historical record of violations against women documented include: pervasive
grave human rights violations. It can also pave the way gender-based discrimination, trafficking in women and girls,
for appropriate post-conflict justice and accountability forced abortion and infanticide, sexual violence and marked
measures including prosecutions. For example, the UN’s gender and ethnic patterns in enforced disappearances.52
International Commission of Inquiry on Darfur found that The report makes gender-specific recommendations to
crimes committed in the region included ‘widespread the North Korean State, including calling on the DPRK to
and systematic’ rape and sexual violence on a scale that address the “structural causes that make women vulnerable
could amount to crimes against humanity. In light of this to such violations.”53 Following release of the report in
and other findings, the Darfur Commission of Inquiry led 2014, both the General Assembly and the Security Council
directly to a Security Council referral of the situation in called for action to address the grave human rights situation
Darfur to the ICC.49 The Commission of Inquiry’s report in North Korea, with a number of countries citing the
on Guinea established that at least 109 women and girls findings of the Commission in their statements.
had been subjected to rape and other sexual violence,
and that these crimes in themselves may have amounted The Commission of Inquiry on the Syrian Arab Republic
to crimes against humanity. Several of those named established by the Human Rights Council in 2011 has for
as primary suspects by the Guinea Commission have the past four years highlighted the prominent role SGBV
been indicted in a Guinean domestic court—including has played in the conflict. The findings have been widely
former President Dadis Camara—demonstrating how reported in the media and brought to the attention of the
such commissions can contribute at the domestic level to Security Council by both the Commissioners themselves,
securing justice for SGBV crimes. and by the SRSG on Sexual Violence in Conflict.

Given the important role that these investigatory bodies The Human Rights Council has shown increasing
play in laying the foundation for transitional justice willingness to include in the founding resolutions of these
processes, a dedicated focus within them on SGBV bodies, whether they be commissions of inquiry or fact-
can substantially contribute to more gender-sensitive finding missions, inclusion of CEDAW as a framework for
truth, justice and redress measures.50 Since 2009, every guiding investigations; explicit mention of SGBV crimes;
conflict-related UN commission of inquiry has included and appropriate language from the Security Council’s
a gender advisor/SGBV investigator, seconded by UN women, peace and security commitments to ensure greater
Women to OHCHR, as part of the investigative team.51 coherence and a unified approach. The recently appointed
These experts have highlighted the nature and extent fact-finding mission “to improve human rights, accountability
of SGBV, and ensured that gender considerations are and reconciliation for South Sudan”54 notes that “persistent
adequately addressed in investigations, and in analysis of barriers to the implementation of Security Council resolution
violations of human rights and international humanitarian 1325 (2000) of 31 October 2000 will only be dismantled
law. They have also tried to ensure that victims and through dedicated commitment to women’s empowerment,
witnesses of SGBV are interviewed without causing further participation and human rights and through concerted
harm, and that information concerning SGBV crimes is leadership, consistent information and action and support
properly collected and documented. to build women’s engagement at all levels of decision-
making.”55 In requesting a report by OHCHR to the Human
Perhaps the strongest commission report thus far from a Rights Council, the resolution specifically mentions the
gender perspective has been the Commission of Inquiry need to include violations of sexual violence within this
on the Democratic People’s Republic of Korea (DPRK). briefing.
114 Chapter 5. Transformative Justice

FOCUS ON

Guidance note on integrating gender in commissions of inquiry and fact-finding missions

The Office of the High Commissioner for Human • Provide training/briefings for all investigators
Rights (OHCHR) is finalizing a guidance note on on gender-sensitive investigation, including the
strengthening the ability of commission of inquiry and gendered dimensions of human rights violations
fact-finding missions to address SGBV by incorporating and specific vulnerability of different categories of
a gender analysis into their investigations, and women.
integrating a gender perspective throughout their work.
• Adopt and adhere to standard operating
Key recommendations include the following: procedures for investigating SGBV in accordance
with international standards.
• Specifically include SGBV and gender
discrimination in all mandates of COIs/FFMs. • Ensure appropriate gender-sensitive security and
witness protection measures are in place.
• Integrate a gender perspective in all steps of
the work of a COI/FFM including preparation, • Integrate investigation of SGBV crimes into the
investigation, analysis and reporting. overall investigation plan and strategy, together
with a conflict mapping exercise that documents
• Ensure gender balance in staffing, as well as the range of violations experienced by women.
assessment of gender-sensitivity in the selection
of commissioners. • Ensure coordination and collaboration with
relevant UN entities, including UN Women, as well
• Include both a gender advisor and an SGBV as with women’s civil society organizations.
investigator in the Secretariat team from the creation
of a COI/FFM to the finalization of the report. • Ensure that the final report includes specific
recommendations in relation to SGBV crimes and
gendered dimensions of human rights violations.
 115

It is clear that having targeted expertise, inclusive

mandates and the institutional will to investigate
violations against women and girls in commissions
‘“Transformative
of inquiry and fact-finding missions is profoundly reparations’[…] means
affecting the effectiveness of these bodies. Follow-
up action related to the findings of these bodies is land restitution,
not always as strong however. One possible way to
ensure that findings from these bodies better impacts coupled with land
action is to encourage the growing informal channels
of information sharing between these bodies and the
redistribution and
Security Council, particularly in regards to informing access to credit,
country-specific deliberation and action for countries
on the Council’s agenda (see Chapter 11: The skills and means
Security Council).
to transform that
land into a source
REPARATIONS
of livelihood.
While criminal trials and truth-seeking are critical to fight
impunity and reinstate the rule of law, these mechanisms ‘Transformative
alone cannot bring about the social transformation
required to ensure such violations do not occur again,
reparations’ means
to deliver the redress due to victims or mitigate the providing fistula
consequences of these crimes for survivors and
their communities. For these ends, comprehensive, surgery to survivors
sustainable and transformative reparations for victims
are both a right and an integral aspect of peacebuilding.
of rape as well as
income-generating
The International Criminal Court has a broad definition
of reparations in its first judgment in the Lubanga skills.”
case.56 The measures suggested include financial
compensation, restitution, collective reparations,
Phumzile Mlambo-Ngcuka
legislative and administrative acts, apologies, and
Executive Director of UN Women
memorialization among others. Reparations have
particular importance for women, as they can provide
acknowledgement of their rights as equal citizens, a
measure of justice, crucial resources of recovery and
contribute to transforming underlying gender inequalities The need to ensure that women are consulted and
in post-conflict societies.57 Despite their potential able to actively participate in reparations processes
however, reparations are the least implemented was underscored in the survey-based research study
and funded justice mechanism post-conflict. Where on transitional justice by the Harvard Humanitarian
programmes have been implemented, they have too Initiative, not least because the study revealed differing
often been piecemeal in nature, delayed by many perceptions towards reparations by women and
years, and undertaken with little consultation—and men.58 For example, in Côte d’Ivoire, women were
ultimately little reparative value to victims. almost three times more likely to mention financial
compensation than men, while in the Central African
116 Chapter 5. Transformative Justice

Percentage of respondents that expressed if reparations are provided they should be given individually/
to the community/both59

23% 19% 21%

UGANDA
(NORTH) 30% 35% 32%
(2010, n=2479)
47% 46% 47%

EASTERN DEMOCRATIC 23% 35% 29%

REPUBLIC OF THE CONGO 47%
44% 46%
(2013, n=5,166)
30% 21% 26%

COTE D’IVOIRE 35% 35% 36% Both

(ABIDJAN) Community
28% 37% 33%
(2013, n=1000)
Individual
36% 28% 32%

CENTRAL AFRICAN 33%

53% 43%
REPUBLIC
(2010, n=1,879) 42%
32% 37%
26% 15% 20%

16% 23% 19%

CAMBODIA
(2010, n=1000)
75% 71% 73%

9% 7% 8%

Woman Man Total

Republic, this was the reverse. Women generally and often systemic marginalization, “measures of
mentioned the need for psychosocial counselling redress need to link individual reparation and structural
support more frequently than men, with the exception transformation.”61 Still, too few reparations programmes
of northern Uganda. When asked whether reparations correlate with women’s experiences of conflict, leaving
should be provided individually, collectively, or both, out redress for reproductive violence, for instance—
respondents generally preferred collective reparations, including forced pregnancy, forced sterilization and
again with the exception of northern Uganda. forced abortions—as well as the range of socio-economic
Importantly though, in all countries, a higher proportion violations women experience during conflict.62
of women than men favoured individual reparations.60
This highlights the importance of ensuring that women
are consulted and able to actively participate in Progress in approaches to reparations
reparations processes.
There has been some progress, however. For
Over the past decade, policy and jurisprudence example, through Morocco’s Equity and Reconciliation
has converged on the need for reparations to be Commission, a gender-responsive approach to
transformative in impact, particularly in relation to women reparations was achieved by acknowledgingspecific
and girls. The UN Special Rapporteur on Violence harms done to women (including relatives of direct
Against Women, its Causes and Consequences has victims), recognizing discrimination in previous
noted that since violence perpetrated against individual approaches to reparations and defining sexual attacks
women generally feeds into patterns of pre-existing as a category of violations to be compensated.63
 117

Reparations in the form of land restitution can be with land and property reform is one element of a
crucial for women, especially in countries where transformative approach to reparations.65
their lack of access to land and inheritance rights as
a matter of law and practice pre-conflict can result Perhaps the greatest progress in the area of reparations
in heightened uncertainty, insecurity and economic in recent years has been the increased political
marginalization post-conflict. Colombia’s Victims willingness to provide reparations for victims of conflict-
Law includes restitution of land to those who have related sexual violence. Bosnia’s war crimes court issued
arbitrarily lost it or have been displaced as a result a landmark ruling in June 2015 that granted the first
of the internal armed conflict. The Law’s provisions ever compensation to a wartime rape victim.66 A number
include special measures to protect women’s rights, of countries are also developing specific legislation in
such as giving priority to female heads of households this area. In 2014, the Government of Libya issued a
in judicial and administrative processes, providing decree calling for the award of reparations to victims
for specialized attention for women in the processing of sexual violence during Gaddafi’s rule and the 2011
of requests for restitution, and priority access to Libyan uprising.67 The decree offers 12 measures for
other benefits such as credit, education, training and relief, including monetary and psychological support
subsidies.64 The linking of the reparations processes for victims. While the Reparations Commission remains

FOCUS ON

The Secretary-General’s Guidance Note on reparations for conflict-related sexual violence

In 2014, the UN released the Secretary General’s Guidance • Reparations should strive to be transformative,
Note on Reparations for Conflict-Related Sexual Violence, including in design, implementation and impact.
which informs the UN’s engagement on reparations. The
note outlines eight key principles for securing effective • Development cooperation should support States’
redress: obligation to ensure access to reparations.

• Adequate reparation for victims of conflict-related sexual • Meaningful participation and consultation of victims
violence entails a combination of different forms of in the mapping, design, implementation, monitoring
reparations. and evaluation of reparations should be ensured.

• Judicial and/or administrative reparations should be • Urgent interim reparations to address immediate
available to victims of conflict-related sexual violence needs and avoid irreparable harm should be made
as part of their right to obtain prompt, adequate and available.
effective remedies.

• Adequate procedural rules for proceedings

• Individual and collective reparations should involving sexual violence and reparations should be
complement and reinforce each other. in place.
118 Chapter 5. Transformative Justice

to be established, the decree has been heralded as an programmes to be fully effective, particularly in
unprecedented move on the part of the Government. The contexts of large-scale violations and poverty,
Kosovo Assembly approved a law in 2014 that legally complementary linkages must be made to targeted
recognizes the status of civilian victims of sexual violence development policies and development actors, even
during the armed conflict,68 and Croatia’s Parliament has where reparations are limited to individual forms
recently adopted a law that provides all sexual violence of redress. For example, providing some form of
victims of the war with a once-off payment, monthly specialized healthcare to victims of the most serious
compensation for the rest of their lives, and access to violations requires a functioning healthcare center
legal aid, compulsory and additional health insurance, close to where victims live. Providing scholarships
regular annual medical check-ups and accommodation to children of those disappeared, raped, tortured or
in institutions providing services and assistance to war killed requires a functioning school that can provide
veterans and war victims.69 quality education.74 Moreover, in contexts where entire
communities have been affected by conflict, linking
As with all measures of justice for sexual violence individual reparations to community reparations and
crimes, the design of reparations programmes needs targeted development programmes can mitigate
to bear in mind the specific challenges of access against creating new fault-lines for grievance.75
and stigma, and be guided by gender and cultural For example, a once-off cash payment, even if
sensitivities including the principle of ‘do no harm.’ significant, cannot address the poverty of marginalized
Attention should also be paid to adopting procedural communities that can be a root factor of conflict.
rules that protect the interest of the victim and
provide reasonable and appropriate measures for Related to this, while some victims prioritize individual
burden of proof, which are more difficult in relation to justice—punishing the perpetrator and creating a
conflict-related sexual violence crimes. Administrative system of deterrence so such acts do not occur
reparations programmes may be important tools for again—for others, justice must ultimately be seen from
providing redress for these specific violations.70 the perspective of the larger community. It is important
to consider thus how mechanisms and processes of
In Peru, a variety of mechanisms was used for justice, while giving recourse to individuals, also help
registering victims, including declarations of community societies to heal and recover from past violations, and
leaders and analysis of contextual information.71 In move towards a sustainable peace. Reparations that
Chile, the payment of reparations for torture did not are both individual and collective can complement
require victims to disclose or prove their experiences prosecutorial justice, ensuring both redress and
of torture. The fact that they had been detained in societal rebuilding. Collective reparations can also
a center known for its extensive use of torture meant include symbolic measures, such as memorials,
that compensation was paid without needing to meet apologies and reburials. For women, symbolic
a burden of proof.72 Such innovative thinking could be acknowledgement of the violation of their rights can
applied to sexual violence crimes to find ways around the also serve as a reassertion of their equal rights as
need for public disclosure and burdens of evidence.73 citizens.

Connecting reparations to broader development Managing expectations

policies and actors
The International Criminal Court, in its first case, set
While the right to reparations and the right to out a comprehensive framework for reparations.76
development are distinct and separate, coordinating The Trust Fund for Victims at the ICC, set up by State
programming, strategies and actors can assist Parties, has been left with the task of implementing
in better realizing both rights. For reparations these reparations with very few resources. The
 119

Trustees are in the process of preparing an difficult. Formal justice systems are either devastated
implementation plan with a great deal of difficulty. or undermined, and the State may have lost the trust
Though the call for reparations is fundamentally valid of its people. In these situations, informal justice
in terms of theory, in practice few of the institutions, institutions and the customary laws they mediate are
especially in conflict societies, have the capacity to often the only sites of justice and conflict resolution
meet the needs of innovative reparations programmes. to which people, in particular women, have access,
It is therefore crucial to manage expectations from the and these often do not provide positive outcomes for
beginning, to ascertain what is realistic and possible women and girls.
before promising reparations to victims.
While it is a contested concept, legal pluralism refers
to systems in which various laws and legal orders
WOMEN’S ACCESS TO JUSTICE coexist. These may include various combinations
IN PLURAL LEGAL SETTINGS of codified civil law, religious law, indigenous or
customary legal codes, community arbitration or other
International humanitarian law, resolution 1325 and dispute settlement procedures. They can be formal or
the six subsequent resolutions on women, peace and informal. Some orders are recognized and sanctioned
security, encourage States to promote and protect by the State, while others are not. While plural legal
women’s access to justice throughout post-conflict orders can generate uncertainty and challenges, they
accountability processes, and equally to undertake can also offer opportunities for women to negotiate
legal and judicial reform to ensure access to justice and advance their justice aims.78
and rule of law for all.
Somalia is an example where multiple, overlapping
Approximately 80 per cent of claims or disputes and sometimes contradictory legal systems together
are resolved by parallel justice systems, with cultural norms, undermine women’s rights. Under
indicating that most women in developing customary law, a Somali woman who has been raped
countries access justice in a plural legal can be forced to marry her attacker. Rape is seen as
environment.77 Yet, in practice, legal pluralism can an issue to be resolved between two clans in an effort
pose particular challenges to women, especially where to keep the peace, protect the honor of the victim,
State institutions are weak as they so often are in the eliminate social ostracism and ensure full payment
aftermath of conflict. In particular, delivering justice of her dowry by the attacker’s clan.79 In contrast, the
for women in the midst of active conflict is inherently formal law carries a punishment of imprisonment, and
Islamic Law imposes the death penalty for rape if the
perpetrator is married, and 90 lashes for an unmarried
accused.80 Three systems lead to three different
outcomes for the same crime based on differing
concepts of rights and the rights bearer.
In practice, legal pluralism
can pose particular Since the aim of many non-State justice systems is
challenges to women, the restoration of peace rather than the provision
especially where State of redress for individuals, this can often mean
discrimination against women is perpetuated and
institutions are weak as their human rights denied.81 In some contexts, ‘forum
they so often are in the shopping’ can theoretically offer choice to litigants,
aftermath of conflict. allowing them to explore options for a favorable
outcome. However, this choice is rarely meaningful
for women on account of community and social
120 Chapter 5. Transformative Justice

FOCUS ON

Informal justice systems and the role of traditional and religious leaders

As the majority of people seek justice through informal local decisions, especially with respect to women’s
justice systems, especially in conflict and post-conflict rights. While at the national level women rights have
settings, religious and traditional leaders can play an encountered resistance, at the local level religious
important role in protecting and promoting women’s leaders have shown interest in protecting women’s
rights. rights within an Islamic framework. Civil society
organizations have been working with Islamic scholars
Legal orders which apply religious, customary or regionally to develop a curriculum on Women’s Rights
indigenous laws tend to be dominated by men and in Islam. Imams who have participated in the project
perpetuate patriarchal interpretations of culture, have referenced in their sermons women’s religious
provide differential protections to men and women and and legal rights to familial inheritance, employment,
rarely punish gender-based violence in particular.82 education, participation in political life, and decision-
However, customary law is adaptable and can making over their own bodies. While it is difficult to
change in ways that reflect evolving values in society. gauge the effect of these sermons, impact studies of
For example, in Afghanistan, religious leaders are various projects show that rates for resolving cases in
among the traditional ‘gatekeepers’ for making favor of women disputants improved three-fold.83

pressures. religious leaders are constitutionally mandated to be

exercised in line with constitutional principles, including
While the challenges to securing women’s access gender equality, in practice the reality for women is still
to justice in fragile and post-conflict settings are often one of systemic discrimination.
considerable, legal pluralism can be utilized in a
positive way, with programming interventions based In Burundi, although the principle of gender equality and
on a context-specific analysis of how women navigate non-discrimination on the grounds of sex is enshrined in
and use different justice systems, why they choose the 2005 Constitution,85 important aspects of family life
one over another, what the outcomes are, and how such as inheritance and matrimonial property schemes
this impacts on their lives.84 There are a number of are still governed by customary law, which discriminates
examples of governments, international actors and against women86 by preventing them from inheriting land
women’s organizations engaging with different legal from their fathers or husbands.
orders to bring about positive change.
As the aftermath of conflict is almost always
accompanied by constitutional and legislative reforms,
Institutional reforms it is an important moment of opportunity to entrench
gender equality and equal rights across all legal
Plural legal systems, including in post-conflict contexts, systems. As noted, legislative reform in itself is no
can be harder to reform where customary or religious guarantee of social change. However, bringing plural
law is exempted from constitutional equality provisions. legal systems in line with international legal standards
Further, even where powers held by traditional and can play a seminal role in developing a shared
 121

in professional oversight bodies) can create justice

systems that are more gender responsive.89 For
As the aftermath of example, increasing the number of female police
conflict is almost officers correlates positively with an increase in
reporting of sexual violence.90 Equally, in considering
always accompanied the specific needs of women prisoners, including in
by constitutional and regard to access to justice, an appropriate gender
legislative reforms, it is balance among prison staff is crucial to ensure these
an important moment of needs are met and rights are respected. Women’s
participation in the judicial sector can be effectively
opportunity to entrench
facilitated by programmes that encourage women to
gender equality and equal pursue legal careers, and that support educational
rights across all legal opportunities or employ quotas.
systems.
Across all of these approaches to securing justice
there is a need to ensure that access is premised on
an understanding of the rights bearer. This requires
accounting for differentiated needs associated with
understanding of human rights. Affirming the primacy factors including age, culture, ethnicity, religion, socio-
of constitutional laws over religious, customary and economic status and locality, which must equally be
indigenous laws, as well as mandating that they are considered in the design of response.
consistent with constitutional norms on equality is a
necessary step towards ensuring the protection and
promotion of women’s rights.87

Women’s participation in accessing justice

Women’s participation in all sites and forms of

In the formal justice sector,
justice can have transformative impacts in itself. In employing women on
Timor-Leste, grassroots women leaders’ work with the frontlines of service
the village chief (or ‘succo’) system has resulted in delivery (as police,
an increased commitment by succo chiefs to refer corrections officials, legal
gender-based violence to the formal justice system.
This has successfully reduced the incidences of
representatives and court
domestic violence. Women who participated in such administrators), as well
mechanisms have testified about their new-found as at the highest levels
confidence and ability to understand peace and of policy influence (as
security issues, which in turn has enabled them to take
legislators, judges and
action on behalf of their entire communities.88
in professional oversight
Data has shown that in the formal justice sector, bodies) can create justice
employing women on the frontlines of service delivery systems that are more
(as police, corrections officials, legal representatives gender responsive.
and court administrators), as well as at the highest
levels of policy influence (as legislators, judges and
122 Chapter 5. Transformative Justice

Access to justice while conflict rages

In the midst of conflict, access to justice is at its One-stop centers that

most scarce, especially affecting marginalized and offer survivors a range of
minority groups, including women and girls.91 Legal
structures that should protect the population tend to
services in one location,
be inaccessible and/or destroyed. Even traditional such as medical care,
mechanisms to resolve disputes can be compromised, psychological counseling,
as traditional leaders themselves may have been access to police
displaced, imprisoned and sometimes tortured and
investigators and legal
killed. For example, in Darfur, while rape and other
forms of SGBV are endemic to the conflict, access
assistance, are proving to
to justice, particularly for women and girls, is almost be a successful model.
non-existent. Many courts have been shut down, either
by the government or by the rebels, or are simply
frozen by the violence and displacement.92 In some
areas taken over by the Sudanese Liberation Army
(SLA), customary courts were closed and replaced
with military-like courts, which are reported to favor recently have begun to address the social reintegration
combatants over civilians and certain ethnic groups problems faced by SGBV victims through psychosocial
over others.93 The conflict has also made it harder support, literacy classes, socio-economic support and
for traditional mechanisms to resolve disputes as education of community leaders on attitudes towards
traditional leaders themselves have been displaced, survivors.95 One-stop centers that offer survivors a
imprisoned and sometimes tortured and killed. It is range of services in one location, such as medical
clear that in situations of conflict, the operation of care, psychological counseling, access to police
both formal and informal justice mechanisms are investigators and legal assistance, are proving to
compromised, impacting in particular access to justice be a successful model that integrates legal services
for marginalized and minority groups including women with survivors’ broader needs, through a coordinated
and girls.94 The UN has adopted a number of initiatives approach between health professionals, who are often
to strengthen national level justice responses in the the first point of contact, and police.
midst of conflict, including one-stop centers (such as
in Somaliland and Burundi), women’s desks at police With their knowledge of plural legal systems, and
stations in Iraq, mobile courts in Eastern DRC and a understanding of local socio-political structures,
national police hotline for SGBV victims in Mali. community paralegals can be invaluable in supporting
women in navigating the different (formal or informal)
systems to their advantage.96 They can facilitate access
Legal empowerment Initiatives to formal systems as well as provide alternatives for
women to turn to where their formal rights are not
Improving access to legal aid and service delivery acknowledged by local institutions. The Turkana Women
for survivors of SGBV—including the provision of in Development Organization (TWADO) runs a paralegal
medical, psycho-social and economic assistance— program specifically focused on monitoring cases that
is an important component of their overall access involve violence against women and children in the
to comprehensive justice. In Eastern DRC, UNDP remote Turkana region of Kenya. They are seconded
supports a large network of legal aid clinics to tackle to local customary dispute resolution processes where
impunity, particularly for SGBV crimes. These clinics they provide input to cases that relate to women’s
include medical, psychosocial and legal aid, and more rights. They also monitor the process for cases that
 123

should be referred to the formal courts and support conflict through the establishment of their own peace-
families to access that mechanism.97 restoring and dispute resolution forums. In Kup District
of Simbu Province, the organization Kup Women for
For female detainees and prisoners, access to legal aid Peace (KWP) provides training on victim’s rights and
is crucial to ensure a fair trial and sentence, especially instruments, including the use of CEDAW, to village
considering that women prisoners frequently are victims leaders and court officials. This has led to a decision
of abuse, suffer from mental illness, and continue to to appoint ‘community police officers’ who act as a
be the primary caretakers for their children. In Darfur, link between the community and the nearest police
for instance, UNAMID supported the establishment station in the district.98
of legal aid desks in prisons, which have to date
benefitted more than 550 prisoners (including men).
UNMIL facilitated access to prisoner records by building
national capacity on prison data management, which
resulted in a 27 per cent decrease in pre-trial detention.
Legal reform and support
In order to maximize impact, legal reform and support
to legal assistance
to legal assistance must be combined with awareness- must be combined with
raising and dialogue among State and non-State awareness-raising and
stakeholders, and among women in both urban and dialogue among state and
rural settings. This aids in creating a space for women
to challenge cultural values and procedures that
non-state stakeholders,
perpetuate systemic discrimination, and impede their and among women in both
access to justice. In the eastern highlands and Simbu urban and rural settings.
provinces of Papua New Guinea, there are a number of
communities that have successfully resolved communal
124 Chapter 5. Transformative Justice

RECOMMENDATIONS

Moving progress beyond 2015: Proposals for action

Member States, the UN and civil society should: Civil society should:

✓ Adopt a transformative justice approach to ✓ Advocate for State ratification and domestic
programming for women’s access to justice, implementation of the Rome Statute; and
including by developing interventions that support adoption of national legislation in line with
legal orders to challenge the underlying socio- international standards on women’s rights,
cultural norms and contexts of inequality that including specific legislation on SGBV crimes.
perpetuate discrimination against women, and
enable conflict-related violations to occur.
TRANSITIONAL JUSTICE
✓ Ensure that accountability mechanisms mandated Member States and the UN should:
to prevent and respond to extremist violence have
the necessary gender expertise to do so, in light of ✓ Invest in the design and implementation of
the escalating rate of deliberate attacks on women’s gender-sensitive transitional justice measures that
rights, including SGBV, by extremist groups. recognize and respond to women’s experiences
of conflict, and their justice and accountability
needs.
PROSECUTIONS
Member States and the UN should: ✓ Prioritize the design and implementation of
gender-sensitive reparations programmes
✓ Invest in strengthening national justice systems with transformative impact, including through
to investigate and prosecute international crimes, implementing the Guidance Note of the Secretary
including SGBV, in accordance with the principle General on Reparations for Conflict-Related
of complementarity. This includes by: Sexual Violence.

• Supporting legal frameworks that incorporate ✓ Institute specific measures to ensure the
definitions and elements of SGBV crimes, active participation of women and civil society
procedures for victim and witness support and organizations in the design, implementation,
provisions for reparations, in line with international monitoring and evaluation of transitional justice
standards, including the Rome Statute. mechanisms, so as to guarantee that women’s
experience of the conflict is included, their
• Working together and providing expertise to particular needs and priorities are met and all
ensure States have the technical capacity to violations suffered are addressed.
investigate and prosecute conflict-related SGBV.
 125

Members States and the UN should: Members States, the UN and civil society should:

✓ Invest in gender-responsive capacity building of ✓ Collaborate on the design and implementation

the justice sector by: of legal empowerment initiatives that build
women’s confidence and access to legal systems,
• Providing gender-sensitive training for all and enable women to be active participants in
justice sector actors—especially those involved navigating them.
in justice-related service delivery including
traditional leaders, health professionals and ✓ Support grassroots women to lead and engage
police. with traditional justice mechanisms.

• Supporting increasing the participation of

women at all levels in justice service delivery, Member States should:
across both formal and informal systems,
through measures that can include quotas and ✓ Ensure constitutional equality guarantees apply
support to women’s legal education, including to all laws and justice systems, in line with
scholarships. international law.
126 Chapter 5. Transformative Justice

REFERENCES
1. Maria Butler, Abigail Ruane, and Madhuri Sastry, “The 14. This was Judge Navantham Pillay, who subsequently
Pieces of Peace: Realizing Peace Through Gendered served as UN High Commissioner for Human Rights.
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2. See, “Uniting Our Strengths for Peace - Politics,
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(High-Level Independent Panel on United Nations Peace Submission by the International Criminal Court”
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98–33-T (International Criminal Tribunal for the Former 630.
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17. “Sepur Zarco: First Case of Sexual Slavery Will Be Heard
4. Prosecutor v. Alex Tamba Brima, Brima Bazzy Kamara in Guatemalan Courts,” Network In Solidarity With The
and Santigie Borbor Kanu (the AFRC Accused)(Appeal People Of Guatemala (NISGUA), July 8, 2015, http://
Judgment), SCSL-2004–16-A (2008); Jennifer Gong- nisgua.blogspot.com/2015/07/sepur-zarco-first-case-of-
Gershowitz, “Forced Marriage: A ‘New’ Crime Against sexual.html.
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5. “Is the International Community Abandoning the Daniela Kravetz, “Recent Developments in Colombian
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Initiatives for Gender Justice, March 2015. IntLawGrrls, April 15, 2015, http://ilg2.org/2015/04/15/
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6. Rome Statute of the International Criminal Court, 2002,
conflict-related-sexual-violence/.
42(9); “Regulations of the Office of the Prosecutor,”
ICC-BD/05-01-09 (International Criminal Court, April 23, 19. Human Rights Council, “Analytical Study Focusing
2009). on Gender-Based and Sexual Violence in Relation to
Transitional Justice, Report of the Office of the United
7. “Rules of Procedure and Evidence for the International
Nations High Commissioner for Human Rights,” UN Doc.
Criminal Court,” UN Doc. PCNICC/2000/1/Add.1
A/HRC/27/21 (United Nations General Assembly, June
(United Nations Preparatory Commission for the
30, 2014), para. 32.
International Criminal Court, November 2, 2000), Rule
87, 88. 20. “Improving Women’s Access to Justice During and
After Conflict: Mapping UN Rule of Law Engagement”
8. Rome Statute of the International Criminal Court, 68(2)
(UN Women, United Nations Development Programme
and (3); “Rules of Procedure and Evidence for the
(UNDP), 2013), 39.
International Criminal Court,” Rules 89–93.
21. “Complementarity and Transitional Justice: Synthesis
9. “TFV Strategic Plan 2014-2017” (The Hague: Trust Fund
of Key Emerging Issues for Development,” Discussion
for Victims, August 2014).
Paper (United Nations Development Programme (UNDP),
10. Elisabeth Wood, “Variation in Sexual Violence During November 16, 2012), 9.
War,” Politics & Society 34, no. 3 (September 2006):
22. “Progress and Obstacles in the Fight against Impunity
307–41.
for Sexual Violence in the Democratic Republic of the
11. Ibid. Congo” (United Nations Organisation Stabilization
Mission in the Democratic Republic of Congo
12. Julie Mertus et al., Women’s Participation in the
(MONUSCO), United Nations Office of the High
International Criminal Tribunal for the Former Yugoslavia
Commissioner for Human Rights (OHCHR), April 2014),
(ICTY): Transitional Justice for Bosnia and Herzegovina
para. 29, 31.
(Hunt Alternatives Fund, 2004), 11..
23. “MediCapt,” Physicians for Human Rights, accessed
13. Binaifer Nowrojee, “We Can Do Better: Investigating and
September 26, 2015, http://physiciansforhumanrights.
Prosecuting International Crimes of Sexual Violence,”
org/medicapt/?referrer=https://www.google.com/.
paper presented at teh OTP Colloquium, Arusha,
(November 2004); Human Rights Watch, ed., Shattered 24. Sucharita S.K. Varanasi, “Using Technology to
Lives: Sexual Violence during the Rwandan Genocide and End Impunity for Mass Atrocities, Including Rape,”
Its Aftermath (New York: Human Rights Watch, 1996). International Justice Monitor, May 26, 2015, http://www.
 127

ijmonitor.org/2015/05/using-technology-to-end-impunity- (UN Women, October 2012).

for-mass-atrocities-including-rape/.
32. Human Rights Council Working Group on Enforced or
25. KoBo Toolbox was created to collect survey data Involuntary Disappearances, “General Comment on
specifically for challenging environments such as conflict- Women Affected by Enforced Disappearances,” UN Doc.
affected settings, and facilitates the creation of survey A/HRC/WGEID/98/2 (United Nations General Assembly,
questionnaires, collection of data on smart devices, and February 14, 2013), para. 4.
their instant analysis. See, “KoBoToolbox: Data Collection
33. Polly Dewhirst and Amrita Kapur, “The Disappeared and
Tools for Challenging Environments,” accessed September
Invisible: Revealing the Enduring Impact of Enforced
26, 2015, http://www.kobotoolbox.org/.
Disappearance on Women” (International Center for
26. The TOE report directly to the Secretary General’s Special Transitional Justice, March 2015), 6.
Representative on Sexual Violence in Conflict and is
34. Ibid., 19–23, 28.
composed of experts from DPKO, UNDP and OHCHR.
35. “Progress of the World’s Women: In Pursuit of Justice” (UN
27. “Report of the Secretary-General: Conflict-Related Sexual
Women, 2011), 95.
Violence,” UN Doc. S/2015/203 (United Nations Security
Council, March 23, 2015), 96. 36. Valji, “A Window of Opportunity: Making Transitional
Justice Work for Women,” 12.
28. Other deployments include the Panel of Experts for Sri Lanka,
fact finding missions to CAR, Iraq, Libya, and on Boko Haram, 37. Ibid.
and the AU Commission of Inquiry for South Sudan.
38. “Organic Law on Establishing and Organizing Transitional
29. The research was conducted with the support of UN Justice” (Republic of Tunisia, Ministry of Human Rights and
Women. Countries included are Rwanda, Iraq, Northern Transitional Justice, December 15, 2013), Art. 39.
Uganda, Eastern DRC, Central African Republic, Liberia,
39. Ibid., Art. 10.
Cote d’Ivoire, Cambodia. Surveys took place from 2002-
2013. See, Phuong N. Pham and Patrick Vinck, “Gender 40. Truth, Justice and Reconciliation Commission (TJRC),
and Transitional Justice: Evidence from Multi-Country Kenya, “Report of the Truth, Justice and Reconciliation
Surveys on Attitudes and Perceptions about Transitional Commission, Vol I,” 2013, 105–106.
Justice” (Harvard Humanitarian Initiative, UN Women,
Brigham and Women’s Hospital, May 2015). 41. Vasuki Nesiah, et al., “Truth Commissions and Gender:
Principles, Policies, and Procedures” (International Center
30. Ibid., 3. In another example which highlights the relevance for Transitional Justice, July 2006), 18.
of consultation with women and communities, in 2004 and
2005, UNIFEM co-organized two conferences on gender 42. Human Rights Council, “OHCHR Study on SGBV in
justice, with the participation of leading women from 12 Relation to Transitional Justice (2014),” para. 9.
conflict and post-conflict countries, who made converging 43. Graeme Simpson, Edin Hodzic, and Louis Bickford,
key observations and recommendations on justice related “Looking Back, Looking Forward: Promoting Dialogue
needs, many of which are cited in this chapter. See, United through Truth-Seeking in Bosnia and Herzegovina” (United
Nations Development Fund for Women (UNIFEM) and Nations Development Programme (UNDP), June 2012),
International Legal Assistance Consortium, “Report of the 80–81.
Conference on Gender Justice in Post-Conflict Situations:
‘Peace Needs Women and Women Need Justice’(15-17 44. Marieme Helie Lucas, “The Women’s Court in the Former
September 2004),” UN Doc. S/2004/862 (United Nations Yugoslavia,” Portside, May 8, 2015, http://portside.
Security Council, October 26, 2004); Swedish Ministry org/2015-05-11/bosnie-sarajevo-women’s-court-former-
for Foreign Affairs, United Nations Development Fund for yugoslavia.
Women (UNIFEM), and International Legal Assistance 45. Andrea Oskari Rossini, “Sarajevo, the Women’s
Consortium, “Report of the High-Level Meeting on Tribunal,” Osservatorio Balcani E Caucaso, May 11,
“Building Partnerships for Promoting Gender Justice in 2015, http://www.balcanicaucaso.org/eng/Regions-and-
Post-Conflict Societies (Stockholm, Sweden, 25-26 August countries/Bosnia-Herzegovina/Sarajevo-the-Women-s-
2005),” UN Doc. A/60/444-S/2005/669 (United Nations Tribunal-161486.
General Assembly, United Nations Security Council,
October 25, 2005). 46. The tribunal was convened by WOREC, National Alliance
for Women Human Rights Defenders, Nagarik Awaj, and
31. “General Recommendation No. 30 on Women in Conflict Advocacy Forum. “Women’s Tribunal in Nepal Hears
Prevention, Conflict and Post-Conflict Situations,” UN from Survivors of Sexual Violence in Armed Conflict,”
Doc. CEDAW/C/GC/30 (Committee on the Elimination Asia Pacific Forum on Women, Law and Development,
of Discrimination against Women, October 18, 2013), December 15, 2014, http://apwld.org/womens-tribunal-
para. 76; Nahla Valji, “A Window of Opportunity: Making in-nepal-hears-from-survivors-of-sexual-violence-in-armed-
Transitional Justice Work for Women,” Guidance Paper conflict/.
128 Chapter 5. Transformative Justice

47. Women’s Tribunal on Sexual Violence on Women During 62. Ruth Rubio-Marin, “Reparations for Conflict-Related
Conflict, “Verdict” (Kathmandu, Nepal: Women’s Tribunal Sexual and Reproductive Violence: A Decalogue,” William
on Sexual Violence on Women During Conflict, December & Mary Journal of Women and the Law 19, no. 1 (2012):
8, 2014), 5. 69–104.
48. Cambodian Defenders Project, “Panel Statement for 63. Valji, “A Window of Opportunity: Making Transitional
the Women’s Hearing: True Voices of Women under Justice Work for Women,” 19. Previous reparations
the Khmer Rouge Regime” (Phnom Penh, Cambodia: benefits in Morocco were based on the concept of
Cambodian Defenders Project, December 7, 2011). inheritance that prioritized eldest sons over wives and
usually left widows destitute or reliant on male relatives
49. “Resolution 1593 (2005),” UN Doc. S/RES/1593 (2005)
for survival. The truth commission report recommended
(United Nations Security Council, March 31, 2005), para.
a process whereby female heads of household could
1.
receive compensation directly and on an equal basis,
50. Human Rights Council, “OHCHR Study on SGBV in rather than through the eldest male relative as per Sharia
Relation to Transitional Justice (2014),” para. 30. inheritance law.
51. In 2011, the UN Secretary-General requested UN Women 64. Colombian Congress, Victims and Land Restitution
to ensure that each COI be provided with expertise on Law, Law 1448, 2011, 114–118; “Guidance Note of
investigations of SGBV. See, “Report of the Secretary- the Secretary-General: Reparations for Conflict-Related
General: Women and Peace and Security,” UN Doc. Sexual Violence” (United Nations, June 2014).
S/2011/598 (United Nations Security Council, September
65. Fionnuala Ni Aolain, Catherine O’Rourke, Aisling Swaine,
29, 2011), para. 69. Since 2009, SGBV investigators or
“Transforming Reparations for Conflict-Related Sexual
gender advisors have been provided to COIs on Guinea-
Violence: Principles and Practice,” Harvard Human Rights
Conakry, Côte d’Ivoire, Libya, Syrian Arab Republic,
Journal, Forthcoming, Minnesota Legal Studies Research
Democratic People’s Republic of Korea, Central African
Paper No. 15–02 (March 2, 2015).
Republic (CAR), Eritrea, Gaza (2014).
66. “Bosnian Court Grants Wartime Rape Victim
52. “Report of the Detailed Findings of the Commission of
Compensation in Landmark Ruling,” The Guardian,
Inquiry on Human Rights in the Democratic People’s
June 24, 2015, http://www.theguardian.com/
Republic of Korea,” UN Doc. A/HRC/25/CRP.1 (Human
world/2015/jun/24/bosnian-court-grants-wartime-victim-
Rights Council, February 7, 2014), para. 963–975.
compensation-landmark-ruling.
53. Ibid., para. 1220(i).
67. “Report of the Secretary General: Conflict-Related Sexual
54. Human Rights Council, “Fact-Finding Mission to Improve Violence,” UN Doc. S/2014/181 (United Nations Security
Human Rights, Accountability and Reconciliation for Council, March 13, 2014), para. 72.
South Sudan,” UN Doc. A/HRC/29/L.8 (United Nations
68. Assembly of the Republic of Kosovo, On Amending and
General Assembly, June 30, 2015).
Supplementing the Law No. 04/L-054 on the Status and
55. Ibid., 2. the Rights of the Martyrs, Invalids, Veterans, Members of
Kosovo Liberation Army, Sexual Violence Victims of the
56. International Criminal Court, Trial Chamber I, Situation
War, Civilian Victims and Their Families, Law No. 04/L-
in the Democratic Republic of the Congo in the Case of
172, 2014.
the Prosecutor v. Thomas Lubanga Dyilo, ICC– 01/04–
01/06, 66–85 (2012). 69. Zoran Radosavljevic, “Croatia Passes Law to
Compensate War Rape Victims,” Reuters, May 29, 2015,
57. See, e.g., Valji, “A Window of Opportunity: Making
http://uk.reuters.com/article/2015/05/29/uk-croatia-rape-
Transitional Justice Work for Women,” 16–19.
idUKKBN0OE1M820150529.
58. Pham and Vinck, “Gender and Transitional Justice:
70. Several of these techniques are described in Carla
Evidence from Multi-Country Surveys on Attitudes and
Ferstman, Mariana Goetz, and Alan Stephens, ed.,
Perceptions about Transitional Justice.”
Reparations for Victims of Genocide, War Crimes and
59. Ibid., 11. Crimes against Humanity: Systems in Place and Systems
in the Making (Leiden: Nijhoff, 2009), chap. 6; Cristian
60. Ibid., 11. Correa, “Integrating Development and Reparations
61. See Human Rights Council, “Report of the Special for Victims of Massive Crimes” (The Center for Civil &
Rapporteur on Violence against Women, Its Causes and Human Rights, University of Notre Dame, July 2014).
Consequences, Rashida Manjoo,” UN Doc. A/HRC/14/22 71. Correa, “Integrating Development and Reparations for
(United Nations General Assembly, April 23, 2010), para. Victims of Massive Crimes,” n. 28.
24. See also, “CEDAW General Recommendation No.
30 (2013),” para. 79. “[R]eparations measures should 72. “Progress of the World’s Women: In Pursuit of Justice”;
seek to transform structural inequalities which led to the Correa, “Integrating Development and Reparations for
violation of women’s rights respond to women’s specific Victims of Massive Crimes,” n. 28.
needs and prevent their re-occurrence.”
73. Nahla Valji, “Gender Justice and Reconciliation,”
 129

Occasional Paper, Dialogue on Globalization (Friedrich 84. Bendaña and Chopra, “Women’s Rights, State-Centric
Ebert Stiftung, November 2007). Rule of Law, and Legal Pluralism in Somaliland.”
74. Correa, “Integrating Development and Reparations for 85. “Burundi’s Constitution of 2005” (Constitute Project,
Victims of Massive Crimes,” 21–22. 2005), 13, 22.
75. “Reparations, Development and Gender,” Report of 86. Committee on the Elimination of Discrimination against
the Kampala Workshop (UN Women, United Nations Women, “Consideration of Reports Submitted by States
Development Programme (UNDP), December 1, 2010). Parties under Article 18 of the Convention on the
For a discussion of transformative reparations and their Elimination of All Forms of Discrimination against Women:
link to development, see “A Transformative Approach to Burundi,” UN doc. CEDAW/C/BDI/4 (Convention on the
Transitional Justice: Building a Sustainable Peace for All: Elimination of All Forms of Discrimination against Women,
Summary Document and Analysis” (Permanent Mission March 6, 2007), para. 19, 20, 43.
of the United Arab Emirates to the UN, Georgetown
87. Human Rights Council, “Report of the Working Group on
University Institute for Women, Peace and Security, UN
the Issue of Discrimination against Women in Law and in
Women, February 24, 2015), http://wps.unwomen.org/
Practice (2015),” para. 58.
en/highlights/uae-panel-discussion-transitional-justice-as-
transformative-building-a-sustainable-peace-for-all. 88. “Evaluation of the ‘From Communities to Global Security
Institutions’ Program” (UN Women, International Solutions
76. International Criminal Court- Trial Chamber I, Situation in
Group, September 2014).
the Democratic Republic of the Congo in the Case of the
Prosecutor v. Thomas Lubanga Dyilo, ICC– 01/04–01/06 89. See, e.g., “Improving Women’s Access to Justice
(International Criminal Court 2012). During and After Conflict: Mapping UN Rule of Law
Engagement,” 40.
77. “Accessing Justice: Models, Strategies and Best
Practices on Women’s Empowerment” (International 90. “Progress of the World’s Women: In Pursuit of Justice,”
Development Law Organization, 2013), 12; Human 59–61.
Rights Council, “Report of the Working Group on the
91. Committee on the Elimination of Discrimination
Issue of Discrimination against Women in Law and
against Women, “General Recommendation No. 33
in Practice,” UN Doc. A/HRC/29/40 (United Nations
on Women’s Access to Justice,” UN Doc. CEDAW/C/
General Assembly, April 2, 2015), para. 53.
GC/33 (Convention on the Elimination of All Forms of
78. Brian Z Tamanaha, “Understanding Legal Pluralism: Past Discrimination against Women, July 23, 2015), para. 9.
to Present, Local to Global,” Sydney Law Review 30
92. Jerome Tubiana, Victor Tanner, and Musa Adam Abdul-
(2008): 375.
Jalil, “Traditional Authorities’ Peacemaking Role in
79. Joakim Gundel and Ahmed A. Omar “Dharbaxo,” “The Darfur,” Peaceworks (United States Institute of Peace,
Predicament of the ‘Oday’: The Role of Traditional 2012), 48.
Structures in Security, Rights, Law and Development in
93. Ibid., 49.
Somalia” (Danish Refugee Council and Oxfam Novib,
November 2006), 55; Andre Le Sage, “Stateless Justice 94. “CEDAW General Recommendation No. 33 (2015).”
in Somalia: Formal and Informal Rule of Law Initiatives”
(The Centre for Humanitarian Dialogue, 2005), 37 and 95. “Strengthening the Rule of Law in Crisis-Affected and
n. 33; Alejandro Bendaña and Tanja Chopra, “Women’s Fragile Situations: Global Programme Annual Report
Rights, State-Centric Rule of Law, and Legal Pluralism in 2014” (United Nations Development Programme (UNDP),
Somaliland,” Hague Journal on the Rule of Law 5, no. 1 2015), 23.
(March 2013): 54–55. 96. “Progress of the World’s Women: In Pursuit of Justice.”
80. Bendaña and Chopra, “Women’s Rights, State-Centric 97. “Role of Traditional Leaders and Customary Justice
Rule of Law, and Legal Pluralism in Somaliland,” 48. Mechanisms,” UN Women Virtual Knowledge Centre
81. “Progress of the World’s Women: In Pursuit of Justice,” to End Violence against Women and Girls, accessed
69. September 23, 2015, http://www.endvawnow.org/en/
articles/1684-role-of-traditional-leaders-and-customary-
82. Human Rights Council, “Report of the Working Group on justice-mechanisms.html.
the Issue of Discrimination against Women in Law and in
Practice (2015),” para. 54. 98. “Informal Justice Systems: Charting a Course for Human-
Rights Based Engagement” (UN Women, UNICEF, United
83. Palwasha L. Kakar, “Engaging Afghan Religious Leaders Nations Development Programme (UNDP), 2012), 28.
for Women’s Rights,” Peace Brief, Peace Brief (United
States Institute of Peace, June 18, 2014), 3.
130

06
 131

KEEPING THE
PEACE IN AN
INCREASINGLY
MILITARIZED
WORLD

“Time should come, when we don’t

really need to refer to resolution 1325,
because we have fully mainstreamed
the role of women in peacekeeping and
peacebuilding, and it will just be a natural
phenomenon.”
Netumbo Nandi-Ndaitwah, Namibia Minister of Foreign Affairs,UN Women Video Interview, 2015
132 Chapter 6. Keeping the Peace

HIGHLIGHTS FROM THE RESOLUTIONS

Resolution 1325
Expresses its willingness to incorporate
a gender perspective into peacekeeping
operations, and urges the Secretary-
General to ensure that, where appropriate,
field operations include a gender
component

2000 2009

Resolution 1888
Requests the Secretary-General to continue
and strengthen efforts to implement the
policy of zero tolerance of sexual exploitation
and abuse in United Nations peacekeeping
operations; and urges troop and police
contributing countries to take appropriate
preventative action, including predeployment
and in-theater awareness training, and other
action to ensure full accountability in cases of
such conduct involving their personnel
 133

Resolution 2106
Recognizes the role of
United Nations peacekeeping
contingents in preventing sexual
violence, and, in this respect,
calls for all predeployment and
in-mission training of troop- and
police-contributing country
contingents to include training on
sexual and gender-based violence,
which also takes into account the
distinct needs of children

2013
134 Chapter 6. Keeping the Peace

When women activists first brought issues of concern

to international multilateral fora in the 1920s, they were
issues of peace that contained a strong voice against “We must review and
militarization. The world had seen a war that inflicted
such mass scale devastation and destruction that redefine the role,
for the first time, there were concerted international
efforts to ensure ‘never again.’ With roots in peace purpose and culture of
movements and anti-militarization campaigns, women’s
active role on the international stage has always
the military in today’s
been firm about linking women’s rights to peace and context.”
peacebuilding. As the world continues to experience
protracted and deepening cycles of conflict, the
lessons learned from concerted activism over two Participant at the Asia-Pacific
centuries should be brought to the fore. regional civil society consultation
for the Global Study
At its core, the movement that pushed for the adoption
of resolution 1325 in 2000 wanted the same thing as
the founders of the United Nations and the writers of
its Charter in 1945: less war and greater investments
in human welfare, rather than in armaments. The most 2000, global military spending was already estimated
powerful force driving the advocates for a resolution above one trillion dollars.1 Since then, annual military
on women, peace and security—inspired by the expenditures have increased by approximately 60 per
century-old feminist and pacifist movements—was the cent,2 or the equivalent of 2500 years of expenditure
link between gender equality and peace. by international disarmament and non-proliferation
organizations.3 In addition to unilateral military
Fifteen years after the adoption of resolution operations, there is now an expanding list of military
1325, it is clear that the global community has deployments supported by the UN and regional
neither achieved gender equality, nor found and organizations, such as NATO, the European Union, the
sustained peace. On the contrary, we seem to be African Union and the Arab League.
moving in the opposite direction—away from key
elements agreed in the Beijing Platform for Action The UN’s peacekeeping budget has more than tripled
at the Fourth World Conference for Women in 1995, in the last fifteen years, and while the number of
including commitments to reduce excessive military civilian staff in peacekeeping missions has grown by
expenditures, control the availability of armaments, more than 50 per cent,4 the numbers of uniformed
promote nonviolent forms of conflict resolution, and personnel have tripled from 34,000 in 2000 to
foster a culture of peace. 106,000 in 2015. Missions now last three times longer
than their predecessors.5 In 2015, the Department
In recent times, armed conflicts have proliferated of Peacekeeping Operations and the Department of
at a faster pace than our ability to tackle them Field Support managed 16 peacekeeping missions,
effectively. This proliferation has taken place in a the UN’s support to the African Union’s mission
context of increased militarization, reflected both in in Somalia, and a record number of authorized
the steady growth of military budgets as well as the personnel. Recent mandates and policies have
frequent use of military force to settle disputes. In acknowledged that peacekeepers must be ready to
 135

Since 2000, national militaries and the partners that

work with them on women, peace and security have
In 2000, global military made efforts to improve the gender balance of military
spending was already forces, from rank-and-file soldiers to senior officers and
leaders; to make sure that gender issues are taken
estimated above one trillion into account in the design, planning, conduct and
dollars. evaluation of peace operations; to eliminate sexual
exploitation, abuse or harassment committed by their
Since then, annual own forces, and prevent or respond to conflict-related
military expenditures have sexual violence and other human rights violations
increased by approximately in the communities where they operate. While some
progress is evident, much of it has been through
60 per cent. incremental and sometimes ad-hoc measures that
have yet to transform military structures and mindsets,
or reverse the trend towards higher military budgets
and excessive reliance on military solutions (discussed
use force, including proactively, to protect civilians,6 a in greater detail in Chapter 8: Preventing Conflict).
task made more challenging by the reality that these
missions are increasingly deployed in volatile, insecure Ultimately, for advocates of sustainable peace and
environments where there is little or no peace to keep. security interlinked with development and human
rights, the value of the women, peace and security
This Study emphasizes throughout the need for agenda is its potential for transformation, rather than
demilitarization and the development of effective greater representation of women in existing paradigms
strategies for prevention of conflict and nonviolent of militarized response.
protection of civilians. This is one of the key messages
and conclusions that emerged strongly from the global
consultations and deliberations. However, it cannot
be denied that military forces, both national and
international, along with armed groups will continue
to play a major role in the peace and security agenda
of the United Nations. This necessarily raises the There is no doubt that
question of women’s participation in the military. women’s presence raises
Although there is some debate as to whether the
awareness of women’s
women, peace and security (WPS) agenda—which has
its roots in the pacifist, anti-militarist struggle—should
issues in theaters of action,
include this issue within its goals and advocacy, there helps prevent sexual
is no doubt that women’s presence raises awareness exploitation and abuse
of women’s issues in theaters of action, helps prevent of the local population,
sexual exploitation and abuse of the local population,
and improves operational effectiveness.7 Furthermore,
and improves operational
a commitment to equality under CEDAW requires that effectiveness.
women be given the same employment opportunities
as men, including within military structures.
136 Chapter 6. Keeping the Peace

FOCUS ON

The report of the High-Level Independent Panel on United Nations Peace Operations:
Increasing the number of women peacekeepers

The High-Level Independent Panel on United Nations tailoring the responses of peace operations. […]
Peace Operations noted in its report both the importance Troop- and police-contributing countries should
of increasing the numbers of women in UN peacekeeping implement their national action plans on Security
missions, as well as doing so through measures such as Council resolution 1325 (2000) or develop such
financial incentives: plans, and redouble efforts to increase the number
of women serving in the national security sector.
“Recent peacekeeping experience confirms that The Secretariat should develop a gender-sensitive
uniformed female personnel play a vital role in force and police generation strategy to address the
reaching out and gaining the trust of women and recruitment, retention and advancement of female
girls within local communities, understanding uniformed personnel, including by exploring such
and detecting their unique protection needs and incentives as reimbursement premiums.”8

FOCUS ON

New technologies in an increasingly militarized world - Drones

As nations work to enhance and protect military led to families withdrawing their children from school.13
capabilities in a new era marked by global Drones’ presupposed accuracy means that mistakenly
counterterrorist campaigns, sophisticated weapons targeted civilians and their families are harmed
technology has redefined the scope of the battlefield further by stigma from community members, who may
and blurred the line between weapon and warrior.9 assume that such individuals and their families are
Today, military members stationed in one part of the affiliated with militant activity.14
world can use an unmanned combat aerial vehicle,
commonly known as a drone, to attack a target While there has been considerable debate on the use
many countries away. The continuous presence of of drones, including their impact on communities,
drones hovering over communities has been linked effectiveness as modern weapons and status
to increased levels of psychosocial trauma,10 with under international law, less has been said about
some women reporting to have miscarried from the their gendered impact. Recent analysis has begun
sound and fear of nearby strikes.11 Evidence that highlighting these dimensions, noting that the impact
drones have killed humanitarian aid workers has of drone strikes on civilian populations has been
discouraged rescuers from assisting victims, while fear highly sex-specific, targeting men disproportionately15
of being perceived as a threat to drone operators has and thus giving rise to an increase in female-headed
prevented civilians from participating in community households who, in a context of inequality, often
gatherings, including funerals,12 and fear of attack has struggle to support themselves.16
 137

WOMEN IN NATIONAL ARMED FORCES • reforms addressing sexual harassment and abuse
within the force; and
Over the last two decades, a growing number of
countries have increased the percentage of women in • changes to facilities, uniforms, and equipment.
their armed forces. More recently, several have done
so as their national military institutions adopt gender A majority of the countries that have taken such
policies or sign on to national action plans on women, measures are NATO countries. In 2000, only five
peace and security.17 Some of the measures to countries within this military alliance reported specific
increase female representation have included:18 policies and legislation for women’s participation
in armed forces. By 2013, these policies were in
• targeted recruitment campaigns; place in all 28 NATO countries.19 For instance, in
2000, only six NATO countries had equal enlistment
• removing barriers and exclusion of women from for women and men. By 2013, all NATO members
certain categories of military personnel; offered this opportunity, although there are still
certain positions in a number of countries that are
• improving and diversifying employment pathways; closed for women, particularly in combat positions,
submarines and tanks. Nevertheless, while these
• using images of female military officers in shifts in policy are significant, on average the
promotional and communications campaigns; representation of women has only risen very
modestly from 7.4 per cent in 1999 to 10.6 per cent
• conducting surveys and studies on recruitment in 2013.
and retention of women in the armed forces;
Some non-NATO countries have even higher
• tracking accurate data on women’s representation percentages of women in their armed forces. For
and experiences in the military; example, in Argentina, where measures have been
adopted to recruit and retain women in all branches
• changes in family policy; of the armed forces, women now make up 14.2 per
cent of the Army, 16.4 per cent of the Navy, and
22.6 per cent of the Air Force, or 16.2 per cent
across the entire force.20 One such measure focused
on allowing military women to receive support and
exercise their right to sexual and reproductive health
In 2000, only five countries services without obstacles or delay—personnel of
within this military alliance military hospitals that held a conscientious objection
to the interruption of pregnancy were reassigned,
reported specific policies and child care centers were opened specifically for
and legislation for women’s parents who work in the security forces.21 In South
participation in armed Africa, which has one of the highest percentages of
forces. By 2013, these women in the military, 34 per cent of the total armed
policies were in place in all forces are now women and they are aiming for 40
per cent. In addition, the South African National
28 NATO countries. Defence Force now has several two-star generals
that are women, and women are engaged in combat
operations, pilot combat planes and drive tanks.22
138 Chapter 6. Keeping the Peace

FOCUS ON

Women in the Australian armed forces

In June 2014, at the largest summit ever convened to 12 per cent in the Army to above 18 per cent in the
on ending sexual violence in conflict, one of the most Navy and the Air Force.
inspiring speeches came from a man in uniform.
General David Morrison, Chief of the Australian Army,
Australia’s specific policy measures are considerable.
shared his experiences on the impact of diversity, in
For example, flexible working arrangements have been
particular women’s participation, in national forces:
introduced, along with a guide for commanders on
these arrangements and a target that at all times at
“I can state without hesitation that an end to least two per cent of the trained force should be taking
sexual violence in conflict will not be achieved advantage of these arrangements.25 The Chief of the
without fundamental reforms to how all armies ADF, the highest military post, has a gender advisor.
recruit, retain, and employ women; and how Promotion boards are being diversified, and initial-
they realize the improved military capability that minimum-period-of-service requirements for a number
is accrued through more effective gender and of categories are being reviewed. Gender restrictions
ethnic diversity […]. Armies that revel in their have been removed from all ADF combat role
separateness from civil society, that value the employment categories. The Army has revised what it
male over the female, that use their imposed traditionally considered career path models to allow
values to exclude those who do not fit the for career breaks, greater posting flexibility for primary
particular traits of the dominant group, who care givers, and consideration of commensurate
celebrate the violence that is integral to my experience instead of traditional military career
profession rather than seeking ways to contain milestones. Furthermore, in all career development
it–they do nothing to distinguish the soldier from opportunities, the percentage of women participating
the brute.”23 must always be equal to the percentage of women
in the selection pool that is being considered. For
Australia has adopted specific measures and secondary schools, the Navy published a book
publishes detailed annual reports on women in the about women at sea, with real stories from women
Australian Defence Forces (ADF). In 2014, based on a in the Navy in order to highlight these role models to
careful examination of successful interventions in other youth. The ADF has a Male Champions of Change
male-dominated industries and institutions, targets initiative, makes extensive use of women in the army
were introduced stating that by 2023, 25 per cent of in advertising and marketing campaigns, and the Air
the Navy and the Air Force, and 15 per cent of the Force became the first military organization in the
Army must be women.24 As of June 2014, 15 per cent world to achieve the accreditation of “Breastfeeding
of the ADF total forces are women, ranging from close Friendly Workplace.”
 139

These positive measures stand in stark contrast Conversely, many of the countries that have a higher
however, to the persistent abuse and discrimination percentage of female military personnel contribute few
against women within national military institutions peacekeepers to UN missions. European and North
in many countries. For example, in 2013, a US American countries with percentages of women in
Congressional Commission found that 23 per cent the military between eight and 20 per cent typically
of US military women had experienced unwanted contribute more uniformed personnel and civilian
sexual contact since enlistment, ranging from groping staff to NATO, EU, and OSCE missions, rather than
to rape.26 In 2015, the chief of the Indonesian armed UN missions. Countries like Zimbabwe and Belarus
forces reportedly defended the practice of virginity reach 40 per cent of female representation in their
tests for all female recruits.27 More often than not, deployments, but out of only 85 and five troops
military women tend to be subject to discrimination in respectively.32 There are notable exceptions to this
their military careers, passed over for promotions and trend: Ethiopia (2nd largest contributor, 6.3 per cent of
opportunities—including deployments in peacekeeping female representation), Ghana (9th largest, 10.2 per
operations—or assigned to menial tasks that do not cent), Nigeria (10th largest, 6.8 per cent), Tanzania
correspond with their training. In Pakistan, women (21st largest, 5.2 per cent), South Africa (14th largest,
compete for 32 spots in the Pakistan Military 15.6 per cent), and Uruguay (20th largest, 7.2 per
Academy each year, compared with the approximately cent) all significantly exceed the global average and
2000 spaces allotted to men.28 deploy large numbers of peacekeepers.33

Some of the biggest TCCs are striving to improve their

WOMEN’S PARTICIPATION IN THE gender balance. In 2014, two Bangladeshi women
MILITARY CONTINGENTS OF UN officers became the first combat pilots in the history
PEACEKEEPING MISSIONS of that country, and the Bangladesh Air Force has
launched a process to ensure that at least 20 per cent
Stagnant numbers of women in military of their officers are women.34 The number of women
peacekeeping roles in the Rwanda Defense Forces almost tripled in ten
years, and will have to increase even more to meet
An extremely low number of female military personnel Rwanda’s target to ensure that at least 30 per cent of
are deployed in current peacekeeping missions. their peacekeepers are women.35
On average, only three per cent of the military in
UN missions are women as of July 2015, and the More recently, some progress is also being seen in
majority of these are employed as support staff.29 female leadership appointments. The first-ever female
This number has not risen since 2011, and in fact, it force commander in a UN mission, Kristin Lund from
has only risen incrementally over the past Norway, was appointed in 2014, making it also the
two decades—from one per cent of women first time that both the civilian and the military leaders
peacekeepers in 1993—despite repeated calls for of a mission—UNFICYP in Cyprus—were women. An
more women in peacekeeping since resolution 1325 all-time high was reached in May 2015—almost 40 per
was adopted in 2000. cent of peacekeeping missions are led by a woman, a
historic record.36
One of the most cited reasons for this low number
is that the percentage of women in the national No single source contains consistent and
militaries of some of the largest troop contributing comprehensive data on the gender balance of military
countries (TCCs) is itself very low.31 For example, the forces worldwide.37 For the top contributing countries,
top three contributing countries—Bangladesh, India, estimates of the presence of women in the military are
and Pakistan—have few women in their armed forces. indicated in the table on page 141.
140 Chapter 6. Keeping the Peace

The presence of women

at the field level,
particularly in leadership,
encourages other women
and girls to participate
and lead [...].

NGO Working Group on Women, Peace and Security,

Statement of the Security Council at the Open Debate on
Women, Peace and Security, 2008
 141

Percentage of female military personnel in armed the operational effectiveness of all tasks, and improve
forces, top 15 troop contributing countries to UN the mission’s image, accessibility and credibility
field missions, 201538 vis-à-vis the local population. Women peacekeepers
also improve targeted outreach to women in host
communities. This is crucial for various reasons,
TROOP CONTRIBUTING % WOMEN IN including capitalizing on women’s familiarity with local
COUNTRY MILITARY protection strategies that affect women, and on their
1 Bangladesh 3
capacity to provide early warning, which is described
2 Pakistan 1
in detail in Chapter 8: Preventing Conflict. It also bears
3 India 4
noting that not a single female peacekeeper has ever
4 Ethiopia 7
been accused of sexual exploitation and abuse on
5 Rwanda 2
mission.
6 Nepal 2
7 Senegal 4
Female military officers are in great demand for mixed
8 Ghana 17 staff protection teams and investigation teams looking
9 Nigeria 10.5 into incidents involving female victims or witnesses.
10 Egypt * They drive strong civil-military coordination, and
11 China * together with civilian and police counterparts, can
12 Indonesia 2 more effectively reach out to and interact with civilians
13 Tanzania * in the host country, as they appear less threatening
14 Morocco 3 and more accessible to affected populations.41
15 South Africa 34
In addition, although women’s professional competence
* Figures not available for these troop contributing countries.
extends beyond these areas, commanders have noted
that female military officers have a special comparative
The key role of female peacekeepers advantage in house and body searches, interacting with
survivors of gender-based violence, working in women’s
Women’s participation in the military component of prisons and screening women in disarmament and
peacekeeping has been recognized as a critical factor demobilization sites.
contributing to mission success, both within the UN
normative frameworks on peacekeeping and women,
peace and security,39 as well as by commanders Boosting women’s participation as military
on the ground themselves.40 They note that women peacekeepers
peacekeepers broaden the range of skills and
capacities among all categories of personnel, enhance Both the UN Secretary-General and the Department
of Peacekeeping Operations, through the Office of
the Military Affairs Advisor, have encouraged TCCs to
deploy more women—at least the same percentage
of women as is found in their national armed forces.
Not a single female The Office of Military Affairs has appointed a full time
peacekeeper has ever military gender advisor with rank of Colonel based at
been accused of sexual headquarters, and has initiated the establishment of
exploitation and abuse on the Female Military Peacekeepers Network (FMPKN)
to create a space of mutual support, mentoring,
mission.
training and advocacy for UN female military staff.43
UN Women has recently begun conducting two-week
142 Chapter 6. Keeping the Peace

Member States should consider adopting a gender-

balance premium, defined along a certain set of
“In the field, I’ve always criteria: percentage of women in the contingent, their
rank and function, the specialized training on gender
been the one called issues that the contingent has undergone, including
pre-deployment training on conflict-related sexual
upon to work with local violence, and in compliance with the existing Policy on

women—they trusted Human Rights Screening of United Nations Personnel.44

This is a recommendation echoed in the report of
me more.” the High-Level Independent Panel on United Nations
Peace Operations. It would need to be linked closely
to force generation, which suggests which countries to
Major Khadessa Sy of the Senegalese
approach for pledges and which pledges to accept.
Army, who has served on UN peacekeeping
Another option for Member States to consider is the
missions in the Democratic Republic of
offering of in-kind benefits. Both types of benefits would
Congo and Liberia42
be incentives tied to measurable increases of women
in their military deployments.45

Similarly, peacekeeping budgets should allocate

courses exclusively for female military officers, as sufficient funds to better accommodate greater numbers
part of a professional development opportunity that of women among military contingents through necessary
hopes to increase the deployment of women in changes in mission facilities and life. This could include
peacekeeping operations. Similarly, Security Council special family or leave arrangements for women, 46
mission authorization mandates have frequently called adequate and appropriate mission facilities for women—
on States to consider women’s representation in their from accommodation quarters and sanitary facilities to
troop contributions. These recommendations are not welfare and recreational spaces and activities, special
enforced however, and there is no mechanism in place medical and gynecological care, gender-specific
to induce compliance. uniforms or body armor;47 and investments in the
internal safety of the compound, among others. These
investments could be furthered immeasurably by
Investing in women’s participation adopting as standard practice gender-budgetary
analysis in the development of peace operations
In examining ways to increase women’s participation, budgets. This would allow for more robust data on
the option of financial incentives has rarely been how expenditure impacts the gender-sensitivity
put forth. Recent recommendations from the Special of missions and facilitates greater numbers of
Advisory Group on Reimbursement Rates for women’s participation.
Peacekeeping Troops and the Secretary-General
have included a risk premium (for individuals in units
operating without restrictions and assuming exceptional WOMEN’S PARTICIPATION
levels of risk), a 'key enabling capacities' premium (for IN THE POLICE COMPONENT
those contingents deploying key enablers and force OF UN PEACEKEEPING MISSIONS
multipliers, always in high demand and short supply),
and a readiness premium (adding a one-time extra pay In 2000, when resolution 1325 was adopted, Lyn
if the trained personnel and equipment were ready in a Holland became the first American woman to serve in
very short amount of time, as an incentive to improve a policing capacity in a peacekeeping mission when
pre-deployment training and overall readiness). she joined the mission in Kosovo to assist victims of
 143

rape. Also in Kosovo, Shahzadi Gulfam, the first Pakistani In 2009, the United Nations launched a campaign with
policewoman to be deployed to a peacekeeping mission, the ambitious goal of ensuring that women make up one-
was helping to recruit women to the Kosovo Police fifth of all UN Police by 2014. Although the percentage
Service.48 In more recent times, the all-female Formed of women has grown since then, the campaign has
Police Unit from India, first deployed in Liberia in 2007 not yet met its target.55 The Police Division has asked
and subsequently emulated by Bangladesh49 and other member States to deploy the same proportion of
countries, has been celebrated as contributing to better women that they already have in their national police
outreach to women in communities. They have also forces, to review their recruitment policies and criteria
been credited with inspiring Liberian women to join the for deployment to identify any inequalities or barriers to
police force, whose female representation grew from entry for women, and to identify whether their national
13 to 21 per cent in five years.50 In Haiti, Norwegian, criteria for recruitment to UN missions matches the
Canadian, and Francophone African policewomen have UN criteria for recruitment to missions. In view of the
been training, mentoring and accompanying the Haitian applicable selection criteria relating to minimum years
National Police to respond to cases of domestic violence of prior national service, rank and other requirements, it
and sexual abuse.51 In Norway, 35 per cent of police would seem worthwhile to consider whether ‘preferential’
officers serving in international peace operations have or ‘special’ measures might be adopted to increase the
been female, and in 2014 four out of nine contingent pool of eligible women for deployment. For example,
leaders were women.52 the requirement of five years of prior national service for
eligibility to be deployed as a UN civilian police officer
can be prohibitive; instead, a reduced number of years
(e.g., three) might be considered for women candidates
for a pilot period.
“What I have experienced
The Police Division has also been giving visibility to
is when local women see the role of women in UN Police. They launched the
international network of female police peacekeepers
you are a woman, their and an international peacekeeping award. They conduct
faces light up. It’s like regular mentoring and networking activities, and
trainings around the world on strategies to increase
they get a connection. women in UN Police and national police forces, and
they collaborate on projects aimed at strengthening
They relate.” specific skills that female police need to pass the
UN Selection Assistance Test. Importantly, the Police
Hester Paneras of South Africa, Police Division is also trying to address women’s specific
Commissioner of UNAMID53 needs for facilities including separate accommodations,
and have been working to ensure that women are not
segregated in missions and have equal status on the
job, a serious problem that is rarely documented.

The positive impact of having more women in the police

component of missions is not limited to issues that MAINSTREAMING GENDER IN UN
mainly affect women. Their presence has been found to PEACEKEEPING OPERATIONS
significantly lower rates of complaints of misconduct, of
improper use of force, or inappropriate use of weapons, There has been concrete progress in efforts to
and women tend to be less authoritarian in their integrate a gender perspective into UN peacekeeping
interactions with citizens and lower ranking officers.54 operations. In 2000, only UNMIK and UNTAET had
144 Chapter 6. Keeping the Peace

‘Open Days’ have been organized for women’s

civil society groups to meet mission leadership,
Almost every mandate alongside community alert networks, joint protection
of UN peacekeeping teams, firewood patrols and civil-military cooperation
projects involving fuel-efficient stoves and rolling water
now includes specific containers to spare women and girls a few dangerous
provisions on women, trips out of camps to collect firewood or water. Gender-
peace and security, and responsive quick impact projects have included the
almost every directive for construction of shelters and adequate latrines and
showers in camps, and the setting up of all-female
the military and police
formed police units.
components of missions
now include specific Reports from missions in the Democratic Republic
instructions to address of the Congo, Haiti, and Darfur show that protection
women’s security. patrols within and around camps and communities of
internally displaced persons, as well as escorts for
women during livelihood activities, have helped deter
sexual and gender-based violence. Mobile courts, legal
aid and the provision of sustained capacity building
gender advisors, and only a fifth of all peacekeeping and mentoring support to prosecutors, judges, judicial
missions had a specialized gender unit, usually investigators, specialized police units and public
comprising a sole officer freshly appointed to what was defense services have helped increase the numbers of
then a brand new post.56 Now, all multidimensional prosecutions and convictions for sexual violence crimes
peacekeeping missions have gender units,57 and are in conflict-affected settings like the Democratic Republic
also deploying women’s protection advisors—first of Congo, Guinea, Sierra Leone or Somalia.
mandated in Security Council resolution 1888 in
2009. Almost every mandate of UN peacekeeping now Unfortunately, while promising, these innovations still
includes specific provisions on women, peace and remain piecemeal and limited, more often pilot projects
security, and almost every directive for the military and and special initiatives rather than the core business
police components of missions now include specific
instructions to address women’s security.

In the last few years, there have been numerous gender-

sensitive innovations in peace operations designed Unfortunately, while
to implement commitments on human rights, the promising, these
protection of civilians, and women, peace and security.
These include: the establishment of monitoring, analysis
innovations still remain
and reporting arrangements (MARA) on conflict-related piecemeal and limited,
sexual violence; scenario-based training, prosecution more often pilot projects
support cells and mobile courts devoted to sexual and and special initiatives
gender-based violence; a UNPOL best-practices toolkit
rather than the core
on policing and training curriculum for UN Police on
preventing and investigating sexual and gender-based
business of the whole
violence in post-conflict settings; and special police operation.
units solely addressing gender-based violence (such as
in Haiti since 2010).
 145

of the whole operation. They lack consistent support

from mission leadership,58 representing more a tick-box
obligation rather than a concrete tool to enhance the Out of a total of 33
operational effectiveness of UN peacekeeping. Many of
benchmarks adopted by
these shortcomings were highlighted by DPKO already
in 2010 in their own “Ten-Year Impact Study on the
these five missions, none
Implementation of UNSCR 1325.”59 especially referred to
gender-specific issues or
gender equality.
Training

The growing list of training materials on gender,

sexual exploitation and abuse, and on prevention and
response to sexual violence are welcome, and have specific experience, rights, needs and roles of women
noticeably moved training beyond abstract concepts and girls in conflict situations are often not included in
towards more hands-on, scenario-based learning that preliminary analysis and assessments and thus do not
soldiers can relate to.60 The length and periodicity of feed into concrete strategies for the design of missions
these trainings has also increased, from a forty-minute and the formulation of mandates.”62
slot during induction for new arrivals in the mission—
similar for all areas of mandate implementation—to Similarly, there is a need for concerted attention to
specialized courses that now last a week or longer. gender equality and women’s empowerment in mission
While several Security Council resolutions have drawdown and withdrawal. This was stressed in the
emphasized the importance of specific training Security Council’s 2012 presidential statement,63 and
in these areas,61 it remains unclear whether in the Secretary-General’s 2012 report on women,
troop contributing countries are undertaking this peace and security, which highlighted the “concern
systematically. There is a need for a more rationalized that mission drawdown can be associated with a drop
approach in this regard, including spending less in levels of funding and attention to gender equality
time on new training development, and more time on commitments, and an erosion in levels of security and
consistent implementation of training and building on protection for women and girls.”64
good practice.
The study of gender architecture in the field,
undertaken by UN Women and partner entities for the
Engaging women and addressing their specific Civilian Capacity Review in 2012,65 recommended that
needs from mission design to withdrawal when a peacekeeping mission and/or special political
mission starts to envisage a drawdown, the gender
If peacekeeping missions are to respond effectively unit and the operational planning unit need to plan for
to the needs of the local population, women’s handing over relevant gender-related work to the UN
engagement and consultation in-country in the very country team and UN Women, while retaining in-house
design of missions right through to their drawdown capacity to mainstream gender in mission plans and
must be prioritized. Missions should visibly and activities. An example of good practice in this regard
tangibly signal from the start a commitment to and was mentioned in the Secretary-General’s 2013 report
respect for women’s physical integrity, a prioritization on women, peace and security which highlights the
of women’s security, and an investment in women- joint work plan agreed to by the mission in Timor-Leste
led recovery. Unfortunately, this has not consistently and the UN country team to gradually hand over the
been the case. As the High-level Independent Panel mission’s gender-related tasks to the country team
on United Nations Peace Operations concludes, “The during the drawdown period.66
146 Chapter 6. Keeping the Peace

In current DPKO-led missions, only MINUSTAH, SEXUAL EXPLOITATION AND ABUSE

UNMIL, UNMISS, UNOCI, and MINUSMA have BY PEACEKEEPING PERSONNEL
established benchmarks to track progress or guide
their decisions about reconfiguration or withdrawal. Thirteen years ago, the Independent Experts’
The benchmarks cover issues including security and Assessment on the Impact of Armed Conflict on
stabilization, national dialogues and reconciliation, Women and Women’s Role in Peacebuilding made
restoration of State authority, reform of the security references to this issue in its chapter on violence
sector, promotion and protection of human rights against women:
and humanitarian aid, free and fair elections,
establishment of an independent and credible “While the arrival of peacekeeping personnel
judicial and penal system, tangible improvements has the obvious advantage of providing the local
in the living conditions of the population, inclusive population with an increased sense of security,
peace processes, sustainable development, effective it may also have some negative repercussions.
disarmament and dismantling of militias, and training Sexual violence against women and prostitution,
and capacity building of national police. Out of a total especially child prostitution, may increase
of 33 benchmarks adopted by these five missions, with the influx of relatively well-off personnel in
none especially referred to gender-specific issues or situations where local economies have been
gender equality. Furthermore, each of these mission devastated and women do not have options
benchmarks is measured by a number of indicators. for employment. In Kisangani and Goma in the
Out of 105 indicators, only five refer to gender issues, DRC, members of local communities told us that
and of these most relate to sexual violence.67 This peacekeepers were buying sex from young girls
implies that peacekeeping missions could complete and that condoms were visibly scattered in the
their withdrawal without evaluating if the mission has fields near UN compounds. A local woman told us
addressed women’s specific needs or the gender- that girls ‘just lie down in the fields for the men
specific provisions in that mission’s mandate. It in full view of people as they are not allowed into
also suggests that missions are not adequately the 12 camps.’ We heard similar stories in the
mainstreaming gender in their monitoring frameworks Balkans and about conditions in Cambodia after
as a whole.68 peacekeepers arrived.”70

Ultimately, efforts to more effectively mainstream

women’s participation and consultation—in mission
design, implementation, and draw down—would be
strengthened by a more effective use of the gender
expertise and resources that already exist within the
system as a whole, both across the Secretariat as This problem has sullied
well as the agencies, funds and programmes. This the overall reputation
is echoed in relevant recommendations of both the
Peace Operations and Peacebuilding Architecture
of peacekeeping
reviews.69 Strengthening coordination, coherence and missions and profoundly
integration as well as targeted expertise in the gender embarrassed the UN.
architecture of the UN is dealt with in detail in Chapter
10: Key Actors - The United Nations.
 147

Although much has been done to address the issue, • the UN has made some, although very limited,
and there is a markedly different awareness about it progress in the last decade, as demonstrated by
among UN personnel now as opposed to fifteen years the decline in allegations and the increased
ago, it is undeniable that this problem has sullied responsiveness of some Member States to follow
the overall reputation of peacekeeping missions and up on allegations;
profoundly embarrassed the UN. While much of the
work of missions remains virtually invisible to affected • the number of allegations—a few dozen a year—
populations and the general public, it is the incidences nevertheless represents a small percentage of
of sexual exploitation and abuse that continue to grab actual violations;
the attention of both the international community and
communities where peacekeepers are deployed. In • while most victims are women and girls, men and
consultations for the Global Study, women from the boys are also affected, and the overwhelming
African continent were particularly concerned about majority do not feel safe reporting or obtaining
this issue since much of peacekeeping, regional and redress;
international, takes place there. It is truly a frightening
phenomenon when your protector becomes a predator. • many allegations are not properly investigated by
It is crucial that the UN signal a determined commitment Member States, are considered unsubstantiated, or
to address this issue once and for all. are resolved with very lenient disciplinary measures
or criminal sentences; and
Within reporting on sexual exploitation and abuse,
there is consensus on the nature of the problem and • although there is a widespread perception that
its complexities. Major points of agreement include the sexual exploitation and abuse is mainly about field
following: staff taking advantage of the easy availability of
transactional or survival sex in violation of the UN’s
• this issue does not only concern military personnel, zero tolerance policy, almost half of all allegations
and often, not even disproportionately so; relate to egregious crimes, including rape.

FOCUS ON

The UN’s zero tolerance policy on sexual exploitation and abuse

The UN’s zero tolerance policy prohibits the exchange integrity of the work of the United Nations.”71 The
of money, employment, goods, services and other Secretary-General’s Bulletin on special measures
assistance for sex; prohibits peacekeepers from for protection from sexual exploitation and abuse
engaging in sexual relations with persons under prohibits sexual activity with children (persons under
the age of 18 in any circumstances; and strongly the age of 18),72 and sexual relationships between
discourages, but does not prohibit, non-transactional UN staff and beneficiaries of assistance are “strongly
sexual relationships between UN personnel and discouraged.”73 However, the Head of Mission may use
local beneficiaries of assistance on the grounds that his/her discretion in applying this standard “where the
these relationships “are based on inherently unequal beneficiaries of assistance are over the age of 18 and
power dynamics” and “undermine the credibility and the circumstances of the case justify an exception.”74
148 Chapter 6. Keeping the Peace

Where there is disagreement is on how to ensure • Repatriating, on the orders of the Secretary-General,
accountability across different jurisdictions.75 There is an individual troops, entire units, and commanders
increasingly vocal call for greater action, especially in the of contingents for failing to prevent and punish a
wake of new allegations against AU troops in Somalia pattern of abuse. The UN can also withhold service
and French troops in the Central African Republic, and medals, payments of premiums and subsistence
a generally negative assessment by a team of experts allowances, and suspend the corresponding
commissioned by the UN to visit four missions where the reimbursement payments for the military personnel
problem is perceived to be widespread.76 involved in an investigation.

• Applying, at the request of the Secretary-General, a

Ending impunity range of administrative measures in respect to UN
staff: withholding accumulated annual leave and
The UN has, over the last decade, invested significant repatriation grants that would normally be payable at
energy and resources to set up conduct and discipline the time of separation from the organization, placing
units in each mission and headquarters, and has issued individuals on administrative leave without pay,
numerous recommendations by the Secretary-General, pending completion of investigations and disciplinary
tasking relevant actors, including Member States as those processes.
with primary jurisdiction over their troops, to take stronger
action to investigate and punish allegations and redress The High-Level Panel further noted that immunity for
for victims. These include, as reiterated by the High-Level civilian staff does not apply to sexual crimes, and
Independent Panel on United Nations Peace Operations:77 therefore should not be a way to obtain impunity.78
Immunity from prosecution was never intended, and does
• Reporting by the Secretary-General on actions taken not apply, to UN personnel alleged to have committed
and not taken by individual Member States in follow sexual exploitation and abuse. The immunity privileges
up to credible allegations of sexual exploitation and are functional and relate to the exercise of official
abuse—explicitly naming the countries rather than only functions. The process by which the Secretary-General
the aggregate number of allegations or responses. waives this immunity or clarifies it as non-applicable
should be expedited to ensure that the conduct of any
• Establishing immediate response teams within applicable legal proceedings is not delayed.
missions, available to deploy in 1-2 days to collect
and preserve evidence and protect the victims. These are undoubtedly important steps, but more can
be done. Countries that repeatedly fail to live up to their
• Barring countries listed in the annexes of the written assurances to investigate and prosecute their
Secretary-General’s reports on Children and Armed soldiers should not be allowed to contribute troops to
Conflict, and Conflict-Related Sexual Violence from peacekeeping missions. As recommended in the Zeid
contributing troops, until de-listed. report79 a decade ago and never implemented, if the
UN has prima facie evidence of misconduct, the home
• Revising the model memorandum of understanding country of the alleged perpetrator should be under the
with troop contributing countries to require national obligation to prosecute. If they do not, they should be
investigation officers within contingents and certified obligated to provide a detailed explanation of the reasons
training of all troops on sexual exploitation and abuse. why. As called for by non-governmental organizations
in 2015,80 the United Nations should empower an
• Completing investigations on sexual exploitation and independent commission of inquiry to conduct a broad-
abuse within six months - UN investigative bodies will based investigation on sexual exploitation and abuse
have to report on meeting this deadline, and Member and the handling of allegations by both Member States
States are asked to adopt the same deadline. and the UN itself, including the failure to systematically
 149

(ii) the shared exercise of jurisdiction by the host State

and other States; where for example, the host State
The home country may investigate and prosecute the offence, and the
of the alleged perpetrator State of nationality of the offender would provide the
custodial facilities for any term of imprisonment.
should be under the
obligation to prosecute. However, the most preferable option—and one that
If they do not, they should would signal the commitment of the United Nations
be obligated to provide a and Troop Contributing Countries to end this type of
detailed explanation of the behavior altogether—would be the establishment of an
international tribunal, created under a treaty between
reasons why. States, with jurisdiction to try UN staff in the field and
all categories of peacekeepers.

While such a proposal would have significant resource

and other implications—including changes to the
apply many of the powers that it already has to current arrangements under which members of the
hold individuals accountable for their actions. An military contingents are subject to the exclusive
Independent Review Panel was established in June criminal jurisdiction of their sending States—they
2015 to review the UN’s response to the allegations nevertheless are valuable contributions to the
of sexual exploitation and abuse by foreign military discussion on ending impunity. In the interim,
forces not under UN command in the Central African depending on the context and the nature of due
Republic, and this type of inquiry should be expanded process in the country concerned, consideration
to the overall response across the system. should be given to requesting TCCs to waive the
immunity of their personnel in respect of credible
While the UN should engage with States to ensure allegations of serious sexual crimes having been
a more rigorous application of the existing legal committed by them, so as to allow their prosecution by
framework in respect of criminal acts alleged to have the host State authorities.
been committed by its personnel, whether military or
civilian, it should also explore new avenues to ensure One of the most important measures to be taken to
accountability. Fresh consideration could be given to prevent sexual violence and abuse is pre-deployment
the proposal for an international convention under which training. Pre-deployment training on the prevention of
States would undertake to investigate, prosecute and sexual violence and abuse must be comprehensive and
extradite alleged offenders and to render mutual legal scenario-based for all troops. Commanders should also
assistance.81 be given detailed training with added emphasis on the
questions of accountability, reporting and investigation.
Legal and academic experts have put forward the SRSGs and Force Commanders should also get a
following possible options to ensure accountability in week-long mandatory training week at headquarters on
respect of serious crimes committed by UN personnel, the prevention of sexual violence and abuse and other
including sexual crimes:82 protection issues.

(i) the establishment of hybrid courts, between the “I cannot put into words how anguished, angered
host State and the UN, which would require that the and ashamed I am by recurrent reports over
host State consents to the provision of international the years of sexual exploitation and abuse by
assistance to its domestic legal system; and UN forces. When the United Nations deploys
peacekeepers, we do so to protect the world’s
150 Chapter 6. Keeping the Peace

most vulnerable people in the world’s most Further, the Secretary-General has proposed the
desperate places. I will not tolerate any action creation of a common trust fund, but this is meant
that causes people to replace trust with fear. […] to fund prevention activities, awareness-raising and
I believe the disturbing number of allegations we community outreach, rather than to compensate
have seen in many countries…speaks to the need victims. Repeated calls for the creation of victims’
to take action now. Enough is enough. assistance programmes have not been accompanied
by the necessary resource allocations and operational
“I want leaders to know that they are accountable guidance.
for their troops, police and civilians. They must
also ensure that all receive continuous human The High-Level Independent Panel on United Nations
rights education and training. I want Member States Peace Operations encourages the Secretariat to “initiate
to know that I cannot do this alone. They have the consultations with Member States, ensuring the active
ultimate responsibility to hold individual uniformed involvement of local communities and victims of sexual
personnel to account and they must take decisive exploitation and abuse, to develop appropriate forms of
preventive and punitive action. I want perpetrators compensation. Member States should also support the
to know that if they commit a crime, we will do creation by the Secretary-General of an effective and
everything possible to pursue them and bring them adequately resourced victim assistance programme to
to justice. I want victims to know that we will strive support individual victims and children born as a result
to uphold our institutional responsibility to safeguard of sexual exploitation and abuse.”84 The report does
their security and dignity.” not advance specific ideas, but calls for earmarking
pockets of funds at the country level. That the
Remarks to the press by the Secretary-General on international entities operating on the ground set money
serious allegations of crimes of sexual violence by aside for this purpose—based either on the size of their
UN peacekeepers in the Central African Republic, 12 field presence or the involvement of their employees in
August 2015 accusations—is something that could be considered and
piloted.

Assistance to victims of sexual exploitation

and abuse PROTECTING UNARMED CIVILIANS

Another important dimension of this problem is the The High-Level Independent Panel on United Nations
persistent lack of assistance and support for victims Peace Operations summed up one of the main
of abuse and exploitation. The General Assembly organizing principles of its 2015 report thus:
adopted a resolution in 2008 approving a strategy for
assistance to victims–regardless of the substantiation “Lasting peace is not achieved nor sustained by
of the substantiation of allegations–with measures military and technical engagements but through
including medical care, emergency shelter, food, clothes, political solutions [...]. The avoidance of war
basic necessities, legal aid, psychological counsel and rather than its resolution should be at the center
assistance pursuing paternity claims.83 Relevant UN of national, regional, and international effort and
entities were requested to implement the strategy in an investment [...]. Unarmed strategies must be at
active and coordinated manner. Seven years later, these the forefront of UN efforts to protect civilians.”85
mechanisms to assist victims are largely non-existent, and
the urgency of this issue cannot be overstated. The concerns associated with growing militarization
square off against calls for military intervention to
For example, complaints channels are neither known, prevent atrocities, and against repeated criticisms
nor understood nor deemed safe by the community. leveled at UN peacekeepers for their passivity and
 151

“There is something very

wrong with a system
where the most violent
[rebels] are [...] entrusted
to shape the future of a
population. The military
institution continues to
be a block to building
sustainable peace since
it promotes the use of
violence and militarism.”

Respondent to the CSO Survey, working at the global level in conflict

areas of Asia, Middle East, North Africa
152 Chapter 6. Keeping the Peace

• Special attention to women’s protection risks

or threats in joint protection teams and joint
A repeated theme in investigation teams.
consultations for this
• Consultation of women in threat assessments and
study was that women’s community engagements (from the establishment
leadership is a protection of community protection mechanisms, to alert
strategy in its own right. networks, to the design of camp layouts, etc.).

• Tailoring protection activities to women’s mobility

patterns and economic activity (firewood patrols,
water-route patrols, field patrols, market patrols and
inaction when civilians are in need of protection. Both escorts).
sentiments have been prevalent in debates about
peacekeeping and protection of civilians for more • Establishment of safe spaces in camps for women
than two decades. However, there is ample room to and girls.
reconcile both ideas by promoting and supporting non-
violent protection actions, of which military actors and • Appointment of female election monitors and
their police and civilian partners could make more use. special attention to gender-based electoral violence.

Missions are meant to implement their duty to protect • Dial-in radio programmes and cell phones for
civilians not only through providing direct physical women to report threats and ensure the community
protection, but also through dialogue and engagement is informed of risks.
and the establishment of a protective environment.86
A repeated theme in consultations for this Study was • Provision of security umbrella and escorts for
that women’s leadership is a protection strategy in its women’s rights defenders and organizations
own right. On the one hand, women’s empowerment working on women’s rights or gender-based
and the protection of women’s rights reduces women’s violence.
vulnerability and enhances their ability to protect
themselves and claim their rights. On the other hand, • Establishment of perpetrator profiling systems
women’s women’s representation, participation and by the Joint Mission Analysis Centre that include
leadership in protection mechanisms–such as political patterns of attacks against women and girls,
leadership and public administration, military and including conflict-related sexual violence, and sex-
police, national security institutions, refugee camp disaggregated tracking of civilian casualties.87
committees, community protection mechanisms and
accountability bodies among others–are essential • Special attention to women’s protection in the
to guarantee better protection for women and girls. implementation of mission-substantive areas, such
In this context, while it is important that the mission’s as disarmament and demobilization activities,
protection tasks and activities respond to the most security sector reform, transitional justice, mine
prevalent threats against women and girls in their area clearance and small arms control.
of operations, many of these tasks and activities do
not require exchanging fire. A non-exhaustive list of the • Evacuation of populations at risk from danger
interventions undertaken by peacekeeping missions zones.
that could be considered for scaling up and replication
include: Chapter 8: Preventing Conflict describes in greater
detail the importance of women’s participation in
 153

FOCUS ON

Unarmed civilian protection

Unarmed civilian protection (UCP) is a methodology For example, Nonviolent Peaceforce has been working
for the direct protection of civilians and violence in South Sudan since 2010. Alerted by South Sudanese
reduction that has grown in practice and recognition. women in the Protection of Civilians site in Bentiu that
In the last few years, it has especially proven its they were being raped by soldiers when exiting the
effectiveness to protect women and girls. Initially compound to collect water or firewood, the group began
pioneered and developed by organizations such as to send two or more civilian protectors along with them.
Nonviolent Peaceforce, Cure Violence, and Peace No woman has been attacked when accompanied.89
Brigades International, it is estimated that, since In the past year, Nonviolent Peaceforce provided over
1990, 50 civil society organizations have applied UCP 1,000 accompaniments for vulnerable people, primarily
methods in 35 conflict areas.88 women and children, throughout South Sudan. In Jonglei,
Nonviolent Peaceforce facilitated dialogues between the
These organizations deploy professionally trained community and the police and military peacekeepers of
unarmed civilians who provide direct physical the UN mission, including community security meetings
protection by presence, and who strengthen local only for women to express their protection concerns.
protection mechanisms. This includes, for example, UNPOL, the national police, and Nonviolent Peaceforce
protective accompaniment and inter-positioning, took turns to jointly patrol the areas where there had
ceasefire monitoring, rumor control, early warning been more attacks on women. Additionally, ten women’s
and early response, confidence building, multi-track peacekeeping teams have been formed and trained by
dialogue and local-level mediation and supporting Nonviolent Peaceforce, intervening in early marriage
local organizations committed to protection, plans, the return and integration of children, mediating
reconciliation and human rights. Interestingly, it is between fighting clans, accompanying rape survivors
estimated that women represent between 40 and and engaging with local chiefs. Currently, Nonviolent
50 per cent of the deployed personnel of these Peaceforce has more than 150 staff in 11 field sites and
organizations, a percentage much higher than in UN their headquarters in Juba. 40 per cent of their staff are
peacekeeping missions. South Sudanese and 40 per cent are women.
154 Chapter 6. Keeping the Peace

short-term strategies for conflict prevention, including recent years, the United Nations and other international
early warning mechanisms, community dialogue at actors have highlighted human rights abuses and
the local level and women’s situation rooms, where violations by non-State actors, reminding these groups
women in the affected population monitor for signs of of their obligations under international humanitarian
escalation of violence. law and the consequences for committing atrocities.
The UN Secretary-General has also included them in
To protect the humanitarian space, many advocate for ‘name-and-shame lists’ for grave violations committed
protection by presence, proven to be effective even if against children or for sexual violence in conflict.
it is not armed military presence, but unarmed military There have also been examples of constructive
personnel or civilian peace forces.90 Others prefer to dialogue and engagement, including the signing of
invest far more resources and attention on preventive action plans or commitments by armed non-State
actions that address the root causes of conflict and its actors. For example, Security Council resolutions 1960
economic drivers, foster peace education in schools (2010) and 2106 (2013) urge parties to make and
and among citizens in general, and raise awareness implement specific and time-bound commitments to
on women’s rights and masculinity and its relationship combat sexual violence. In this regard, the Secretary-
to violence in a given context. General’s Special Representative on Sexual Violence,
on behalf of the UN system, has signed Communiqués
with several governments as well as engaged with
Engaging with non-State actors non-State parties to armed conflict on the prevention
of and response to conflict-related sexual violence.91
Although the Rome Statute recognizes the individual
criminal responsibility of members of non-State
actors for war crimes and crimes against humanity,
these actors are typically not accepted as part of the
international community, and many states strongly
object to international or regional actors interacting There have been examples
with them, since this may increase their legitimacy and of constructive dialogue
status. and engagement, including
Nevertheless, one way of contributing to a protection
the signing of action plans
environment without resorting to violence is to engage or commitments by armed
with armed non-State actors. The overwhelming non-State actors.
majority of wars today involve non-State actors fighting
with a government or with other non-State actors. In
 155

FOCUS ON

Private military and security companies and the WPS agenda

National governments, private corporations, and even Recommendation 30 on women in conflict

the UN often hire private military and security companies prevention, conflict and post-conflict situations
(PSMCs) to provide ‘security services’ in conflict and includes private military and security corporations
post-conflict countries. For example, in 2013, the United among the non-State actors which must be
States had 108,000 contractor personnel in Afghanistan regulated, both by States parties, and through self-
alone, including 18,000 private security contractors.92 The policing.96
UN contracts with armed and unarmed private security
companies to protect its personnel and assets when the • The UN Working Group on the use of mercenaries
host government is unable or unwilling to do so. From as a means of violating human rights and
2013-2014, the United Nations spent more than $42 impeding the exercise of the right of peoples
million on armed and unarmed security providers across to self-determination has proposed a possible
12 countries where there are peacekeeping missions, and legally binding convention on PMSCs, and has
11 countries where there are special political missions.93 stated that minimum standards for regulation must
However, this privatization of security has yet to be include clear human rights and humanitarian law
matched by comprehensive and coherent regulation standards.97 The Working Group has also made
of PMSCs’ personnel and activities.94 This failure has recommendations specifically to the UN regarding
significant implications for victims of human rights accountability for human rights violations, including
violations perpetrated by PMSCs, including women and sexual exploitation and abuse, committed by armed
girls. In consultations for the Global Study, women from and unarmed security contractors it has hired.98
contexts as diverse as the Horn of Africa and the Pacific
Islands spoke of the threats to their safety and well-being
• The UN Guiding Principles on Business and Human
that these groups pose. And reports of horrific cases of
Rights recognize the heightened risk of human
sexual exploitation and abuse by armed and unarmed
rights abuse in conflict-affected settings, and
UN PMSC contractors in the DRC and South Sudan also
suggests that States help ensure that businesses
highlight the relevance of this problem for the UN.95
are not involved with such abuses, including
by providing adequate assistance to business
Women, peace and security advocates have made clear enterprises to assess and address the heightened
that private military contractors must come under greater risk of abuses, “paying special attention to both
regulation, and some steps have been taken in this direction: gender-based and sexual violence.”99

• The CEDAW Committee’s General

156 Chapter 6. Keeping the Peace

RECOMMENDATIONS

Moving progress beyond 2015: Proposals for action

Member States should: to conflict-related sexual violence—by calling on

Member States to invest in the capacity of national
✓ Set specific targets for the improved recruitment, peacekeeping training centers for the largest
retention and promotion of women in their armed troop contributing countries, so that they become
forces and the leadership of security institutions. permanent features in their pre-deployment training
curriculum.

✓ Ensure that every soldier they deploy is thoroughly

vetted, trained and held accountable for their ✓ Address impunity and lack of assistance for
actions, including when they abuse or exploit victims of sexual exploitation and abuse by fully
women and girls. implementing the recommendations of the High-
Level Independent Panel on United Nations Peace
Operations101 and the Secretary-General’s recent
✓ Commit to doctrines and planning that takes
annual report on sexual exploitation and abuse.102
into account the impact on women and girls of
In addition:
every military deployment and operation, and that
considers the use of unarmed military protection
as a preferable or complementary protection • Countries that repeatedly fail to live up to
method, where appropriate. their written assurances to investigate and
prosecute their soldiers should not be allowed
to contribute troops to peacekeeping missions.
The UN, in collaboration with Member States,
should: • If the United Nations has obtained prima facie
evidence of misconduct, the home country
✓ Encourage Member States to deploy more female of the alleged perpetrator should be under
military officers to UN peacekeeping missions by the obligation to prosecute, and if they don’t,
adopting financial incentives, such as a gender- they should be obligated to provide a detailed
balance premium. explanation of their findings.

✓ Ensure gender-responsive budgeting and financial • The United Nations should empower an
tracking of investments on gender equality in independent commission of inquiry to conduct
missions by requesting peacekeeping budget a broad-based investigation on sexual
experts and planning officers, along with gender- exploitation and abuse and the handling of
responsive budget experts, to review mission allegations by both member states and the
budgets and make a recommendation on UN itself, including the failure to systematically
methodology and capacity needed.100 apply many of the powers that it already has to
hold individuals accountable for their actions.

✓ Ensure that all UN peacekeepers are provided

scenario-based training on issues related to • Consider engaging with States in support
gender equality—from gender mainstreaming in of establishing an international tribunal with
peace operations to preventing and responding jurisdiction to try UN staff and all categories of
 157

peacekeepers that have allegedly committed a centralized register of companies whose staff
serious crimes, including sexual abuse. have repeatedly been linked to allegations of
sexual exploitation and abuse.103
• Make concrete proposals on the ground
about how to fund Victims Assistance ✓ Promote women’s empowerment and non-
Mechanisms and render them operational, violent means of protection, and take into
including from pooled funds in each country account the whole range of women’s protection
or from the operating budget of the entities issues and the interventions to address
that employ the accused. them—including women’s leadership and
women’s empowerment—in mission planning,
✓ Take steps to improve regulation and oversight implementation and reporting, as well as in policy
of all private contractors hired by the United discussions on the protection of civilians in the
Nations with regards to sexual exploitation and context of peace operations.
abuse. The UN should revise and fully implement
guidelines to regulate these companies, including ✓ Scale up their support to unarmed civilian
through permanent or temporary debarment of protection (UCP) in conflict-affected countries,
companies from further contracts and keeping including working alongside peace operations.
158 Chapter 6. Keeping the Peace

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 159

27. “‘It’s a Good Thing’: Military Chief on Virginity Testing 37. Most of the available data pertains to NATO countries
of Female Recruits,” The Jakarta Globe, May 16, 2015, and Latin American countries.
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38. Based on data collected for the Global Study, including
military-chief-virginity-testing-female-recruits/.
publicly available sources, discussions with gender
28. Aeyliya Husain, “Meet Pakistan’s Lady Cadets,” Foreign advisors of national militaries, and researchers Sabrina
Affairs, August 17, 2014, https://www.foreignaffairs.com/ Karim and Kyle Beardsley who compiled data on almost
articles/south-asia/2014-08-17/meet-pakistans-lady-cadets. 50 TCCs from a variety of sources.
29. “Report of the Secretary-General: Women and Peace and 39. “Women, Peace and Security,” United Nations
Security,” UN Doc. S/2015/716 (United Nations Security Peacekeeping, accessed July 22, 2015, http://www.
Council, September 17, 2015), 80. un.org/en/peacekeeping/issues/women/wps.shtml.
30. “Women in Peacekeeping”; Charlotte Anderholt, 40. See, e.g., foreword by Force Commander Major General
“Female Participation in Formed Police Units: A Report Paolo Serra in “Promoting Women, Peace and Identifying
on the Integration of Women in Formed Police Units of Security: Piloting Military Gender Guidelines in UNIFIL”
Peacekeeping Operations” (U.S. Army Peacekeeping & (United Nations Interim Force in Lebanon, June 2014), 4.
Stability Operations Institute, September 2012).
41. See, e.g., “Integrating a Gender Perspective into the
31. The low percentage of women in the armed forces of Work of the United Nations Military in Peacekeeping
TCCs is not the only reason offered. Often, women are not Operations,” DPKO/DFS Guidelines (United Nations
interested in peacekeeping operations if they have more Department of Peacekeeping Operations and Department
advantageous career opportunities at home or do not of Field Support (DPKO/DFS), March 2010), 19.
have family support to leave for one or multiple rotations.
42. Ryan Lenora Brown, “Would More Female Soldiers
Lack of experience with firearms and manual transmission
Improve UN Peacekeeping Missions?,” Christian Science
vehicles is frequently cited as another entry barrier.
Monitor, September 21, 2015, http://www.csmonitor.com/
32. It should be noted, however, that the percentage in World/Africa/2015/0921/Would-more-female-soldiers-
missions is typically lower than the percentage in improve-UN-peacekeeping-missions.
national armed forces. Most markedly, based on national
43. “Female Military Peacekeepers Network,” United Nations
submissions to the Global Study, in Albania the percentage
Peacekeeping, accessed July 22, 2015, http://www.
of women in the armed forces has increased steadily, from
un.org/en/peacekeeping/issues/military/femalenetwork.
12 per cent in 2010 to almost 18 per cent nowadays, but
shtml.
the percentage of women deployed as peacekeepers by
Albania ranges from 1 to 1.5 per cent. Approximately 4 44. “Human Rights Screening of United Nations Personnel,”
per cent of the Indian armed forces are women, but less United Nations Policy (United Nations, December 11,
than 1.7 per cent of their deployed troops are women. 2012).
According to Karim and Beardsley (2015, forthcoming),
45. In the survey that informed the most recent round of
recruiters and commanders often take safety and cultural
reimbursement negotiations, the countries surveyed
considerations into account when making decisions about
noted that it costs more to recruit, train and deploy
deploying women or not.
female personnel, which could be a direct justification
33. “Monthly Summary of Troop Contribution to UN to argue for a different reimbursement rate. At least
Operations” (Department of Peacekeeping Operations one country reported that it has recently introduced
(DPKO), July 31, 2015). an additional allowance for women to encourage them
to join the armed forces. Another country reported an
34. Hasan Jahid Tusher, “Country Gets First Female
additional travel allowance for female troops to make it
Combat Pilots,” The Daily Star, December 18, 2014,
easier for them to maintain contact with their children.
http://www.thedailystar.net/country-gets-first-female-
A number of sample countries reported on specific
combat-pilots-55874; “Air Force to Have 20pc Women
items of clothing provided to women and separate
Officers,” The News Today, March 12, 2015, http://www.
accommodations. Others reported additional costs due
newstoday.com.bd/index.php?option=details&news_
to covering women-specific health issues. The extra
id=2405408&date=2015-03-12.
costs were mainly due to specific needs and facilities for
35. Georgina Holmes, “Gendering the Rwanda Defence women (including maternity leaves and sanitary facilities)
Force: A Critical Assessment,” Journal of Intervention and or upfront costs in changes to facilities or uniforms
Statebuilding 8, no. 4 (October 2, 2014): 329. to facilitate women’s integration in the armed forces.
See, “Results of the Revised Survey to Establish the
36. This data is calculated annually by UN Women for the
Standard Rate of Reimbursement to Troop-Contributing
report of the Secretary-General on Women and Peace
Countries, as Approved by the General Assembly in Its
and Security. See, “Secretary-General’s Report on
Resolution 67/261 on the Report of the Senior Advisory
Women and Peace and Security (2015),” para. 114..
160 Chapter 6. Keeping the Peace

Group on Rates of Reimbursement to Troop-Contributing rights of women and girls and protect all individuals
Countries,” UN Doc. A/68/813 (United Nations General against sexual and gender-based crimes in accordance
Assembly, March 26, 2014). with legally binding human rights treaties; and ensure
accountability for violations and remedy for victims.
46. Family leave is determined by the sending national
See, “Policy on Human Rights in Peacekeeping
military.
Operations and Political Missions” (Office of the High
47. Body armor is provided by the sending national military. Commissioner for Human Rights (OHCHR), Department
for Peacekeeping Operations (DPKO), Department of
48. Anderholt, “Female Participation in Formed Police Units:
Political Affairs (DPA), Department of Field Support
A Report on the Integration of Women in Formed Police
(DFS), 2011), para. 50.
Units of Peacekeeping Operations,” 25.
58. “Report of the High-Level Independent Panel on United
49. Bangladesh has deployed an all-female formed police
Nations Peace Operations (2015),” para. 239 (vi).
unit in Haiti since 2010.
59. “Ten-Year Impact Study on Implementation of UN Security
50. Laura Bacon, “Liberia Leans In,” Foreign Policy,
Council Resolution 1325 (2000) on Women, Peace and
accessed September 23, 2015, https://foreignpolicy.
Security in Peacekeeping” (New York: United Nations
com/2013/06/03/liberia-leans-in/.
Department of Peacekeeping Operations (DPKO),
51. “UN Peacekeeping - on the Front Lines to End Violence Department of Field Support (DFS), 2010).
against Women,” UN News Centre, March 8, 2013, http://
60. Good examples of trainings on gender issues were
www.un.org/apps/news/story.asp?NewsID=44325#.
self-reported by Chile, Croatia, the Netherlands, Latvia,
VgWRhstVhBc.
France, Switzerland, Norway, Portugal, Ireland, Sweden,
52. “Norway’s Input to the Secretary-General’s Report on Romania, Malaysia, Bulgaria, Iceland, Lithuania, Austria,
Women, Peace and Security 2014, and to the Global Norway, Albania, Germany, Australia, Brazil, Argentina,
Study on UNSCR1325,” Global Study Submission, Spain, Slovenia, and Finland.
(March 2015).
61. “Resolution 1960 (2010),” UN Doc. S/RES/1960 (United
53. “Interview with Hester Paneras, Police Commissioner Nations Security Council, December 16, 2010), para. 10;
for the African Union - UN Mission in Darfur,” UN News “Resolution 2122 (2013),” UN Doc. S/RES/2122 (2013)
Centre, November 11, 2013, http://www.un.org/apps/ (United Nations Security Council, October 18, 2013),
news/newsmakers.asp?NewsID=98. para. 9.
54. “Security Sector Reform Integrated Technical Guidance 62. “Report of the High-Level Independent Panel on United
Notes” (United Nations SSR Task Force, 2012); Nations Peace Operations (2015),” para. 239(ii).
Anderholt, “Female Participation in Formed Police Units:
63. “Statement by the President of the Security Council,” UN
A Report on the Integration of Women in Formed Police
Doc. S/PRST/2012/23 (United Nations Security Council,
Units of Peacekeeping Operations.”
October 31, 2012), 2.
55. The police component in missions consists of individual
64. “Report of the Secretary-General: Women and Peace and
policemen and women, and formed police units.
Security,” UN Doc. S/2012/732 (United Nations Security
Although women are now 18 per cent of those that
Council, October 2, 2012), para. 61.
are individually recruited, the percentage drops to 10
per cent when adding formed police units. “Gender 65. Carole Doucet, “UN Gender Architecture in Post-Conflict
Statistics by Mission for the Month of May 2015” Countries” (UN Women, UN Wide Inter-Agency Task
(Department of Peacekeeping Operations (DPKO), May Team, September 20, 2012).
2015).
66. “Report of the Secretary-General: Women and Peace and
56. See Elisabeth Rehn and Ellen Johnson Sirleaf, “Women, Security,” UN Doc. S/2013/525 (United Nations Security
War, Peace: The Independent Experts’ Assessment on Council, September 4, 2013), para. 14.
the Impact of Armed Conflict on Women and Women’s
67. Calculations made by UN Women based on public
Role in Peace-Building,” Progress of the World’s Women
mission reports.
(New York, NY: United Nations Development Fund for
Women, 2002), 67–68. 68. A notable exception to this trend is UNAMA, a political
mission led by the Department of Political Affairs, whose
57. In coordination with the gender, justice and other
benchmarks are full of references to gender issues.
components as appropriate, the human rights
components in UN peace operations contribute to, inter 69. “Report of the High-Level Independent Panel on
alia, analysis of sexual and gender-based violence; United Nations Peace Operations (2015),” para.
devise effective strategies to prevent and respond 242; “The Challenge of Sustaining Peace,” UN Doc.
to sexual and gender-based violence; support the A/69/968–S/2015/490 (Advisory Group of Experts for
establishment or implementation of laws, policies, the 2015 Review of the United Nations Peacebuilding
institutions and practices which safeguard the equal Architecture, June 29, 2015), para. 159.
 161

70. Rehn and Sirleaf, “Women, War, Peace: The Independent 84. “Report of the High-Level Independent Panel on United
Experts’ Assessment on the Impact of Armed Conflict on Nations Peace Operations (2015),” para. 267.
Women and Women’s Role in Peace-Building,” 14.
85. Ibid., para. 84.
71. “Sexual Exploitation and Abuse Policy,” United
86. “The Protection of Civilians in UN Peacekeeping,” DPKO/
Nations Conduct and Discipline Unit, accessed
DFS Policy (Department of Peacekeeping Operations /
September 23, 2015, https://cdu.unlb.org/Policy/
Department of Field Support (DPKO/DFS), April 2015).
SexualExploitationandAbusePolicy.aspx.
87. For example, MONUSCO has a database to collect and
72. “Secretary-General’s Bulletin: Special Measures for
analyze information available to various components of the
Protection from Sexual Exploitation and Sexual Abuse,”
Mission on incidents of conflict-related sexual violence and
UN Doc. ST/SGB/2003/13 (United Nations Secretariat,
perpetrators. See, “UN Action against Sexual Violence in
October 9, 2003), para. 3.2(b). There is an exception
Conflict: Progress Report 2010-2011” (UN Action against
where a staff member is legally married to the person
Sexual Violence in Conflict, 2011), para. 21.
under the age of 18 but over the age of majority or
consent in their country of citizenship. Ibid., para. 4.4. 88. Janzen, “Shifting Practices of Peace: What Is the Current
State of Unarmed Civilian Peacekeeping?”
73. “Secretary-General’s Bulletin on Special Measures for
Protection from Sexual Exploitation and Sexual Abuse 89. “Case Studies of Unarmed Civilian Protection”
(2003),” para. 3.2(d). (Nonviolent Peaceforce, July 2015).
74. Ibid., para. 4.5. 90. Liam Mahony, “Proactive Presence: Field Strategies for
Civilian Protection” (Centre for Humanitarian Dialogue,
75. Military personnel are subject to the exclusive criminal
2006); Liam Mahony, “Non-Military Strategies for Civilian
jurisdiction of the troop contributing country, and UN
Protection in the DRC” (Fieldview Solutions, March
officials and experts on mission can be tried either by the
2013); Hugo Slim and Andrew Bonwick, “Protection:
host State or by the State of nationality of the accused if
An ALNAP Guide for Humanitarian Agencies” (London:
they have extraterritorial jurisdiction.
Overseas Development Institute, August 2005); Randy
76. Thelma Awori, Catherine Lutz, and Paban J. Thapa, Janzen, “Shifting Practices of Peace: What Is the Current
“Expert Mission to Evaluate Risks to SEA Prevention State of Unarmed Civilian Peacekeeping?,” Peace Studies
Efforts in MINUSTAH, UNMIL, MONUSCO, and UNMISS,” Journal 7 (December 2014); Canan Gündüz and Raul
November 3, 2013. Torralba, “Evaluation of the Nonviolent Peaceforce Project
with the Civilian Protection Compnent of the International
77. “Report of the High-Level Independent Panel on United
Monitoring Team in Mindanao, Philippines” (Initiatives for
Nations Peace Operations (2015),” 76–77.
International Dialogue, May 6, 2014).
78. Ibid., xiii.
91. “Joint Communiqué of the Republic of South Sudan
79. Zeid Ra’ad al Hussein, “A Comprehensive Strategy to and the United Nations on the Prevention of Conflict-
Eliminate Future Sexual Exploitation and Abuse in United Related Sexual Violence,” Office of the Special
Nations Peacekeeping Operations,” UN Doc. A/59/710 Representative of the Secretary-General on Sexual
(United Nations General Assembly, March 24, 2005). Violence in Conflict, October 12, 2014, http://www.
un.org/sexualviolenceinconflict/joint-communique/joint-
80. “The Campaign,” Code Blue, accessed July 23, 2015,
communique-of-the-republic-of-south-sudan-and-the-
http://www.codebluecampaign.com/about-the-campaign/.
united-nations-on-the-prevention-of-conflict-related-sexual-
81. Group of Legal Experts, “Report of the Group of Legal violence/.
Experts on Ensuring the Accountability of United Nations
92. Moshe Schwartz and Jennifer Church, “Department
Staff and Experts on Mission with Respect to Criminal
of Defense’s Use of Contractors to Support Military
Acts Committed in Peacekeeping Operations,” UN Doc.
Operations: Background, Analysis, and Issues for
A/60/980 (United Nations General Assembly, August 16,
Congress” (Congressional Research Service, May 17,
2006), para. 62 – 68.
2013), 2.
82. Carla Ferstman, “Criminalizing Sexual Exploitation
93. “Use of Mercenaries as a Means of Violating Human
and Abuse by Peacekeepers,” Special Report (United
Rights and Impeding the Exercise of the Right of Peoples
States Institute of Peace, September 2013). See also,
to Self-Determination: Note by the Secretary-General,”
Marco Odello, “Tackling Criminal Acts in Peacekeeping
UN Doc. A/69/338 (United Nations General Assembly,
Operations: The Accountability of Peacekeepers,” Journal
August 14, 2014), para. 11.
of Conflict and Security Law 15, no. 2 (2010): 347–91.
94. “Implementing the Women, Peace and Security Agenda
83. “United Nations Comprehensive Strategy on Assistance
and Reducing Armed Violence: A Submission for the
and Support to Victims of Sexual Exploitation and Abuse
2015 2015 High-Level Review of the Women, Peace
by United Nations Staff and Related Personnel,” UN Doc.
and Security Agenda,” Submission to the Global Study
A/RES/62/214 (United Nations General Assembly, March
(Global Alliance on Armed Violence, April 2015), 21.
7, 2008), para. 5(c), 6–8.
162 Chapter 6. Keeping the Peace

95. Paul Lewis, Oliver Laughland, and Roger Hamilton, “UN 99. “Guiding Principles on Business and Human Rights”
Paid Millions to Russian Aviation Firm since Learning (United Nations Office of the High Commissioner for
of Sex Attack on Girl,” The Guardian, July 30, 2015, Human Rights (OHCHR), 2011), para. 7(b).
http://www.theguardian.com/world/2015/jul/30/
100. Even if only some categories of spending are eligible
united-nations-utair-congo-sexual-attack; Megan Nobert,
for gender-responsive budgeting and financial tracking,
“Aid Worker: I Was Drugged and Raped by Another
experts on peacekeeping and gender-responsive
Humanitarian in South Sudan,” The Guardian, July 29,
budgeting should be able to make that determination,
2015, http://www.theguardian.com/global-development-
and to advise on what methodology to use or whether
professionals-network/2015/jul/29/aid-worker-rape-
to focus on either budget design, tracking spending, or
humanitarian-south-sudan-sexual-violence.
(preferably) both.
96. “Report of the High-Level Independent Panel on United
101. “Report of the High-Level Independent Panel on United
Nations Peace Operations (2015),” 76–77.
Nations Peace Operations (2015),” 76–77.
97. “Concept Note on a Possible Legally Binding
102. “Report of the Secretary-General: Special Measures for
Instrument for the Regulation of Private Military Security
Protection from Sexual Exploitation and Abuse,” UN Doc.
Companies” (Working Group on the use of mercenaries
A/69/779 (United Nations General Assembly, February
as a means of violating human rights and impeding the
13, 2013).
exercise of the right of peoples to self-determination,
April 9, 2015), 4. 103. Drawn from the 2014 report the UN Working Group on
the use of mercenaries, (A/69/338) para. 80, 82–83.
98. “Note by the Secretary-General on Use of Mercenaries
Although the recommendations of the Working Group
as a Means of Violating Human Rights and Impeding the
pertain only to security contractors for the UN, here,
Exercise of the Right of Peoples to Self-Determination
they should be understood to apply to all types of UN
(2014).”
contractors.
163
164 Chapter 7. Building Peaceful Societies

07
 165

BUILDING INCLUSIVE
AND PEACEFUL
SOCIETIES IN THE
AFTERMATH OF
CONFLICT

“Gender must be at the heart of socio-

economic development and peace
consolidation. Supporting women in their
initiatives is supporting the entire nation.”

Respondent to the civil society survey for the Global Study, working in Burundi
166 Chapter 7. Building Peaceful Societies

HIGHLIGHTS FROM THE RESOLUTIONS

Resolution 1325
Calls on all actors involved, when (b) Measures that support local
negotiating and implementing women’s peace initiatives […], and
peace agreements, to adopt a that involve women in all of the
gender perspective, implementation mechanisms of the
including […]: peace agreements;
(a) The special needs of women (c) Measures that ensure the
and girls during repatriation and protection of and respect for human
resettlement and for rehabilitation, rights of women and girls, particularly
reintegration and post-conflict as they relate to the constitution, the
reconstruction; electoral system, the police and the
judiciary

2000 2008

Resolution 1820
Stresses the important role the
Peacebuilding Commission can
play by including in its advice and
recommendations […] ways to
address sexual violence […], and in
ensuring consultation and effective
representation of women’s civil
society
 167

Resolution 2122
Urges all parties concerned,
including Member States, United
Nations entities and financial
institutions, to support the
development and strengthening
of the capacities of national
institutions [...] and of local civil
society networks in order to provide
sustainable assistance to women and
girls affected by armed conflict and
post-conflict situations

2009 2013

Resolution 1889
Urges Member States
to ensure gender
mainstreaming in all post-
conflict peacebuilding and
recovery processes and
sectors
168 Chapter 7. Building Peaceful Societies

As the United Nations has become more and more

involved in rebuilding societies after war, it has begun to
adopt common principles and practices based on the Without women’s
lessons it has learned. One lesson is the understanding
that in post-conflict societies, invariably, where there is
engagement from the
little semblance of the rule of law and a great availability earlier moments of
of arms, violence against women in all its forms spikes attempting to end the
and becomes a major problem for the entire community. violence to the latter
At times it may also lead to issues related to human stages of consolidating
trafficking, drug trafficking and human smuggling. The
need to immediately deploy an effective police force—
the peace, the dangers
national or international—that is, one trained in dealing of relapse are greatly
with violence against women, is an urgent requirement. heightened.
Unfortunately in many contexts, this realization comes
late, after many women have suffered great violations
that colour their experience of peace.
state and level of women’s inclusion and participation
In other situations, instead of universal practices, there in peacebuilding efforts. Women in conflict-affected
is a real need to understand local realities, and a and recovering countries stressed that they lack
greater need for localization of national and international economic opportunities necessary for survival, remain
programmes. The end of the war often results in the confronted by daily violence in their homes and
rise of female heads of households with urgent need communities, struggle to cope with heavy burdens
for skills so that women can survive and grow in the of care and dependency and continue to endure
immediate aftermath of conflict. For this, there must be the emotional and physical scars of conflict, without
a detailed mapping of the actual reality of the locality, in support or recognition. All of these challenges served
direct consultation with the women: what would they like as barriers, in one way or another, to their participation
to do, the nature of the market, the nature of the skills in peacebuilding.
available and the type of plans to be developed by the
government. It is only after such a mapping exercise Throughout, one message consistently repeated
that proper programmes may be developed for women itself: whatever the leadership roles women
in post-conflict situations. Most international institutions may have played during the conflict, they found
do not do these mapping exercises, and neither do themselves largely locked out of the decision-
national governments. As a result of these ‘one-size- making forums for building a new society once
fits-all’ policies, a great deal of funds are wasted, the conflict was over. This also meant that they
as programmes are not really useful for the women, shared in few of the resulting peace dividends.
and do not really help them get on with their lives. Women were routinely excluded from the post-conflict
Detailed mapping requirements must be an essential processes that determine power distribution, wealth-
requirement of any peacebuilding effort. sharing patterns, social development priorities, and
approaches to justice. Furthermore, they could not
look to local or national government institutions for
WOMEN’S LEADERSHIP AND assistance, as the state itself was often being rebuilt
PARTICIPATION and too weak or compromised to play a meaningful
role. In this context, the international community has
The effects of a lack of appropriate mapping of too infrequently played the role it should in placing
women’s concerns featured strongly at all the Global women’s participation in recovery and rebuilding
Study consultations, and revealed much about the efforts at the center of peacebuilding strategies.
 169

Yet it is often women peace advocates on the ground capacity for individual and collective action.4 These
who are instrumental in stitching the fabric of society initiatives must equally attend to the physical and
back together after conflict has ripped it apart. emotional trauma, and insecurity and violence that
Research over the past 15 years has concretely women and girls continue to experience after a peace
established that women’s participation builds a agreement is reached, which pose clear obstacles
stronger and more durable peace as it broadens the to their participation in peacebuilding.5 The trauma
peace dividends beyond the fighting parties, engaging that results from war can have lasting effects on
a constituency who can promote social acceptance women’s ability to move forward, and unfortunately,
of the peace deal (detailed further in Chapter 3: available psychosocial support can rarely grapple
Women’s Participation). As reaffirmed by the recent with the magnitude of trauma and pain that women
review of the UN’s peacebuilding architecture, in peacebuilding contexts often bear. Chapter 4:
women’s participation is crucial for economic recovery, Protecting Rights addresses psychosocial support in
political legitimacy and social cohesion: “without detail, describing it as a necessity, not a luxury, for
women’s engagement from the earlier moments of post-conflict recovery.
attempting to end the violence to the latter stages of
consolidating the peace, the dangers of relapse are The 2015 review of UN peacebuilding architecture
greatly heightened.”1 highlighted the importance of reconciliation, and
addressing the long-term trauma of conflict, to curb
From 2003 to 2010, every civil war that erupted was the social propensity toward violence, which left
a resumption of a previous civil war.2 Approximately unaddressed often manifests through rising rates of
half of the conflict-specific items currently on the domestic violence in the peacebuilding period.6 At
Security Council’s agenda can be considered cases consultations for the Global Study around the world,
of conflict relapse.3 Given the importance of women’s women spoke about their experiences of escalating
participation in preventing relapse to conflict, their domestic violence in the post-conflict period, and
exclusion therefore impacts not just the lives of women explained that a major factor contributing to this abuse
and girls, and their families and communities, but was weak or absent rule of law institutions. In Chapter
impedes societies’ efforts for stability as a whole. 5: Transformative Justice, the Global Study explores

It is clear that there is a need to reimagine

‘peacebuilding’ in a way which is meaningful for
women and girls—leveraging their capacities and
contributions, and developing strategies for inclusion These initiatives must
which recognize their roles, and diverse experiences equally attend to the
of conflict. This inclusive and transformative
peacebuilding is not only a series of activities, or
physical and emotional
checked boxes for women’s participation. It is an trauma, and insecurity
approach which requires addressing systemic gender and violence that women
inequality, which is among the root causes of conflict. and girls continue to
experience after a peace
To remove gender inequality in all of its forms—
from gendered poverty and exclusion, to structural
agreement is reached,
discrimination, and violations of human rights— which pose clear obstacles
peacebuilding initiatives must empower women and to their participation in
girls economically, politically and socially. They must peacebuilding.
include long-term development strategies that benefit
women and girls from the grassroots, building their
170 Chapter 7. Building Peaceful Societies

FOCUS ON

The UN peacebuilding architecture and women, peace and security

In 2010, the Secretary-General, in response to a This includes a tangible increase in its financing for
specific request from the Security Council, submitted gender equality, setting an initial goal of ensuring that
a report on ‘Women’s Participation in Peacebuilding.’ at least 15 per cent of UN-managed funds in support
The report affirmed that women are “crucial partners of peacebuilding be dedicated to projects whose
in shoring up three pillars of lasting peace: economic main objective is to address women’s specific needs,
recovery, social cohesion and political legitimacy” and advance gender equality and/or empower women.8 The
laid out an ambitious plan to support, reinforce and Action Plan has been an important tool for planning and
capitalize on women’s participation in peacebuilding.7 target setting. However, from the evidence collected for
this study, it is clear that while some progress has been
The Secretary-General’s Seven-Point Action Plan on made in the area of processes, not enough impact has
Gender-Responsive Peacebuilding commits the UN to yet been felt in the daily lives of women in post-conflict
progress in several thematic and programmatic areas. contexts.

how women’s access to justice is crucial to building the global economy.9 These reforms, which intend to
peaceful societies after conflict. roll back the power of the state over the economy, can,
in so doing, aggravate the burden of care on women,
This chapter reviews inclusive and transformative exacerbate inequalities and weaken the power of the
approaches to peacebuilding through a focus on three
key aspects of post-conflict peacebuilding—economic
empowerment, post-conflict governance, and
demobilization, disarmament and reintegration (DDR) “Women do not
programmes and security sector reform (SSR).
‘eat’ peace. Women
Women’s economic empowerment for
want programs that
peacebuilding integrate peacebuilding
Conflict has devastating financial costs for societies, initiatives with economic
not least in the destruction of the domestic economy.
As a result, post-conflict contexts are characterized empowerment.”
by rapid rebuilding of national economic structures.
Too often, the focus of this rebuilding has been on Participant in the focus group discussion
the liberalization of the economy and market reform— for the Global Study in Uganda
increasingly a standard component of post-conflict
reconstruction intended to integrate the new state into
 171

state to address women’s specific needs through

programmes and benefits.

Further, in the wake of conflict, large-scale external and

Studies also indicate
domestic investments are often made in infrastructure, that when women
markets, labour force development, extractive industries control income, they
and commercial agriculture. Latest data from the are better able to
Development Assistance Committee of the Organization
for Economic Cooperation and Development (OECD-
ensure the security of
DAC) show that while DAC donors invest large amounts themselves and their
in the economic and productive sectors in fragile states children, to engage in
and economies, only a minute percentage targets civil society activity and
gender equality as a principal objective. For instance, contribute to inclusive
of USD 10 billion invested per year in 2012-13, only
USD 439 million (or 2 per cent) went towards promoting
governance, particularly
gender equality as a principal objective.10 at local levels,
thereby making a vital
This is an area that clearly has not been a priority contribution to family
for international institutions or States, despite clear
and community stability.
evidence that targeting women’s empowerment in
fact accelerates economic recovery. It is worth noting
that several of the world’s fastest growing economies,
which have only recently emerged from conflict, owe
their success in part to women’s increased role in
production, trade and entrepreneurship.11 Strategies economic empowerment has other important benefits
for rapid economic growth in these contexts included for a society seeking to build peace. Experience and
the promotion of girls’ education and the expansion of evidence show that women are more likely to spend
women’s access to agricultural extension and credit. their income on family needs including health care
In addition, by addressing discrimination, harmful and education, thus making a proportionately larger
stereotypes, patriarchal structures and exclusion that contribution to post-conflict social recovery.13 Studies
render women and girls vulnerable to violence and also indicate that when women control income, they
poverty, these States have taken steps to enable them are better able to ensure the security of themselves
to participate meaningfully and effectively in public and their children,14 to engage in civil society activity
and private spheres, and become a driving force in the and contribute to inclusive governance, particularly
economy. at local levels, thereby making a vital contribution to
family and community stability.15 Similarly, women’s
The impact of women’s participation on economic traditional role in many societies as managers of
growth was recognized by the Peacebuilding natural resources means that targeting female food
Commission in a 2013 Declaration in which producers—alongside legal recognition of their rights
the Commission reiterated that “the economic to land, housing and property—can lead to positive
empowerment of women greatly contributes to the outcomes for food security in the aftermath of
effectiveness of post-conflict economic activities conflict.16 One cross-country analysis found that the
and economic growth, and leads to improving the conflict-affected communities that experienced the
quality and social outcomes of economic recovery most rapid economic recovery and poverty reduction
measures and policies as well as to sustainable were those that had more women reporting higher
development.”12 Beyond economic growth, women’s levels of empowerment.17 In Rwanda for example,
172 Chapter 7. Building Peaceful Societies

initiatives to increase women farmers’ leadership in women to the domestic sphere, and reinforce old
farmers’ collectives, and their access to extension gender stereotypes. This is especially important as
services, led to an increase in production yield, peacebuilding and recovery efforts have tended to
thus making a greater contribution to national food focus on building the economic space for men–
security, and increasing the women’s status within rather than both men and women–to re-engage and
the community.18 FAO estimates that giving women reintegrate into their communities through job creation
farmers the same access to assets and credit as men and expansion initiatives.22
could help increase their yields by 20 to 30 per cent.19
This suggests that the potential of agriculture as an
engine for economic growth and peace dividend as a Transformative, inclusive and equitable economic
whole could be increased by targeting female farmers. recovery

In order for economic recovery to transform underlying

Women heads of household and the burden of gender inequalities, women must be presented with
care livelihood options that avoid further entrenching gender
inequalities and stereotypes.23 This is a mistake that
Households are transformed by conflict-related many internationally directed programmes have in the
displacement, conscription and casualties, frequently past made. For example, female ex-combatants have
leaving women as the head of the family in what are often been limited to choosing between activities
often deeply patriarchal societies.20 In Nepal, widows such as hairdressing and tailoring, both of which
of the disappeared spoke movingly of their daily could expose them to a lifetime of low wages
struggles to survive and provide for their families (as and poor working conditions.24 Instead, livelihood
detailed further in Chapter 5: Transformative Justice). opportunities for women should be expanded and
Regardless of household composition, women and also extended to traditionally male dominated sectors,
girls already affected disproportionately by the burden including extractive industries and natural resource
of care globally find these responsibilities exacerbated management. In Sierra Leone, the “Women at the
post-conflict, when educational and health facilities Wheel” project launched in 2014 by the Office of
and social services may have been destroyed or
become difficult to access.

At the same time, although the absence of a

male head of household as a result of conflict
increases care burdens for women and girls–and It is worth noting
often, vulnerability too–these demographic shifts that several of the
also present new and important opportunities for world’s fastest growing
women’s engagement in spheres and activities
typically dominated by men, including male-
economies, which have
dominated economic activities. For example, research only recently emerged
conducted by Isis-WICCE in northern Uganda from conflict, owe their
(2001), Sudan (2007), and Liberia (2008) found success in part to
that women who were able to recover from conflict women’s increased role
were more economically self-reliant than they had
been in the past.21 The challenge is consolidating
in production, trade and
and expanding upon gains for gender equality and entrepreneurship.
women’s empowerment as men return home, to
prevent a reversion to pre-conflict norms that relegate
 173

the President, offered taxi driving for women. This landmines in countries including Afghanistan, South
promoted women’s economic empowerment, provided Sudan and the DRC. Women demonstrating that they
a service for the population, income for the women are capable of the physical and technical demands
and simultaneously served to contradict gender of the job have had a powerful impact, strengthening
stereotypes regarding ‘women’s work.’25 The United women’s status within their communities and providing
Nations Mine Action Service employs women to clear a source of income.26

FOCUS ON

Extractive industries and natural resource management

“In my country armed conflicts are related to the issues such as conflict over resources fueling extreme
exploitation of natural resources, which is funded violence against women in the Democratic Republic
by multinationals.” of the Congo,28 to negative health effects on women
and children due to unsafe oil drilling practices in the
Respondent to the civil society survey for the Niger Delta, Nigeria.29 Women also continue to be
Global Study, based in the DRC largely excluded from job opportunities in the sector,
despite their traditional roles and experience in natural
In many post-conflict countries, extractive industries resource management.
drive economic recovery and are a crucial resource for
the national budget. This is evidenced for instance, by Consultations with women’s civil society organizations
the tremendous reliance on oil resources by the two in the global south revealed widespread perceptions
newest countries to join the international community: that multinational corporations were being engaged to
Timor-Leste and South Sudan. “develop” countries through extractive industries at the
expense of local people.30
The Security Council is increasingly recognizing the
role that natural resources play in fueling conflict, Inclusive, equitable and sustainable management of
requesting that the UN Multidimensional Integrated natural resources in the aftermath of conflict can play
Stabilization Mission in the Central African Republic a crucial role in building peace and transforming social
(MINUSCA) work with Central African authorities to inequalities.31 In order for women to reap the economic
develop a national strategy to tackle illicit exploitation benefits from this sector, they must have land rights that
and trafficking of natural resources.27 The gender are legally recognized, and be empowered to participate
dimensions of extractive industries and natural and lead in decision-making in the home, community
resource management are complex, ranging from and society on how natural resources are used.
174 Chapter 7. Building Peaceful Societies

Focus group discussions for the Global Study

revealed that locally-led initiatives are a key resource
for women’s economic empowerment, and provide a
The danger is that
sense of ownership over economic security. Projects
such as community loans and revenue-generating
economic recovery for
cooperatives have succeeded in providing a stable women too often translates
source of income to women in Burundi and Rwanda only into micro-credit or
for example.32 However, the danger is that economic micro-enterprises, while the
recovery for women too often translates only into
micro-credit or micro-enterprises, while the large-
largescale projects continue
scale projects continue to be dominated by men. As to be dominated by men.
reflected in efforts by the African Development Bank in
post-conflict contexts, the vision for economic recovery
should be transformative and long-term, assessing
not just the state of the inherited economy, but rather
what the future economy will be, and how women can as suggested in the Beijing Platform for Action, can
be placed to lead, contribute to and benefit from a encourage transformational change in institutions and
transformative recovery programme.33 has been found to lead to different choices in social
spending. This, in itself, can address some of the
Finally, transformative economic initiatives must underlying marginalization and inequalities that generate
address the diversity of economic needs among conflict. In addition, women’s equal, meaningful and
women and girls recovering from conflict, with tailored effective participation in post-conflict government
approaches for particularly economically vulnerable institutions and political processes ensures a greater
groups, including internally displaced peoples and array of views is reflected in decision-making.
refugees, indigenous peoples, women and girls with
disabilities, older women and the LGBT community, Whether in lobbying for gender-responsive constitution-
among others. As with the economic empowerment of making or decentralization processes, or supporting
women in general, the empowerment of each of these women as voters and candidates in elections, it is
groups will contribute to the strength and resilience of clear that members of women’s civil society often
peaceful and democratic societies. play a key role in transforming the political space.
According to the World Development Report of
2012, “women’s collective voice—either through
WOMEN IN POST-CONFLICT direct participation in decision-making institutions or
GOVERNANCE through shaping the context for decisions—can result
in policies, programmes, and laws that are quite
Peacebuilding in the immediate aftermath of conflict different from those that would have emerged without
is often accompanied by sweeping political and it. Providing an environment where women’s voice
governance reforms that are meant to address the root can coalesce into a collective voice can thus promote
causes of conflict, political exclusion, impunity and women’s agency and greater gender equality.”34 For
absence of the rule of law, centralized governance and example, in Somalia, where women are often excluded
economic marginalization. With the foundations of the from the all-male arena of clan-based politics, women
post-conflict society being laid, governance reforms have focused their political energy on civil society
offer a unique window of opportunity to transform organizing—monitoring human rights violations so that
discriminatory social structures, and to promote perpetrators can be brought to justice when proper
women’s human rights, participation and meaningful institutions are in place, disarming and reintegrating
engagement. Pursuing the goal of ‘gender balance,’ young militiamen and advocating for women’s rights.35
 175

Women’s participation in elected bodies conflict countries where legislated electoral quotas
had been adopted, women represented almost 23 per
Over the past 15 years, significant strides have cent of parliamentarians, compared to 15 per cent
been made in terms of women’s representation in in those countries without legislated quotas. Similar
parliaments in post-conflict countries. Several of the representation rates were evident in 2014, when
countries with the highest representation of women women occupied 23 per cent of parliamentary seats
globally are also those emerging from conflict, in countries using electoral gender quotas, and 10 per
including Afghanistan, Angola, Burundi, Croatia, Iraq, cent where quotas were not in use.41
Mozambique, Namibia, Nepal, Rwanda, Serbia and
South Sudan.36 Many of these countries adopted Quotas are most effective when they are adapted to
temporary special measures as a result of efforts by the country context and accompanied by enforcement
multiple actors, including women advocates, during mechanisms. Electoral quotas may be accompanied
and after the peace negotiations. ‘Temporary special by a range of measures, including targeted training
measures’ are instruments, policies and practices for women candidates, public awareness campaigns
aimed at accelerating de facto equality between men on women’s right to participate in political and
and women,37 and may include outreach and support electoral processes, and working with appropriate
programmes, allocation or reallocation of resources, bodies to ensure women can participate in a safe
targeted recruitment and promotion and quota and secure environment. All serve to confront the
systems.38 existing cultural and legal discrimination that prevents
women’s full participation in political decision-making,
Electoral quotas in particular have had a quantifiable a fact especially important as the political space
impact on women’s representation in conflict and post- evolves in the wake of conflict. The presence of
conflict countries, contributing to the overall gender women in decision-making positions, in turn, has an
balance of their national elected bodies.39 The 2002 important demonstrative effect: that public life is not
report, Women, War, Peace, recommended a 30 per the exclusive domain of men.42 A positive example is
cent minimum quota for decision-making positions, illustrated by the case of Afghanistan, where gender
in a clear finding on the value of quotas for women’s quotas have seen an increase not only in the election
participation.40 By July 2015, in conflict and post- of women to parliament, but in the registration of
women voters, women participants in rallies and public
demonstrations, and as candidates.43

Women’s inclusion in post-conflict political processes

Electoral quotas in has been shown to benefit societies as a whole.
particular have had a Studies have found that states with high proportions
of women in parliament are less corrupt,44 and
quantifiable impact on that women tend to focus more of their legislative
women’s representation proposals on social service oriented legislation–
in conflict and post- rights, education and health, including sexual and
conflict countries, reproductive health—to the benefit of society as a
contributing to the whole.45

overall gender balance However, despite progress in some areas, women

of their national elected politicians in post-conflict societies continue to face
bodies. harmful gender stereotyping, cultural and legal
barriers and discrimination that cannot be addressed
by gender quotas alone. Violence directed at women
176 Chapter 7. Building Peaceful Societies

politicians is an especially significant obstacle,

and only heightened in contexts of insecurity. In
Iraq, for example, women have been targeted while “Evidence shows that
campaigning for office,46 and in areas occupied
by ISIS, women who have run for office have been women in the front line of
executed.47
service delivery, whether
Gender-responsive decentralization and public
as polling agents, police
service delivery officers, registration
Post-conflict governance reforms often include officials, judges, court
decentralization, so that decision-making power is
devolved to levels of government that are closer to
clerks, teachers,
the community. As capital-based decision-making medical attendants, or
is more far-removed and less likely to favour the
interests and needs of different groups at the local agricultural extension
level, decentralization can provide an important
entry point to translate national laws, policies and agents, deliver better
frameworks to the local level. Such processes can
have a major impact on addressing the root causes
quality services for both
of conflict. men and women.”
Much of the focus in promoting women’s participation Ana Lukatela, “Gender and Post-Conflict
post-conflict has been centered on national level Governance: Understanding the Challenges”48
elections. Too little attention has been paid by
comparison to women’s participation in formal local

FOCUS ON

Gender equality and decentralization in Timor-Leste and Nepal

In Timor-Leste, women’s civil society groups and In Nepal, outcomes were not as positive. Even though
international actors partnered to advocate for a strong a law passed in the post-conflict period mandates
gender equality component to be included in the local level basic service committees to include women
decentralization process post-independence. They were members, the women themselves still feel reluctant to
successful and the 2009 ‘community leadership law’ speak up unless they are discussing issues in women-
mandated that three out of seven village leaders must be only meetings. This suggests that capacity building for
women. Further, the 2010 ministerial directive on local local women’s leaders must also accompany efforts to
development mandated that women should have 50 per increase their representation.50
cent representation in each sub-district Assembly.49
 177

governance structures. These are crucial not only as

the most accessible interface for communities with
the state, but also for the delivery of social services. “Prioritization needs
When power is decentralized, women may struggle
to have their voices heard if local governance is to be given to restoring
dominated by powerful male local elites.
social infrastructure
Effective and inclusive service delivery can play
a conflict-mitigating role by reducing tension and
and to establishing
grievances between parties to a conflict over key basic social services
basic services. The resumption and improvement of
basic public service delivery is considered a crucial – otherwise women
peace dividend, signaling an inclusive new system of
governance and stability.51 Provision of basic needs like
will continue to bear
security, water, access to food and health—including an excessive burden
sexual and reproductive health—have deep implications
for women and girls. In the post-conflict environment of care, in a situation
women struggle with specific barriers to accessing public
services, including the threat of sexual and gender- where conflict will
based violence in insecure environments, difficulties
with transport, finances and childcare, and continued
have increased the
marginalization from decision-making processes. Rural number of disabled and
women in particular face major obstacles in accessing
water, sanitation and health care. dependents.”
Incorporating accountability to local women in the
planning and delivery of services in fragile and Advisory Group of Experts for the 2015 Review
post—conflict contexts can be a major contribution to of the United Nations Peacebuilding Architecture
improved social, political and economic outcomes for “The Challenge of Sustaining Peace”53
women. In addition, targeting women as beneficiaries
of infrastructure development initiatives, cash transfers,
and subsidized goods and services not only enhances
the overall effectiveness of such interventions, but has
the potential to reduce gendered poverty in conflict- SECURITY SECTOR REFORM AND
affected societies, and serve as a tool for rebuilding DISARMAMENT, DEMOBILIZATION AND
and social protection by facilitating social and economic REINTEGRATION POST-CONFLICT
cohesion.52
Reform of the security sector (SSR) and the
Government and UN engagement with women in disarmament, demobilization and reintegration (DDR) of
the design and decision—making stages of public ex-combatants are the processes through which post-
service delivery systems—including in monitoring and conflict states stabilize the security situation so that
evaluation—has proven to be a key factor in ensuring longer-term recovery and development can take place.
the voices of women service-users reach decision- Women and girls can be affected by these processes as
makers, and that quality services reach women. victims of violence, members of armed groups, peace
leaders in the community, human rights defenders and
178 Chapter 7. Building Peaceful Societies

every day citizens. Over the past 15 years, increased

awareness of the gender dynamics within the security
sector has resulted in more attention to the specific “We want to be
needs and capacities of women and girls as ex-
combatants, members of host communities and users of political leaders, and
security services.
guide society, but we
The Security Council resolutions on women, peace and
security touch on DDR and SSR from the planning,
have no resources for
implementation and accountability perspectives. basic survival.”
Technical guidance has been developed, both within
the UN and elsewhere, to help practitioners and policy Woman ex-combatant,
makers to operationalize the normative framework, Global Study visit to Nepal
and to design and implement strategies for gender-
responsive DDR and SSR in the field.54 Furthermore,
as a result of the evolving normative framework and
operational guidance, important efforts have been made
to mainstream a gender perspective in DDR and SSR individuals, but also in missed opportunities to support and
policy and implementation. This has led to some good strengthen the leadership capacities of these female ex-
practices in the field on the one hand, and highlighted combatants. Finally, gender-blind approaches fail to assess
continuing gaps and challenges on the other. the role of women in the receiving community, especially
their role in supporting social reintegration of ex-combatants,
including those who are under-age, disabled or traumatized.
Disarmament, demobilization and reintegration
Since 2000, the Security Council has urged the
Many of the early DDR processes in the 1990’s consideration of the needs of women in DDR processes
were criticized for their gender-blindness. Despite by peacekeeping missions in some of its country-specific
the presence of women and girls in armed groups, resolutions. Whilst this is the case for some specific
both in active combat and supporting roles, their country resolutions, including some of those related to
needs were not reflected in DDR design and Burundi, Cote d’Ivoire, Liberia, South Sudan, Sudan and
delivery. For example, in Liberia and Sierra Leone, Haiti,59 overall references to gender and DDR continue to
the “no weapons, no entry” criteria excluded many be limited. Analysis of DDR implementation in countries
eligible women, especially those in support roles.55 such as Liberia, Sierra Leone, Nepal and Colombia
In addition, demobilization sites frequently lacked present similar conclusions in that advances in policy do
facilities and equipment for women and girls, and not necessarily translate to better DDR delivery for women.
reintegration programmes failed to offer sustainable
and empowering livelihood opportunities.56 While several DDR programmes have been relatively
successful in mainstreaming gender in the initial
Although blindness to the needs of women and girls was disarmament and demobilization phases, their
oftentimes by simple omission,57 in many other cases, reintegration components have fallen short, either
women who had played leadership roles in armed groups insufficiently or inappropriately addressing the needs
were deliberately sidelined into more traditional roles in and experiences of female combatants, supporters
a misplaced effort to ease the political and economic and dependents. This is the direct result of the ongoing
reintegration of their male counterparts.58 Whether failure of DDR programmes more broadly, to effectively
intentional or not, the exclusion of women and girls assess and address women’s and girls’ roles as agents
from DDR has resulted not only in hardship for them as during conflict. Instead, approaches keep reaffirming
 179

gender stereotypes, depicting them solely as victims, Security sector reform

and failing to capitalize on their leadership skills.60 For
example in Liberia, skills training of ex-combatants Security sector organs in post-conflict contexts often
focused on perceived women-specific activities such as bear the legacy of being the main perpetrators of
sewing and hairdressing.61 These activities reinforced violence during the conflict. As a result, communities
traditional gender roles and also, in the absence of a can associate police and armed forces with threats,
thorough gender-responsive job market analysis, were violence, intimidation and abuse. Therefore, their
not ultimately meaningful and viable economic livelihood reform into democratic, effective and transparent
options. In Nepal, only a small number of female ex- institutions is key to gaining the public’s trust in the
combatants have been integrated within the army or peacebuilding process.
entered the political arena. The vast majority “became
invisible and quietly returned to their communities deeply Security sector vetting processes, which exclude
stigmatized and disempowered.”62 Such women, in Nepal perpetrators of human rights violations from security
and elsewhere, belong to the many that have been left sector employment, are critically important tools to
behind and left out of peacebuilding processes. protect civilians from those with a record of abuse.68
Such processes must also be linked with DDR
While some DDR programmes have grappled with processes to ensure that former combatants who
transforming ‘violent masculinities,’ concrete interventions have committed gender-based violations are also not
in this area are nascent.63 In the same vein, DDR integrated into the security sector. Failure to engage
processes that separate child and adult programmes in vetting, including for sexual and gender-based
present structural problems and fail to address the specific crimes, puts societies at risk of further violence from
needs of young girls. For example, several girls under the dangerous actors, constitutes a significant barrier
age of eighteen who were eligible for the children’s DDR to seeking justice assistance from the State, erodes
programme in Sierra Leone did not consider themselves to public faith and confidence in rule-of-law institutions,
be children, “either because they were already mothers, or marginalizes victims and sends the message
because of the loss of parents, some had taken on adult that gender-based and sexual violence is socially
roles for a number of years.”64 This resulted in many girls acceptable.69 Other measures to develop internal
not registering for the child DDR-programme. Furthermore, oversight and accountability within the security sector
the high levels of psychosocial trauma that women, men, include clear reporting and disciplinary and criminal
girls and boys experience as a result of conflict-related measures in case of discrimination, harassment and
violence have also been insufficiently addressed by sexual abuse by security forces towards community
reintegration programmes.65 members or fellow officers.

DDR processes often implicitly rely on the unpaid labour of

women in the community to care for disabled, young, sick
or traumatized ex-combatants. In Sierra Leone, a survey
asked predominantly male ex-combatants to identify those
Effective and inclusive
who played a significant role in helping them reintegrate;
55 per cent named women in the community.66 Women
service delivery can play
grassroots peacemakers in Liberia played a crucial role in a conflict-mitigating role
mitigating tensions around the return of ex-combatants to by reducing tension and
the very communities where they had been perpetrators of grievances between parties
violence.67 DDR programmes would benefit from increased
engagement and coordination with women peacebuilders
to a conflict over key basic
as partners, stakeholders and valuable resources in DDR services.
design and delivery.
180 Chapter 7. Building Peaceful Societies

Increasing the representation and participation women recruits,73 and providing capacity building
of women, women’s human rights defenders and and skills training to encourage women to join. In
women’s organizations in SSR processes—and in Afghanistan, where between 70 and 80 per cent of
the security sector itself—can help shape security women of the Afghan National Police are illiterate, an
institutions that are responsive and representative innovative literacy program offered through a mobile
of the population at large. In this respect, women’s phone based application helped female police officers
organizations and women’s human rights defenders to overcome some of the challenges they face in
have a vital role especially in community security and improving their literacy skills, such as shifts and family
security sector oversight. duties which often cannot accommodate regular class
schedules.74 Mutual support, in the form of mentoring
The presence of women can transform an institutional and networking between female staff is also contributing
male-dominated culture and promote respect for to the creation of an overall supportive environment
human rights within security organs.70 Furthermore, for women in the security sector. Female UN police
by bringing in a variety of skills and competencies, networks that were created within the peacekeeping
the increased participation of women can help create missions in Darfur, South Sudan and Haiti, played
a more trusted and legitimate security apparatus. critical roles in helping set up the national female police
This can result in better policing outcomes for the networks in host state police services.75
community, such as improvements to violence against
women reporting rates, intelligence gathering, and the Am important innovation in the last 15 years has been
treatment of female witnesses, victims and suspects. the establishment of special protection units in countries
Data from 39 countries showed a positive correlation such as Afghanistan, Guinea, DRC, Liberia, Sierra
between the proportion of female police and reporting Leone, Rwanda and Timor-Leste.76 These units are often
rates of sexual assault.71 staffed exclusively by female personnel or women and
men specially trained to deal with victims of gender-
Despite the positive impact of female officers, based violence. The units have been most successful
the global proportion of women in national police at increasing awareness of women’s rights within the
forces remains low, with an average of 9 per community, and contributing towards rebuilding trust,
cent.72 However, some positive practices are taking especially by women, in security sector institutions.77 In
place in some countries, including using temporary some cases, the units have led to increased reporting
special measures to increase the numbers of new and conviction rates, and helped expand survivors’
access to services, such as support and referral
services. In Guinea, for example, cases increased from
82 to 689 within a year following the creation of the
special protection unit.78

The presence of women Special units face a number of challenges however.

These range from insufficient links to the judiciary,
can transform an
resulting in limited prosecutions, to lack of appropriate
institutional male-dominated infrastructure to carry out hearings once cases reach
culture and promote the courts. In some cases survivors must also travel
respect for human rights long distances to even reach the special units. For
within security organs. such special units to build on their effectiveness, it
is thus critical that they be integrated in the overall
structures of the security and justice sectors, and that
they benefit from the necessary authority, funding and
capacity to carry out their duties.
 181

FOCUS ON

Vulnerable Persons Units in Timor-Leste national police

“I am here to help survivors use the referral Timor-Leste. Its dedicated officers are valuable resources
network, get medical treatment if they need it, and for communities, encouraging reporting and prosecution
get counseling to be able to feel better after their through their personal assistance to survivors and direct
trauma. I help them take their cases through the engagement at the grassroots level. A complementary
Prosecutor’s Office. This is why I became a police network of thirty-five community centers across Timor-
officer.” Leste offers survivors mediation, physical and emotional
recovery services, legal assistance and skills training.
Sergeant Amelia de Jesus Amaral, Commander of The centers have also become spaces for capacity
the Vulnerable Person’s Unit (VPU) of the National building and for women’s organizations to meet, thus
Police of Timor-Leste79 evolving into an empowerment resource for all women,
and not solely survivors of gender-based violence.
In 2000, the UN Police Force (UNPOL) in Timor-Leste
created a Vulnerable Persons Unit (VPU) to investigate While this approach has been successful, more
cases of domestic violence, sexual violations, crimes resources are sorely needed to broaden its impact—VPU
against children and human trafficking.80 The VPU is officers still lack sufficient vehicles and other equipment,
now a critical component of the National Police Force of making it difficult to access survivors in remote areas.

CONCLUSIONS participate in peacebuilding priority setting, decision-

making and oversight.
Across the various elements of peacebuilding, similar
concerns emerged from the Global Study consultations • For women on the ground, the delineations between
with women in post-conflict contexts: areas of intervention are meaningless. Women
cannot access markets if the roads are inaccessible.
• Gender-responsive peacebuilding as a field continues Women cannot till the soil if landmines are not
to suffer from a lack of resources and insufficient cleared. Women cannot avail themselves of income-
expertise and capacity, especially at the country level. generating activities if they or their loved ones are
injured or traumatized and require care. Psychosocial
• At the policy level, steps must be taken to improve support must be accessible to women and girls, if
women’s participation in decision-making on they are to rebuild their lives sustainably.
peacebuilding priorities and fund allocations at
country-level and ensure women fully, meaningfully Importantly, women emphasized their need for long-
and equally participate in peacebuilding programming term comprehensive programmes aimed at systemic
at design, implementation and monitoring stages. changes. Without such systemic changes to facilitate
and enable political participation, economic security
• Gender ministries or national institutions for the and physical safety, women and girls will not be able
advancement of women, women parliamentarians and to realize their potential as individuals, as well as active
gender caucuses, and women’s organizations should contributors to peacebuilding and development.
182 Chapter 7. Building Peaceful Societies

RECOMMENDATIONS

Moving progress beyond 2015: Proposals for action

Member States and the UN should: ✓ Develop guidance on post-conflict macroeconomic

policies that take into account gender dimensions,
✓ Ensure that all local level peacebuilding efforts are and prioritize public expenditure to reconstruct vital
preceded by mapping exercises to ascertain what services for women.
programmes are relevant for communities affected by
war, and which will most effectively empower women. ✓ Design economic recovery programmes and
There should not be a one-size-fits-all policy. macroeconomic policies in a gender-responsive
manner and evaluate their impact on women’s
economic security and human rights.
WOMEN’S ECONOMIC EMPOWERMENT
FOR PEACEBUILDING
Member States should: Member States and the UN should:

✓ Consult with local women leaders, including ✓ Make effective and meaningful participation
women’s human rights defenders, on concessions of women in decision-making and planning a
agreements negotiated as part of post-conflict condition of any UN-supported economic recovery
reconstruction efforts, and ensure a minimum programme.
level of 30 per cent women’s representation in
all decision-making bodies with regards to the ✓ Design, implement and monitor economic recovery
country’s natural resources. programmes and macroeconomic policies in a
gender-responsive manner, and evaluate them for
their impact on women’s economic security.
The UN should:

✓ Design programmes for economic recovery that WOMEN IN POST-CONFLICT GOVERNANCE

target women’s empowerment, challenge rather Post-conflict Member States should:
than entrench gender stereotypes and are forward
looking on the transformative role women can play ✓ Adopt legislative and policy measures to eliminate
in an economy for the future. discrimination against women in the political
and public life of the country, and to ensure that
✓ Design programmes with meaningful participation women have equal opportunities to participate in
and end-benefit in mind for rural women, widows the new, post-conflict structures of governance.
and female heads of households. This includes the adoption of temporary special
measures to accelerate achievement of gender
✓ Develop and use gender-sensitive tools that would equality in all decision-making posts.
map and analyze local contexts and markets to
implement livelihood activities that are locally ✓ Establish quotas for women of a minimum of
relevant, conflict sensitive, and that empower 40 per cent of service delivery employment
women instead of further pushing them into poverty. opportunities at local level.
 183

✓ Provide women and girls with identity documents Member States and the UN should:
as a matter of priority during and after conflict,
in order to register to vote, access land and ✓ Provide leadership capacity-building opportunities
avail themselves of social services and benefits, to national and local women leaders.
including education and health services.

 ✓ Adopt service delivery measures that specifically SSR AND DDR

target women and take into account the often- Member States should:
disproportionate burden that women face in
caregiving responsibilities, including child grants ✓ Incorporate a gender-sensitive approach in
for households; education incentives for girls; SSR and DDR, ensuring that not only are these
free and accessible healthcare of good quality, responsive to women’s particular experience of
including sexual and reproductive health, for conflict, but that women fully participate, and their
pregnant mothers and young children; and other rights and perspectives are adequately addressed.
measures designed to alleviate the burden of
unpaid work and family care.
✓ Develop and implement strategies to increase
participation and leadership of women within
armed forces, police services, defense institutions,
The UN should: the penal system and the judiciary.

✓ Continue to ensure that technical assistance ✓ Ensure that security sector reform fosters family-
to post-conflict elections includes advice on friendly and non-discriminatory work environments
temporary special measures. Elections basket free of all forms of harassment and violence
funds should allocate a minimum of 15 per cent within the security sector, in order to increase the
of their funding to women’s participation. Elections participation, retention and promotion of female
bodies should be supported to develop capacity personnel.
in gender-sensitive data collection and the
management of sex-disaggregated data.
✓ Vet candidates for new or re-forming armed and
police services for crimes of sexual violence and
✓ Provide technical assistance to public other violations of international human rights and
administration reform, to assist governments to humanitarian law, giving particular attention to
implement schemes to achieve gender parity in confidentiality and protection of victims of sexual
civil service. violence.

✓ Facilitate grassroots women’s organizations

and women human rights defenders’ access The UN should:
to participate in the planning and delivery of
basic services in crisis contexts, taking into
✓ Include gender analysis and full consideration
consideration the implications for women’s security
of women’s human rights in SSR/DDR planning
and their often disproportionate burdens of care.
and implementation, so that entry requirements
184 Chapter 7. Building Peaceful Societies

do not inhibit women’s access, and that ✓ Engagement should be with the entire spectrum
reintegration opportunities do not further entrench of actors involved in SSR, including customary
harmful gender stereotypes and gender-based and religious leaders, private military and security
discrimination, or violate women’s human rights. companies, security sector oversight actors and
the penal system. They should also engage men
✓ (Department of Peacekeeping Operations) Should and boys to strengthen gender equality within DDR
ensure gender-responsive DDR/SSR are integrated and SSR processes, and prevent and respond to
in mission planning with dedicated funding, human rights violations, including sexual abuse.
gender expertise, and regular reporting on gender-
responsive DDR and SSR in mission reports and
briefings to the Security Council. The UN and other service providers should:

✓ Ensure female uniformed personnel in all UN peace ✓ Ensure reintegration processes respond to trauma
missions participate in the implementation of DDR/ and improve the availability and quality of psycho-
SSR programmes, as they can play a key role in social support services.
confidence-building, especially in screening activities
and providing security in demobilization sites.
Member States, parties to conflict and mediation
teams should:
The UN and Member States should:
✓ Ensure the presence of gender and DDR/
✓ Facilitate the participation of women leaders and SSR expertise in the negotiation of formal
organizations in all stages of DDR/SSR peace agreements, to make certain that women
participate in DDR and SSR programmes.
 185

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2. “World Development Report 2011: Conflict, Security and with access to income or social benefits are more likely
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5. Women peace advocates and leaders can in fact be 15. “UN Women Executive Director Michelle Bachelet Visits
targets for violence and threats precisely because of Rural Women’s Land Rights Project in Morocco,” UN
their role in challenging the power elites and confronting Women, March 7, 2012, http://www.unwomen.org/en/
potential spoilers. Jacqui True, “Women, Peace and news/stories/2012/3/un-women-executive-director-
Security in Post-Conflict and Peacebuilding Contexts,” michelle-bachelet-visits-rural-women-s-land-rights-
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16. The 2014 report of the Secretary-General on women,
7. “Report of the Secretary-General: Women’s Participation
peace and security reported that only nine per cent
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of landholders in conflict and post-conflict contexts
(United Nations General Assembly, United Nations
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8. Ibid., para. 36. and Peace and Security,” UN Doc. S/2014/693 (United
Nations Security Council, September 23, 2014), para.
9. Fionnuala Ní Aoláin, Dina Francesca Haynes, and 50. For more information about women’s rights to land
Naomi R. Cahn, On the Frontlines: Gender, War, and and other productive resources, see “Realizing Women’s
the Post-Conflict Process (Oxford: Oxford Univ. Press, Rights to Land and Other Productive Resources” (United
2011), 245–248; Graciana del Castillo and Edmund S. Nations Office of the High Commissioner for Human
Phelps, Rebuilding War-Torn States: The Challenge of Rights (OHCHR), UN Women, 2013).
Post-Conflict Economic Reconstruction, 1. publ (Oxford:
Oxford Univ. Press, 2008), 1. 17. Justino, Patricia et al., “Quantifying the Impact of
Women’s Participation in Post-Conflict Economic
10. “Financing UN Security Council Resolution 1325: Recovery,” 23.
Aid in Support of Gender Equality and Women’s
Rights in Fragile Contexts,” Submission to the Global 18. “Final Evaluation of the Gender and Democratic
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19. “The State of Food and Agriculture: Women in
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Agriculture: Closing the Gender Gap for Development”
11. “Secretary-General’s Report on Women’s Participation in (Rome: Food and Agriculture Organization of the United
Peacebuilding (2010),” 3; “Power, Voice and Rights: A Nations, 2011), 5.
Turning Point for Gender Equality in Asia and the Pacific:
20. The increase in the number of female-headed households
Asia-Pacific Human Development Report” (United Nations
in conflict-affected societies is ubiquitous, occurring in
Development Programme (UNDP), 2010).
contexts as diverse as Sudan and Colombia, which both
12. “Declaration: Women’s Economic Empowerment for saw a 30 per cent rise following years of protracted
Peacebuilding,” UN Doc. PBC/7/OC/3 (United Nations conflict. In some cases, female-headed households
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orphans and elderly people, leading to high care and
13. Justino, Patricia et al., “Quantifying the Impact of dependency burdens. For data on the dependency rate
186 Chapter 7. Building Peaceful Societies

in female-headed households and the proportion they 32. “Focus Group Discussion Report for the Civil Society
represent of total households in conflict-affected contexts. Organization (CSO) Survey: Civil Society Input to the
See, Justino, Patricia et al., “Quantifying the Impact Global Study on Women, Peace and Security” (Global
of Women’s Participation in Post-Conflict Economic Network of Women Peacebuilders, ICAN, NGO Working
Recovery,” 13–14. (This figure dates to 2002.) Group on Women, Peace and Security, Cordaid, May
2015), 20.
21. See Yaliwe Clarke, “Gender and Peacebuilding in Africa:
Seeking Conceptual Clarity,” African Peace and Conflict 33. See, e.g., “Investing in Gender Equality for Africa’s
Journal 6, no. 1 (June 2013): 90. Transformation” (African Development Bank Group, Office
of the Special Envoy on Gender, 2015).
22. “General Recommendation No. 30 on Women in Conflict
Prevention, Conflict and Post-Conflict Situations,” UN 34. “World Development Report 2012: Gender Equality and
Doc. CEDAW/C/GC/30 (Committee on the Elimination of Development” (World Bank, 2012), 182.
Discrimination against Women, October 18, 2013), para.
35. Faiza Jama, “Somali Women and Peacebuilding,” in
49.
Women Building Peace, Accord Insight (Conciliation
23. A guidance note developed by UNDP warns of the Resources, 2013).
common risk of reinforcing gender roles through the
36. These countries fall into the top third of States ranked by
choice of employment projects in economic recovery
the Inter-Parliamentary Union based on their percentage
programming, and encourages the identification and
of female representation. Inter-Parliamentary Union,
mitigation of such gender-related risks in the project
“Archived Data: Women in National Parliaments,” May 1,
planning stage. “Emergency Employment and Enterprise
2015, http://www.ipu.org/wmn-e/world-arc.htm.
Recovery,” Guidance Note (United Nations Development
Programme, January 2013), 15. 37. See “Convention on the Elimination of All Forms of
Discrimination against Women,” December 18, 1979,
24. Helen S. A. Basini, “Gender Mainstreaming Unraveled:
3; “General Recommendation No. 25 on Article 4,
The Case of DDRR in Liberia,” International Interactions
Paragraph 1, of the Convention on the Elimination of All
39, no. 4 (September 1, 2013): 548.
Forms of Discrimination against Women, on Temporary
25. Abibatu Kamara, “Sierra Leone News: Women at the Special Measures” (Committee on the Elimination of
Wheel Project Launched,” AWOKO, May 5, 2014, http:// Discrimination against Women, 2004), para. 15–24.
awoko.org/2014/05/05/sierra-leone-news-women-at-the-
38. “CEDAW General Recommendation No. 25 (2004),” para. 22.
wheel-project-launched/.
39. Report of the Advisory Group of Experts for the 2015
26. “UNMAS 2013 Annual Report 2013” (United Nations
Review of the United Nations Peacebuilding Architecture
Mine Action Service, 2013), 13.
40. (2015),” para. 79.Elisabeth Rehn and Ellen Johnson
27. “Resolution 2217 (2015)” (United Nations Security
Sirleaf, “Women, War, Peace: The Independent Experts’
Council, April 28, 2015), para. 33(c).
Assessment on the Impact of Armed Conflict on Women
28. “Violence against Women in Eastern Democratic Republic and Women’s Role in Peace-Building,” Progress of
of Congo: Whose Responsibility? Whose Complicity?” the World’s Women (New York, NY: United Nations
(International Trade Union Confederation, November Development Fund for Women, 2002), 102.
2011), http://www.ituc-csi.org/IMG/pdf/ituc_violence_
41. “Report of the Advisory Group of Experts for the 2015
rdc_eng_lr.pdf.pdf.
Review of the United Nations Peacebuilding Architecture
29. Molly M. Ginty, “Pollution Risks Worse for Developing (2015),” para. 79.
World Women,” Women’s E News, May 20, 2013, http://
42. See, e.g., Christina Wolbrecht and David E. Campbell,
womensenews.org/story/environment/130518/pollution-
“Leading by Example: Female Members of Parliament as
risks-worse-developing-world-women.
Political Role Models,” Am J Political Science American
30. Karen McMinn, “Candid Voices from the Field: Obstacles Journal of Political Science 51, no. 4 (2007): 921–39;
to Delivering Transformative Change within the Women, Lonna Rae Atkeson, “Not All Cues Are Created Equal:
Peace and Security Agenda: Initial Research Findings for The Conditional Impact of Female Candidates on
the Global Study on the Implementation of UNSCR 1325” Political Engagement,” The Journal of Politics 65, no.
(Cordaid, Global Partnership for the Prevention of Armed 4 (November 1, 2003): 1040–61; Lori Beaman et al.,
Conflict, and the Women Peacemakers Program, June “Female Leadership Raises Aspirations and Educational
2015). Attainment for Girls: A Policy Experiment in India,”
Science 335, no. 6068 (February 3, 2012): 582–86..
31. “Women and Natural Resources: Unlocking the
Peacebuilding Potential” (United Nations Environmental 43. “Women Could Make the Difference as Afghanistan Turns
Programme (UNEP), UN Women, United Nations out to Vote - CNN.com,” CNN, accessed June 18, 2015,
Peacebuilding Support Office (PBSO), United Nations http://www.cnn.com/2014/04/07/world/asia/afghanistan-
Development Programme (UNDP), 2013). election-women-influence/index.html.
 187

44. David Dollar, Raymond Fisman, and Roberta Gatti, “Are DAC Handbook on Security System Reform: Supporting
Women Really the ‘Fairer’ Sex? Corruption and Women Security and Justice,” February 25, 2008, sec. 9:
in Government” (The World Bank, October 1999); “Are Integrating Gender Awareness and Equality.
Women Leaders Less Corrupt? No, but They Shake
55. Despite this lesson learned, more recently, the national
Things up,” Reuters, December 4, 2012, http://www.
DDR programme in Central African Republic signed
reuters.com/article/2012/12/04/us-women-leaders-
in May 2015 is also based on the “no weapon, no
corruption-idUSBRE8B306O20121204.
entry criteria,” so many female ex-combatants are at
45. Swanee Hunt, “Let Women Rule,” Foreign Affairs, June risk of being excluded. “Accord Sure Les Principes
2007. de Desarmement Demobilisation Reintegration et
Rapatriement (DDRR) et D’integration Dans Les Corps En
46. Sam Dagher, “Iraqi Women Vie for Votes and Taste
Uniforme de L’etat Centrafricain Entre Le Gouvernement
of Power,” The New York Times, January 29, 2009,
de Transition et Les Groupes Armes,” May 2015, 3;
sec. International / Middle East, http://www.nytimes.
Basini, “Gender Mainstreaming Unraveled,” 544; Dyan
com/2009/01/29/world/middleeast/29election.html.
Mazurana and Khristopher Carlson, From Combat to
47. “Isis Iraq News: Militants Execute Two Female Community: Women and Girls of Sierra Leone (Women
Parliamentary Candidates in Mosul,” International Waging Peace, the Policy Commission, Hunt Alternatives
Business Times UK, accessed June 18, 2015, http:// Fund, 2004), 3.
www.ibtimes.co.uk/isis-iraq-news-militants-execute-two-
56. Sarah Douglas, Vanessa Farr, Felicity Hill, Wenny
female-parliamentary-candidates-mosul-1476656.
Kasuma, “Getting It Right, Doing It Right: Gender and
48. Ana Lukatela, “Gender and Post-Conflict Governance: Disarmament, Demobilization and Reintegration” (United
Understanding the Challenges,” in UN Women Nations Development Fund for Women (UNIFEM),
Sourcebook on Women, Peace and Security (UN Women, October 2004).
2012), 19.
57. Interviews with female ex-combatants in Liberia and Sierra
49. Lukatela, “Gender and Post-Conflict Governance: Leone indicate that the main reasons for low registration
Understanding the Challenges.” in DDR related to lack of access to information, shame,
fear of stigmatization, retaliation, and social exclusion
50. Melissa MacLean, “Realizing Their Needs: Women’s
and weapon removal by their commanders. Women who
Access to Public Services in Sector Decentralization”
had escaped from their armed groups and returned to
(International Development Research Center, n.d.), http://
their families also did not want to associate themselves
www.idrc.ca/EN/Documents/realizing-their-needs-access-
again with their groups through the DDR programme.
public-service.pdf.
See, Basini, “Gender Mainstreaming Unraveled”; Megan
51. Erin McCandless, “Peace Dividends and Beyond: MacKenzie, “Securitization and Desecuritization: Female
Contributions of Administrative and Social Services to Soldiers and the Reconstruction of Women in Post-
Peacebuilding” (United Nations Peacebuilding Support Conflict Sierra Leone,” Security Studies 18, no. 2 (June
Office, 2012), 2. 12, 2009): 241–61.
52. Rebecca Holmes and Nicola Jones, “Rethinking Social 58. Ilja A. Luciak, After the Revolution: Gender and
Protection Using a Gender Lens,” Working Paper (Overseas Democracy in El Salvador, Nicaragua, and Guatemala,
Development Institute, October 2010), 15–18, 36. 2001, 165.
53. “Report of the Advisory Group of Experts for the 2015 59. These are resolutions S/RES/1545, S/RES/1528, S/
Review of the United Nations Peacebuilding Architecture RES/1509, S/RES/1996, S/RES/1590, and S/RES/1542,
(2015),” para. 55. respectively.
54. The African Union (AU) and other regional organizations 60. Basini, “Gender Mainstreaming Unraveled.”
in Africa have also adopted frameworks on SSR that
61. Ibid., 548.
integrate resolution 1325, including for example, the
AU’s Framework on Security Sector Reform. See, 62. Roshmi Goswami, “UNSCR 1325 and Female Ex-
“Policy Framework on Security Sector Reform” (Addis Combatants: Case Study of the Maoist Women of Nepal,”
Ababa, Ethiopia: African Union, 2013); “Operational May 2015, 11.
Guide to the Integrated Disarmament, Demobilization
63. Virginia Bouvier, “Gender and the Role of Women in
and Reintegration Standards” (United Nations, 2014),
Colombia’s Peace Process” (UN Women, April 27, 2015).
205–216; “Gender-Responsive Security Sector Reform,”
in Security Sector Reform Integrated Technical Guidance 64. MacKenzie, “Securitization and Desecuritization,” 254.
Notes (United Nations SSR Task Force, 2012); Megan
65. In Liberia, for example, ad-hoc group counseling was
Bastick and Daniel de Torres, Implementing the Women,
provided to women in cantonment sites, however
Peace and Security Resolutions in Security Sector
psychosocial support only amounted to three per cent of
Reform, Gender and Security Sector Reform Toolkit
the budget and was not sustained during the reintegration
(DCAF, OSCE/ODIHR, UN-INSTRAW, 2010); “The OECD
phase. Basini, “Gender Mainstreaming Unraveled,” 551.
188 Chapter 7. Building Peaceful Societies

66. Jacqueline O’Neill, “Engaging Women in Disarmament, 74. “Afghan Female Police Officer Literacy Rates Improve
Demobilization, and Reintegration: Insights for Colombia” Through Mobile Phone Programme,” UN Police Magazine,
(Institute for Inclusive Security, March 31, 2015), 3; January 2014, 14.
67. Leymah Gbowee, Mighty Be Our Powers: How 75. United Nations Department of Peacekeeping Operations,
Sisterhood, Prayer and Sex Changed a Nation at War. “Connect Online with the International Network of
(Beast Books, 2011). Female Police Peacekeepers,” UN Police Magazine,
January 2014. The United Nations International Network
68. Megan Bastick and Daniel de Torres, Implementing the
of Female Police Peacekeepers also strengthened its
Women, Peace and Security Resolutions in Security
networking through the launch of a dedicated website to
Sector Reform.
promote, strengthen and advance the profile of female
69. “Report of the Office of the United Nations High police in international peacekeeping operations, www.
Commissioner for Human Rights: Analytical Study womenspolicenetwork.org.
Focusing on Gender-Based and Sexual Violence in
76. Tara Denham, “Police Reform and Gender” (Geneva
Relation to Transitional Justice,” UN Doc. A/HRC/27/21
Centre for the Democratic Control of Armed Forces
(United Nations Human Rights Council, June 30, 2014),
(DCAF), UN-Instraw, OSCE/ODIHR, 2008), 18; Megan
para. 59
Bastick et al., “Gender-Sensitive Police Reform in
70. “Gender-Responsive Security Sector Reform.” Post-Conflict Societies,” in UN Women Sourcebook on
Women, Peace and Security (UN Women, 2009), 5.
71. “Progress of the World’s Women: In Pursuit of Justice”
(UN Women, 2011), 59. 77. Bastick et al., “Gender-Sensitive Police Reform in Post-
Conflict Societies,” 5.
72. Aggregates are based on 99 countries for which police
data (2009) are available. Ibid., 60. 78. “Rapport Semestriel Programme Conjoint de Prevention
et Reponse Aux Violences Basees Sur Le Genre En
73. For example, Rwanda has instituted a 30 per cent quota
Guinee” (Peacebuilding Fund, UN Peacebuilding Support
for women in the police force, and as of 2012 had
Office, 2014), 5.
reached 20 per cent. Ricci Shyrock, “Rwandan Police
Force Sees Influx of Female Officers,” Voice of America, 79. “In Timor-Leste Communities Mobilize to Confront
March 26, 2012, http://www.voanews.com/content/ Domestic Violence” (UN Women, April 26, 2013).
rwanda-144435515/180045.html..
80. Ibid.
189
190 Chapter 8. Preventing Conflict

08
 191

PREVENTING
CONFLICT:
THE ORIGINS
OF THE WOMEN,
PEACE AND
SECURITY AGENDA

“Women, peace and security is about

preventing war, not about making war
safer for women.”
Participant at the Asia-Pacific regional civil society consultation for the Global Study
192 Chapter 8. Preventing Conflict

HIGHLIGHTS FROM THE RESOLUTIONS

Resolution 1325
Reaffirming the important role in all efforts for the maintenance
of women in the prevention and and promotion of peace and
resolution of conflicts and in security, and the need to increase
peace-building, and stressing their role in decision-making with
the importance of their equal regard to conflict prevention and
participation and full involvement resolution

2000 2008

Resolution 1820
Urges the Secretary-General Urges the Secretary-General
and his Special Envoys to and his Special Envoys to
invite women to participate in invite women to participate in
discussions pertinent to the discussions pertinent to the
prevention and resolution of prevention and resolution of
conflict, the maintenance of peace conflict, the maintenance of peace
and security, and post-conflict and security, and post-conflict
peacebuilding, and encourages all peacebuilding, and encourages all
parties to such talks to facilitate parties to such talks to facilitate
the equal and full participation of the equal and full participation of
women at decision-making levels; women at decision-making levels
 193

Resolution 2106
Affirms that sexual violence, when used or
commissioned as a method or tactic of war or as
a part of a widespread or systematic attack against
civilian populations, can significantly exacerbate
and prolong situations of armed conflict and may
impede the restoration of international peace and
security; emphasizes in this regard that effective steps
to prevent and respond to such acts significantly
contribute to the maintenance of international peace
and security; and stresses women’s participation as
essential to any prevention and protection response

2013

Resolution 2122
Requests the Secretary-General and his
Special Envoys and Special Representatives
to United Nations missions, as part of their
regular briefings, to update the Council on
progress in inviting women to participate,
including through consultations with civil
society, including women’s organizations,
in discussions pertinent to the prevention
and resolution of conflict, the maintenance
of peace and security and post-conflict
peacebuilding
194 Chapter 8. Preventing Conflict

Throughout history women peace activists from all

over the world have united to try and put an end to
war. Their call for a commitment to peace and for “The adoption of
disarmament has been consistent and universal even
when their own countries were at war. The same was Security Council
true in 2000. When women took their demands for
a women, peace and security (WPS) agenda to the resolution 1325 was
Security Council in 2000, they were demanding that
prevention of war be a key aspect of the Security
indeed a watershed,
Council’s agenda along with a recognition of the and there is much to
capacities of half the world’s population to resolve
the complex challenges of global peace and security. be celebrated with
They were seeking a fundamental shift in how these
this achievement.
goals are secured. Their objective was, at its core, But we also have to
the prevention of armed conflict and a roll back
of the escalating levels of militarization making use it to challenge
homes, communities and nations less rather than
more secure. These concerns and fears continue to the underpinnings
resonate today. During consultations for this Study,
women the world over expressed their conviction
of marketised and
that the United Nations had lost sight of its own militarised international
vision to beat ‘swords into plowshares.’ 1 Over the
years, international actors have increasingly shifted peace and security.”
their attention and resources toward militarized
approaches to security, resolution of disputes and the
Felicity Ruby, Secretary-General of the
hurried and ad hoc protection of civilians in conflict.
Women’s International League for Peace
This is not the ‘prevention’ envisioned 15 years ago.
and Freedom at the time of the adoption of
resolution 13253
It is no coincidence that 2015 saw three major peace
and security reviews underway simultaneously in
the UN system. The institutions and mechanisms
established to make and keep peace are stretched to
capacity, functioning on a multilateral logic of a by- The resort to armed conflict, whatever the underlying
gone era and an over-reliance on mitigation of crises reasons, has disastrous impacts for affected societies.
once they erupt, rather than sustainable, long-term The economic costs, long-term implications for State
approaches to peace and security. The recent High- institutions and normalization of violence with its
Level Independent Panel on United Nations Peace associated effects, are only a few of the ways in which
Operations found that prevention efforts remain “the conflict is felt. Conflict-affected and fragile States have
poor relative of better resourced peace operations been among the poorest achievers of the Millennium
deployed during and after armed conflict.”2 A Development Goals.4 As the report of the Advisory Group
militarized view of conflict prevention sells resolution of Experts for the 2015 Review of the United Nations
1325 short of its transformative vision for a more Peacebuilding Architecture notes, all of the ten worst
equal, just and peaceful world, and neglects a proven performing countries on maternal mortality are either
tool available to achieve this. conflict or post-conflict countries.5 Wars, and the ensuing
organized political and criminal violence and corruption
 195

that accompany them, impede overall economic While these recommendations form an important
development—direct (e.g., infrastructure damage) and starting-point for discussions about prevention as
indirect costs (e.g., reduced tourism) draw substantially a priority, the value added of the WPS agenda is
from state budgets and GDP. In 2014, violence had a its structural assessment and response to conflict
global cost of 13.4 per cent of world GDP—USD14.3 prevention: its assertion that sustainable peace will
trillion.6 Furthermore, as a result of the feminization only be possible when all actors address the root
of poverty globally, the nexus between conflict and causes of conflict and violence, a global political
development lends itself to stark gendered impacts. economy which prioritizes preparedness for war over
peace, continuities in violence and insecurity which
This Study is not suggesting that military responses do not are evidenced particularly through the experiences of
have their place in the global lexicon of protection. However, women and girls and the growing role of factors such
it cannot be denied that the international community has as climate change and natural resource control in
been too slow to put in place effective early warning and creating insecurity.
prevention measures or address root causes even where
they are apparent, and too quick to react to crises with an
armed response. An attitudinal shift is needed away from a APPROACHES TO CONFLICT PREVENTION
primary focus on military responses, towards investment in
peaceful conflict prevention strategies. Approaches to conflict prevention are generally grouped
into two categories oriented toward:10
The two concurrent reviews of UN peace and security
have both made similar findings. The High-Level (i) Operational, or short-term practical strategies; and
Independent Panel on United Nations Peace Operations
has stated that, “the prevention of armed conflict is (ii) Structural, or long-term prevention.
perhaps the greatest responsibility of the international
community and yet it has not been sufficiently invested Both categories would benefit from greater integration of
in.”7 The report of the Advisory Group of Experts for the women, peace and security agenda.
the 2015 Review of the United Nations Peacebuilding
Architecture underscored that while militarized responses
to conflict “can prove effective in the immediate context Operational (short- and medium-term)
of violence, they tend to address symptoms rather than approaches: prevention and preparedness for
root causes.”8 It also noted that the limited attention potential violence
by the UN to both the prevention and recovery ends of
conflict has been described as an ‘inverted U’—in which Operational, or medium- and short-term approaches
there is “little effective UN attention to prevention, great to conflict prevention encompass the adoption and
attention to crisis response (though still frequently less execution of practical strategies that monitor and
than is needed), and again relatively little in the recovery prepare for the potential for conflict, and ensure a
and reconstruction phase.”9 swift response where violence erupts. Operational
prevention includes strategies such as early warning
Both reports go on to make a number of important and response, preventive diplomacy, peacekeeping,
recommendations which seek to strengthen the UN’s and the use of information and communications
ability to prevent conflict through short- and medium-term technology (ICT). Although integration of gender
strategies, including: increased attention, resources and as a category of analysis, and the use of women-
coordination for mediation within the UN system; earlier led or informed strategies of early warning and
UN engagement to address emerging threats to peace conflict resolution are proven tools to strengthen the
and security; and convening key stakeholders to bring effectiveness of conflict prevention measures, they
attention to early conflict prevention priorities. have to date only rarely been incorporated.
196 Chapter 8. Preventing Conflict

FOCUS ON

UN tools for conflict prevention

In its report, the High-Level Independent Panel on United the Department of Political Affairs recommended that senior
Nations Peace Operations called for decisive and far- leadership do more to ensure that PDAs recognize gender
reaching change across four areas of the work of peace mainstreaming as an essential part of their responsibilities.15
operations, the first of which is a demand for the UN to Further, an independent assessment of the PDA programme
bring conflict prevention and mediation back to the fore.11 found that women are under-represented, filling just 6 of 34
The UN already has a number of tools working alongside PDA posts.16
peacekeeping and special political missions which relate
to prevention and mediation—among them, the Good The Secretary-General launched the Human Rights up
Offices of the Secretary-General, Peace and Development Front (HRuF) initiative in late 2013, with the goal of
Advisors, and the Human Rights up Front initiative. ensuring that the UN system takes early and effective
action, as mandated by the Charter and UN resolutions,
The Good Offices of the Secretary-General is an to prevent or respond to large-scale violations of human
important avenue for conflict resolution through preventative rights or international humanitarian law. As the UN works to
diplomacy. Its use has intensified and expanded over the implement it—including through its senior advisory group—
past 15 years, and successive Secretaries-General, their it must ensure that gender analysis is integrated into all
envoys and senior Secretariat officials have attempted to areas of action, and that recommendations pay particular
mediate virtually every major armed conflict on the UN’s attention to promoting and protecting women’s human
agenda.12 As discussed in this report in Chapter 10: Key rights. Also important is a gendered understanding of the
Actors, the United Nations must do more to ensure that human rights violations which are monitored to trigger a
women occupy senior leadership positions, including response by the system.17
relating to the Secretary-General’s Good Offices, where
women currently serve in only 4 out of 18 appointments. All three peace and security reviews undertaken by the UN
this year highlight the critical need for greater investment
The UN’s Peace and Development Advisors (PDAs)13 in prevention strategies, including through monitoring and
work in support of UN Resident Coordinators and Country analysis. Implementation of these should consider however
Teams to develop and implement conflict prevention that whichever violations are monitored, and whomever
programmes. They pursue sustainable strategies which build is consulted to inform design, analysis and response, will
upon the capacities of national actors to carry preventative directly affect the strength of efforts and their impacts. In
and peacebuilding work forward.14 PDAs are also tasked with this regard, women’s differential experiences of conflict
integrating the women, peace and security agenda into their lend themselves to different sources of information and
conflict prevention work. The extent to which this is taken identification of early warning trends, providing a concrete
on board seems to vary however, and an internal review for tool to strengthen conflict prevention and mitigation.
 197

We […] call on the

Security Council and
all actors to focus
on gender-sensitive
disarmament and
conflict prevention,
including early warning.

Rhoda Misaka, a founding member of the South Sudanese

Diaspora Association, and member of EVE Organization for Women
Development, at the Security Council Open Debate on Sexual
Violence in Conflict, 2014
198 Chapter 8. Preventing Conflict

Early warning to capitalize on their knowledge. This includes ensuring

that women are consulted during the formulation of early
Gender-sensitive analysis of conflict can reveal warning systems and that there are specific channels
otherwise unseen conflict drivers and triggers, and for women to report information to the central data
women’s participation is a key avenue to strengthening collection site. Where there are barriers in literacy or
effectiveness. Women can help identify changing ICT skills, efforts should be made to ensure that women
dynamics in grassroots, familial and community level are trained, or have alternate avenues for reporting.
relations that may contribute to national level tensions, Women’s organizations in particular can be instrumental.
which might not otherwise be identified. For instance, They often have key insight into changing gender
women and girls can observe changing patterns in power relations, and specific changes to freedoms
time-allocations spent by men and boys (e.g., training available to women, as well as knowledge of changes
clandestinely), and in the hiding of arms caches in to rates of gender-based violence, and to patterns of
homes and community centers. Studies in Kosovo men’s behaviors inside and outside of the home. They
and Sierra Leone found that women in those contexts should therefore be engaged in roles that allow them to
had valuable information about the accumulation of maximize the impact of these valuable insights within
weapons and violent attacks being planned, but had existing mechanisms.
no means of reporting or sharing this information.18
Early warning mechanisms and indicators must be
The continuum of gendered violence in women’s gender-sensitive. Effective early warning systems
lives also means that when there are rising levels are those that ensure equal participation of men and
of insecurity in society more broadly, women may women in the conception, design and implementation of
be the first to be affected. Rising tensions can result early warning measures. The development and use of
for instance, in restrictive freedom of movement for indicators that are gender-specific, as well as indicators
women, increased risk of assault in public areas, and that are sex-gender specific is critical. Examples of
women’s inability or lack of willingness to access fields gender-sensitive early warning indicators include:
and gardens due to threats. Similarly, increasing levels
of domestic violence and the specific vulnerability of • Sex-specific movement of populations.
women to gender-based violence within and outside the
home often reflect growing tensions and militarization • Increase in female-headed or male-headed
in society as a whole. These specific issues can households.
be valuable indicators and sources of information if
captured as elements of early warning mechanisms for • Increased harassment, arrest and interrogation of
preventive action, including for the prevention of conflict- civilian men by security forces.
related sexual violence. A three-pronged approach that
promotes the inclusion of women in early warning, the • Changes to patterns of gender roles; e.g., men
development of indicators that are gender sensitive, occupied with political activities, women take over
and the development of indicators that are specific to more of the productive role of the household.
gender-based violations impacting women, increases
the effectiveness of our conflict prevention efforts. • Hoarding of goods, lack of goods on the local
markets.

Overcoming the exclusion of women and girls • Training in weapons for men, women and children
from early warning is critical. at community levels.

Conflict prevention methods are improved through • Propaganda, news stories, programmes glorifying
directly engaging with women and providing avenues militarized masculinities.
 199

• Resistance or curtailment of women’s involvement to identify early warning signs to solve community
in marketing and trade, in public community conflicts and lead campaigns to prevent sexual and
discussions. gender-based violence.20 Additionally, the peacekeeping
mission established a 24/7 hotline, the distribution of
• Increased numbers of meetings by men communication equipment to high-risk communities,
for men. and collection and analysis of information in the
mission’s operations centers. Early warning indicators
• Random and arbitrary detention of men. of conflict in Jonglei state, for example, include unusual
movement of all-male groups, rising bride-price and an
These kinds of indicators may be included in multiple increase in pregnancy terminations, among others.
models of early warning systems and within the policy
that informs state-level preparedness and planning. In A Conflict Early Warning and Response (CEWARN)
the Solomon Islands in 2005, UNIFEM (predecessor to Mechanism was developed by the Intergovernmental
UN Women) supported the development of a project— Authority on Development (IGAD), a regional
“Monitoring Peace and Conflict Using Gendered organization which brings together seven countries of
Early Warning Indicators”—which identified indicators the Horn of Africa: Djibouti, Eritrea, Ethiopia, Kenya,
to reflect the experiences of both men and women Somalia, Sudan and Uganda.21 CEWARN receives
with regards to long-term effects of unresolved land and shares information on the basis of indicators that
disputes; to examine women’s role in ‘gun-free village’ monitor potential points of tension, many of which
programmes, and to monitor media content reflecting are gender-responsive and enable effective gender-
women’s experiences and concerns.19 The model used sensitive early warning to take place.22 CEWARN’s
discussions with community members to elicit men and early warning reports provide highlights on the impact
women’s views separately, ensuring the inclusion of of pastoral and related conflicts on women and girls;
both men and women as monitors. incorporate indicators that capture the role of women
in peacebuilding or promoting violent behavior; train
In South Sudan, UNMISS supports the Community field monitors on gender issues; and include gender-
Women Peace Dialogue Forum, which engages women related questions and indicators in their field surveys.23

FOCUS ON

Community-based approaches to early warning

The Dutch foundation Cordaid has developed a training on how to collect relevant data, which Cordaid
community-based participatory approach to early then captures and analyses in a centralized database,
warning, called the “barometer of local women’s and shares with local, national and international
security,” which has been implemented in seven decision makers. Early results of the project indicate
conflict-affected countries and territories. To create that the Barometer bridges the gap between policy
the Barometer, Cordaid works with local women to makers and local women, and equips women with
define what security means to them, and the indicators a voice in the daily peace and security of their
which should be used to measure it.24 Women receive community.25
200 Chapter 8. Preventing Conflict

FOCUS ON

Monitoring for gendered violence:

The UN Action “Matrix of Early Warning Indicators of Conflict-Related Sexual Violence”

Specific systems that monitor for gendered violence emergency; and disappearance of girls reported
are critical not only to the prevention of conflict, by family or law enforcement officials en route to/
but to the prevention of conflict-related sexual and from schools in areas where arms bearers are
gender-based violence. The UN Action “Matrix of present.
Early Warning Indicators of Conflict-Related Sexual
Violence,” developed in 2011 for use by actors • Political and legal factors: such as violent,
involved in protection in humanitarian settings is unconstitutional changes of power; permissive
an example of one tool for monitoring.26 The matrix or encouraging rhetoric about rape and
establishes a clear set of indicators that signal justifications for sexual violence voiced by
potential, impending or ongoing sexual violence. It political leaders; and women candidates and
enables ample preparedness planning by protection voters in an electoral process targeted for
actors, as well as rapid response to risk factors for violence, including psychological, sexual and
conflict-related sexual violence. physical violence.

Indicators include: • Economic factors: drop in the price of arms or

increase in supply; inflation and food insecurity;
• Military and security factors: armed groups and increased reports of women’s involvement
rewarding or indoctrinating aggressive, hyper- in the shadow war economy, e.g., trafficking,
masculine behavior; combatants operating prostitution.
under the influence of drugs or alcohol; and the
placement of military bases or encampments in • Media factors: increased signs of media
close proximity to civilian centers. repression and restrictions on freedom of
expression; public incitement to sexual violence,
• Humanitarian and social factors: changes in including by reference to past violations against a
the mobility patterns of women and girls (such community/group to justify future attacks;
as their sudden absence from schools or market-
places otherwise unexplained by contextual or • Health factors: increase in requests for
seasonal factors); an increase in female-headed HIV/STI testing; increase in women seeking
households due to an absence of men from clandestine abortions; and increase in female
communities, or to an increase in the number of prison population and in reports of women/
women rejected by husbands and communities; girls subjected to torture and other forms of ill-
mass displacement due to insecurity or treatment.
 201

Early warning mechanisms should specifically capture are also increasingly being used to improve physical
gender-based violations. Monitoring of violence should security and work toward conflict prevention and
ensure that women and girls have safe outlets to peace. Drones for example, are being used in post-
report violence, and follow-up response services when disaster humanitarian response (and have potential
they do. As noted above, rising levels of domestic for post-conflict response), as a means to safely reach
violence in particular may be an indicator of rising victims in need of assistance before humanitarian first
levels of violence more broadly, and increased risk responders can reach them. In the DRC, MONUSCO
and vulnerability to assaults outside the home have has used unpiloted aircraft to track migration and the
also been found to be indicators of incipient conflict. movements of civilians being pushed from their homes
Women and women’s organizations will likely have the in attacks.29 They have also instituted a programme
most accurate information on growing levels of these to provide women with mobile phones and SIM cards
kinds of violations, and should be connected to formal as part of a gender-sensitive early warning system,
early warning mechanisms. Indicators should also thus giving affected populations direct access to
explicitly cover gender-based violations, including for the UN’s available protection resources.30 In remote
example: stretches of the Amazon, the Wapichana indigenous
community of Guyana has partnered with the NGO
• Sex-specific violations: increased reports of rape Digital Democracy to create an early warning system
and domestic violence; trafficking and abductions; that monitors illegal forestry and gold mining taking
gender-motivated killings and disappearance of men place on their land and threatening their environmental
and women. security.31

• Increased control of women’s public movements, Internet social media platforms such as Facebook and
dress, agency, growth in fundamentalist views of Twitter provide channels to raise awareness about
women. reports of violence, engage in dialogue with women
globally, and spread knowledge of women’s diverse
In Timor-Leste since 2009, the NGO BELUN has roles in different societies. Online platforms are being
coordinated a national early warning and response used to crowd-source information on documented
system.27 It tries to maintain a gender balance instances of violence against women, in some cases
among its community-based monitors, collects sex- mapping reports of sexual violence or harassment
disaggregated information in their situation and against women to demand accountability for tackling
incident forms, and report on indicators specifically the problem, like the Women Under Siege project in
related to gender-based violence in periodic Syria.32 Satellite technology is enabling peacekeepers
monitoring reports. to respond in more targeted and effective ways to
sites of violence or anticipated violence; this same

USE OF TECHNOLOGY

More than one third of the world’s population was online

by 2011, and developing countries accounted for 63 Rising levels of domestic
per cent of all users, with rates of growth faster than in violence in particular may
developed countries.28 This increased access globally
points to the potential technology has to be a widely
be an indicator of rising
accessible avenue for conflict prevention efforts. levels of violence more
broadly.
What is already apparent is that just as new
technologies are being leveraged to wage war, they
202 Chapter 8. Preventing Conflict

technology also facilitates evidence collection for lives; lack of time; concerns over physical security;
intervention and prosecution with respect to attacks on lack of the technical knowledge to operate a particular
communities, described in Chapter 5: Transformative technology; fear of ridicule or social censure; lack of
Justice. access to some types of connectivity; and content
that does not respond to their interests and needs.
New mobile technologies are being developed Each of these barriers must be addressed to maximize
specifically for the purpose of strengthening women’s technology’s potential to improve women’s and girls’
security in conflict. Some smartphone applications physical security and prevent conflict. Sustainable
are being created to help civilians identify potential Development Goal 5, indicator 5(b), will be a
dangers in their surroundings, and connect people critical tool in this effort, as it calls for States
with nearby allies. to enhance the use of enabling technology,
in particular information and communications
technology, to promote the empowerment of
Barriers to women’s access to technology women.37

It is important to acknowledge however, that in

furthering the use of information and communication COMMUNITY-LEVEL MEDIATION,
technologies (ICT) in conflict prevention, there are DISPUTE RESOLUTION AND CONFLICT
key access and control concerns to be considered MITIGATION MECHANISMS
for women and girls. What technology women access
and how, on an individual and collective basis, Women’s situation rooms
varies greatly, often corresponding with pre-existing
barriers to their access to power and resources such Women’s civil society organizations in several
as language, education and affluence.33 In low and countries have joined forces to prevent and mitigate
middle-income countries, women are 21 per cent less incidents of violence against women in elections
likely to own a cell phone than a man.34 This number through awareness raising and mediation. Women’s
is 23 per cent in Africa, 24 per cent in the Middle East Situation Rooms (WSR) have been established
and 37 per cent in South Asia,35 and further stratified in a number of African countries to monitor and,
over the rural/urban divide. where possible, prevent or mitigate the eruption
and escalation of election-related violence by
Equally, while a global study found that 93 per engaging stakeholders in constructive dialogue and
cent of women felt safer and 85 per cent felt more peace advocacy in the lead up to, during and after
independent because of the security offered by owning elections.38 WSRs facilitate this engagement among
a mobile phone,36 in already insecure a broad range of actors from grassroots to national
contexts technology can in fact place women at levels, including young people, the media, political
greater risk. This is particularly the case for women and government leaders, private sector officials and
human rights defenders and journalists whose work religious and traditional leaders. While WSRs are
and personal lives can be subject to online attacks organic and adapt to the specificities of each national
and monitoring—a factor which is analyzed in greater context, these forums generally encompass preventive
detail in the section on the media in Chapter 10: Key diplomacy activities; civic education; facilitation of
Actors. dialogue and advocacy; and training and deployment
of female observers to monitor elections country-wide.
Beyond economic barriers, other reasons why women They also seek to raise awareness about incidents
and girls remain distanced from new technologies of violence and intimidation against women in the
include: lack of awareness of how ICTs can affect their electoral process.
 203

For the period preceding the election, a temporary and strategizing across regional borders. As this
physical “Situation Room” (a central coordination strategy involves the creation of a central monitoring
center) allows key women leaders and organizers, system based on reports from a wide network of trained
analysts and other stakeholders to gather and observers, more analysis is needed to determine the
coordinate strategies and inputs. Real-time analysis reliability and effectiveness of the reporting system.
of information reported by the observers and the Amidst such ongoing efforts to examine the effects of
media also takes place. Where relevant, information WSR on violence prevention, what has already become
is relayed to police and other stakeholders so that evident however, is that they serve as an important
appropriate action can be taken. Situation Rooms also forum for awareness-raising and solidarity-building
bring together prominent women leaders from within among women and with different stakeholders, with a
each country and neighboring countries, demonstrating clear message to uphold peace and mitigate political
solidarity, and providing opportunities for coordination violence.

FOCUS ON

Women’s Situation Rooms: Experiences from three countries

WSRs have now been employed in elections in Kenya Nigeria

(2013), Liberia (2011), Nigeria (2011, 2015), Senegal During the 2015 Presidential and Senatorial elections
(2012) and Sierra Leone (2012). WSRs operate in a toll-free hotline was created and run by 40 trained
context specific ways, illustrated through some of the operators who responded to calls by the general populace
examples here: (particularly reporting on constraints of women’s voting
rights). Over 300 female monitors were trained and
Kenya deployed to ten states. Political, legal and media analysts,
Ahead of the 2013 general election, women’s civil police and representatives of the Independent National
society organizations established a WSR in Nairobi Electoral Commission (INEC) were able to exchange
led by a team of Eminent Women from Tanzania, information and cooperate through this initiative.40
Uganda, Nigeria and Liberia.39 500 observers were
trained and provided reports from across the country. Senegal
Over 554 incidents were recorded including reports A WSR was established during the 2012 presidential
of threats to candidates and voters, and general voter elections by The Women’s Platform for Peaceful
complaints. As cases were addressed, the mechanism Elections.41 More than 60 women were trained and
contributed to a de-escalation and mitigation of deployed country-wide as monitors.42 During the elections,
violence. monitors reported incidents to the Situation Room and
information was relayed to the police, the electoral
commission and other stakeholders.
204 Chapter 8. Preventing Conflict

Building peace at the grassroots level The presence of strong women’s networks, committees
and groups working at the grassroots level means
Women’s civil society and community-based that women have important experience as community-
organizations are developing deliberate peacebuilding level mediators and social mobilizers, and can play
strategies and advancing critical conflict prevention a key role in more formal mediation processes when
methods at the grassroots level—efforts which have presented with opportunities for inclusion.50 Teresita
been recognized by the Security Council in resolutions Deles, the Presidential Advisor to the Peace Process
including 2171 (2014),43 and in the review of United in the Philippines, the late Dekha Ibrahim from Kenya,
Nations peacebuilding architecture.44 In Liberia, Palava and Shadia Marhaban, the former negotiator for the
or ‘Peace Huts’ have been established as safe spaces GAM rebel group in Aceh, are examples of women
where women can come together to mediate and who are internationally renowned as mediators, yet
resolve community disputes, including incidents of started their work as community organizers and local-
gender-based violence.45 Peace Huts are traditionally level peacemakers. External actors can support the
a means of addressing individual grievances in the work of such women by providing safe spaces for
community, and their new more inclusive role has been women to participate in all mediation processes, from
supported by the Liberia National Police who have the local, to the national, regional and international.
provided cell phones so that calls can be made to a States, the United Nations, and civil society must
free help-line. Further, Peace Huts are becoming more create partnerships to build infrastructures for peace,
inclusive of men and boys’ efforts to combat gender- including opportunities for women of all ages and
based violence, as evident in the creation of ‘anti-rape’ from different groups to constructively interact to
football clubs and focus groups for male leaders. address the causes of tension and conflict within their
Peace Huts have also been integral in the mediation of communities.51
disputes over extractives; in 2012 Peace Hut women
set up a roadblock to protest logging taking place in
Gparpolu County.46 The women’s activism resulted STRUCTURAL PREVENTION:
in the sacking of the Minister of Forestry and much ADDRESSING THE FOUNDATIONAL
higher scrutiny on the concession agreements with ROOTS OF WAR AND MILITARISM
extractive industries.
Structural or longer-term approaches to preventing
In some areas in Colombia, ‘peace communities,’ armed conflict address the underlying causes of war
have been formed which declare their area and and violence. They aim to bring about a reduction
population ‘neutral’ and free from armed conflict, and in the potential for armed or political violence over
which set demands on combatants to not draw these time and promote nonviolent means to address acute
communities into violence. Women are critical leaders need and rights entitlements. They include efforts to
in this movement.47 The Association of Organized address structural inequality and violence, promote
Women of Eastern Antioquia (AMOR) directly human rights and human security, and engage in de-
negotiated with armed factions to secure a temporary militarization, disarmament and reduction in spending
humanitarian accord that enabled freedom of on armaments.
movement for communities.48 In Sudan, the Sudanese
Women Empowerment for Peace (SuWEP) movement Global military spending in 2014 (USD 1.7 trillion)52
developed a “Minimum Agenda for Peace” to promote is almost thirteen times higher than development
peace across Sudan and South Sudan.49 Operating aid allocations from OECD-DAC member countries
across both jurisdictions, the movement included (approximately USD 135 billion).53
initiatives such as public hearings on women’s views
on the context, training in conflict resolution and The report of the Advisory Group of Experts for the
mediation, and broader and multiple peace advocacy 2015 Review of the United Nations Peacebuilding
strategies. Architecture offers important insight into the drivers
 205

grievances,55 and how climate change, environmental

degradation and population growth are adding new
“It has been very hard complexities to the understanding of global security.56
Most usefully, the review of UN peacebuilding
to move the focus from architecture offers insight into possible solutions to
these seemingly intractable root causes of conflict—an
prevention of violence approach to conflict prevention which views peace

against women to as inextricably linked with development and human

rights. Mirroring this approach, the 2030 Sustainable
prevention of conflicts.” Development Goal on peaceful and inclusive societies
is premised on the common understanding—developed
over the past fifteen years of lagging achievements on
Respondent to the civil society survey for the the millennium development goals for conflict-affected
Global Study, based in Australia countries—that human rights, peace and development,
the three pillars of the UN’s work, are indivisible and
interrelated; one cannot be achieved without the
others.57

and structural causes of conflict, analyzing a range of In consultations for the Global Study, participants
factors, from extremism and organized crime to the echoed this understanding that peace will be
proliferation of small arms and light weapons, weak neither achievable nor sustainable without equitable
governance institutions and corruption.54 The report and inclusive development, and the recognition of
highlights how social and economic deprivation, the full range of human rights. Though the terms
coupled with historical exclusion, can animate ‘discrimination’ and ‘oppression’ may no longer be

Total military expenditure by region (Total USD billion, 2011 constant prices and exchange rates)58

1800

1600
Central America & Caribbean
1400 Sub-Saharan Africa
North Africa
1200
Central Europe
Oceania
1000
Central & South Asia
800 South America
Eastern Europe
600
Middle east
East Asia
400
Western Europe
200 North America

0
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
206 Chapter 8. Preventing Conflict

popular in international reports, in many societies

exclusion and the violation of rights is systematic,
violent and reprehensible and the result of a
deliberate and vicious political will. They require moral
Recent large-scale
condemnation. With this understanding in mind as research projects are
a cause of immediate concern, three further themes pointing to the fact that
also emerged as core to the WPS agenda’s approach the security of women
to conflict prevention: addressing local and global is one of the most
inequalities; the connections between small arms,
crime, violence and gender; and climate change and
reliable indicators of the
natural resource scarcity. peacefulness of a state.

Addressing local and global inequality

From Kosovo, where unequal access to social services $2/day.64 This leaves women both more vulnerable to
has fueled inter-group hostility, to Yemen, where violence and insecurity in their lives as well as less
political exclusion has underpinned destabilizing able to mitigate the impacts of this violence.
protests and violence,59 it is clear that inequality—
economic, political, social and cultural—heightens
group grievances and can lead to conflict. States GENDER AND CONFLICT
with high levels of inequality are more likely to be PREVENTION
overthrown by unconstitutional or forceful means,
including politically motivated violence and terrorism.60 Under the WPS agenda, the conflict prevention pillar
makes critical linkages between the prevention of
While inequality has always been among the key armed conflict itself, and the prevention of gender-
drivers of conflict—recognized by sources as diverse based harms that precede and result from political
as Aristotle and the UN Charter—today there is cause violence.65
for growing alarm. The World Economic Forum listed
deepening income inequality as the number one trend Growing evidence-based research is showing that
of concern in 2015,61 and in almost all countries, states that have higher levels of gender equality
the mean wealth of the wealthiest 10 per cent of (political, social and economic) are less likely to
adults is more than ten times median wealth. For the resort to the use of force in relation to engagement
top percentile, mean wealth exceeds 100 times the with other states. Domestic inequality for women—
median wealth in many countries, and can approach where a hierarchy of inequalities are evident within the
1000 times the median in the most unequal nations.62 state—is also associated with a foreign policy that is less
tolerant of other states and more likely to be belligerent
For women, income inequality is exacerbated through in its international relations.66 Similarly, recent large-scale
structural inequalities that lead in all contexts to a research projects are pointing to the fact that the security
feminization of poverty. As of 2007, roughly 20 per of women is one of the most reliable indicators of the
cent of women were below the $1.25/day international peacefulness of a state.67 Where peace is understood as
poverty line, and 40 per cent below the $2/day mark.63 being more than simply the absence of armed conflict,
Girls and young women also suffer disproportionately gender inequality—whether in relation to equal legal
from poverty, as more than one-quarter of females status for women, sex-selective abortion and infanticide,
under the age of 25 were below the $1.25/day or the deliberate targeting of women for gender-based
international poverty line, and about half on less than harms and murder—globally becomes a key indicator
 207

of a pre-conflict concept of security skewed in favor of populations. However, the roots of this violence remain
men and toward the state. Effective conflict prevention common. As noted by Zainab Hawa Bangura, Special
must therefore start from an understanding of the broad Representative of the Secretary-General on Sexual
and deep insecurities that permeate women’s lives Violence in Conflict, “[I]f you don’t protect your women
prior to conflict, and the ways that pre-conflict structural in times of peace, you will not be in a position to protect
inequality can facilitate violence and insecurity. them in conflict. Obviously, the issue of sexual violence
does not happen by accident, it is related to the structure
Militarism and cultures of militarized masculinities create of the society and community.” The prevention of
and sustain political decision-making where resorting to violence against women in conflict rests squarely with the
the use of force becomes a normalized mode for dispute need to prevent violence against women before conflict—
resolution. Militarism also metastasizes, taking on forms and above all, to prevent conflict, itself.
outside of traditional armed conflict. In consultations for
the Global Study, participants identified the various ways Importantly, the continuum of gender-based
in which their lives had been militarized: through military violence across contexts underlines the false
support to extractive industries in Asia; the ‘war on drugs’ distinction between the private and political
in Latin America; militarized anti-migration initiatives in spheres, and between conflict and peace. It points
Europe; and of course, the global ‘war on terror.’ to the need for specific attention to and treatment of
gender-based violence as a crucial element in conflict
Massive funding gaps remain on broad human security prevention. In the occupied Palestinian territories,
needs and measures, particularly women’s and girls’ women reported increased levels of violence within the
empowerment, reproductive health and rights, health home as a result of increased violence outside of the
and education.68 Accounts from Cambodia, Costa Rica home.73 In Ethiopia, rising levels of domestic violence
and Sri Lanka provide positive examples of reductions were observed prior to the conflict with Eritrea.74 In the
in spending on security and the military which have Yugoslav wars, cross-ethnic rape of women escalated
effectively redirected financing into social programmes,69 prior to the conflict, and women fled on this basis six to
but overall, there is an imbalance in investment towards eight weeks before the conflict erupted.75 In Rwanda, as
the military apparatus rather than peace and prevention early as 1990, extremist Hutu media began to target Tutsi
efforts.70 Critically, militarism serves to uphold and women, depicting them as spies and a threat to Hutu
perpetuate structural inequalities that in turn operate society, including via pornographic material.76 Each of
to disenfranchise women and girls from public goods, these is equally an example of early warning indicators
entrench exclusion and marginalization, and create the that were simply neglected, owing to the false distinctions
ingredients for a platform of broader inequalities that created between what is deemed the personal versus the
increase the potential for violent conflict to occur. political.

Women’s experiences of gendered violence manifest Instead of viewing women’s and girl’s experience of
within and outside of armed conflict, but with continuities a continuum of violence during ‘armed conflict’ and
and relations between them. The WHO estimates that ‘peace’ as distinct moments, it is the commonalities
35 per cent of women globally have experienced some between both contexts that must be recognized. What is
form of sexual or physical assault.71 This violence is certain is that pre-conflict social, political and economic
often aggravated by conflict, leading to patterns of sexual systems are not gender-neutral, and the potential for the
and gender-based crimes during conflict, and escalated eruption of political violence is infused with a common
rates of violence against women across societies after gendered dynamic. Prevention strategies necessarily
conflict.72 The use of sexual violence during conflict can require stronger recognition and understanding of
represent a dramatic departure in form and patterns from the depth of the influence of gender norms, gender
peacetime, as these atrocities may in fact be employed relations and gender inequalities on the potential for the
as a tactic of war and terror against members of target eruption of conflict.
208 Chapter 8. Preventing Conflict

“In this country, a young

woman cannot walk on
the street without fear.”

Participant at the El Salvador civil society

consultation for the Global Study
 209
The connections between arms, crime, violence experiences of gendered violence within and outside
and gender of conflict. The overall availability of small arms has
significantly broadened the impact of these weapons
Small arms, and their proliferation, are a direct today. The value of the global trade in small arms and
outcome of the militarization of so-called peaceful light weapons almost doubled between 2001 and
societies. Whether in societies that have never 2011, from USD 2.38 billion to USD 4.63 billion.77
experienced armed conflict, or in those that have
endured periods or cycles of conflict, the availability In the aftermath of conflict, as state institutions and
of small arms inhibits efforts to prevent armed regulations are being established and conflict-related
violence and contributes to the escalation of lethal weapons remain in wide circulation, the easy access to
violence. Access to such weapons intersects directly small arms places women at increased risk of violence
with and impacts the forms and intensity of women’s and insecurity. In many post-conflict societies, there is
a noticeable continuity in patterns, actors and forms
of violence from the political to the social and criminal
spheres, with women at higher risk of being attacked
in the public sphere, including by gangs and organized

“Conflict prevention criminal groups. These criminal attacks are a part of

the continuum of violence women and girls experience
lies at the core of the during and after conflict. Rampant impunity, normalization
of violence, weakened state institutions, and formalized
[WPS] agenda, and relationships between state actors and criminal groups all
provide a breeding ground for increased criminal activity,
the maintenance of made all the more lethal by the easy access to small
international peace arms.78 In Latin America, respondents to a survey of civil
society organizations for the Global Study designated
and security […] organized crime as the most pressing emerging issue for
women, peace and security in the region.79
Without strengthened
investment in women’s Indeed, at Global Study consultations around the world,
women and girls living in situations of heightened
human rights, equality, insecurity because of criminal violence explained
how important the WPS agenda was to counter these
education, and women- threats and the growing normalization of violence in
their everyday lives. They demanded that global policy
led civil society, we will frameworks and approaches on peace and security move
not see sustainable beyond the limitations of state actors, and the narrow
political definitions of these issues, towards broader
peace.” notions of citizen security. There have been increased
efforts to address the proliferation of small arms in recent
years. The Arms Trade Treaty (2012) for example, goes
Brigitte Balipou, magistrate in the Central some way towards regulating the sale and use of arms
African Republic, board Member of Femmes and mitigating impacts on rates of gendered violence.
Africa Solidarité (FAS), and Founding Member In Article 7(4) of the treaty, States Parties are obligated
of the Women Lawyer Association of the to assess the risk of arms “being used to commit or
Central African Republic, at the Security facilitate serious acts of gender-based violence or acts
Council Open Debate on Women, Peace and of violence against women and girls.” This provision
Security, 2014
210 Chapter 8. Preventing Conflict

FOCUS ON

Girls and gangs in Central America

“There has never been peace in this region. The participants stressed how gangs specifically targeted
Latin American people have suffered extermination, young women, severely curtailing their rights to freedom
criminalization and permanent violence[…]. Latin and integrity.
America remains one of the most unequal and
violent regions of the world.” Research on youth gangs in Central America has begun
to reveal the complex roles women and girls play in
Report of the Latin America regional civil society relation to gangs, including their agency as members
consultation for the Global Study and collaborators, and not just victims of violence, while
also noting the horrific abuse they endure as initiates
The neighboring countries of El Salvador, Honduras and and members of these groups.81 Female participation
Guatemala have some of the highest rates of femicide in gangs highlights the links between conflict, criminal
in the world.80 They exemplify the relevance of resolution activity, gender-related economic and social exclusion,
1325 in non-conflict/post-conflict , insecure settings. and sexual and gender-based violence. Understanding
In these three countries, women and girls experience these links is essential to making resolution 1325
astonishing rates of lethal and non-lethal violence, operational across a range of contexts such as
primarily as a result of competition between organized organized crime and gang violence.82
crime groups and gangs for control of illicit drug markets.
Their daily lives are marked by the same levels of Despite the unfamiliar challenges of applying resolution
insecurity and violence experienced by their counterparts 1325 in these contexts, there are a number of clear
elsewhere, who are living in situations of armed conflict opportunities. For example, governments can work with
(as traditionally understood). national and international women’s organizations to
develop and revise National Action Plans to implement
Youth gangs have emerged as a recent phenomenon, resolution 1325 that are context-specific and in line with
largely driven by deep socio-economic inequalities, a the UN Convention against Organized Transnational
root cause of the armed conflicts in Central America. At Crime, including its additional protocols on human
a consultation for the Global Study held in El Salvador, trafficking and smuggling.83
 211

recognizes the link between gender-based violence and

the arms trade, and makes it illegal to transfer weapons if
there is an overriding risk that gender-based violence will “Climate change is not
occur as a consequence of such a transfer. In addition,
Sustainable Development Goal 16, which focuses on gender neutral and [...]
the promotion of peaceful and inclusive societies for
sustainable development, includes an indicator on the the disproportionate
significant reduction of illicit financial and arms flows, and
combating all forms of organized crime.84 Taken together,
burden of climate
these two global policy commitments can provide a change already borne
framework for addressing the proliferation of arms as a
root cause of conflict and a constant source of insecurity by women can only be
for women and girls.
augmented as climate
Specific national-level responses have also evolved to change induced conflict
address the flow of small arms and light weapons. In
response to the high levels of national gun violence further threatens their
in the Philippines, women’s civil society organizations
lobbied for the adoption of the Arms Trade Treaty and the lives, livelihoods, peace,
inclusion of small arms control in the Philippine National
Action Plan on resolution 1325. The plan contains an
and security.”
action point on the creation and enforcement of laws
regulating possession of small arms, including an Asia-Pacific Forum on Women, Law and
indicator on the adoption of regulations on small arms Development, submission to the Global Study86
transfer and usage.85

Understanding climate change and natural

resource scarcity as causes of conflict droughts, erratic rainfall, extreme weather events
and increased insecurity. Climate related stressors—
One significant shift over the past 15 years has been including natural disasters, which have increased in
the increasingly evident impact of climate change, as frequency and severity, and natural resource scarcity—
societies experience shifting temperatures, recurring are already playing a central role in exacerbating
existing social tensions, driving conflict and magnifying
existing inequalities, including gender inequality. In
order to effectively prevent conflict in the future, we
need to acknowledge and better understand the role
In Latin America, Global Study of climate change as a threat multiplier, aggravating
CSO survey respondents existing fragile situations and contributing to social
upheaval and violent conflict.87 From drought in
designated organized crime as Darfur, where climate-change stressors are deeply
the most pressing emerging interconnected with the political economy of conflict,88
issue for women, peace and to Syria, where drought exacerbated a long legacy
security in the region. of resource mismanagement,89 to the Pacific, where
entire islands are disappearing, forcing communities to
relocate and straining local and regional relations90—the
212 Chapter 8. Preventing Conflict

impact of climate change on peace and security cannot

be ignored.
“The most
Women and girls experience the nexus between climate
change, and peace and security in direct and profound marginalized need to
ways.91 For example, since women are often the
providers of food, water and energy for their families— be at the discussion
socially prescribed on the basis of their gender in many
societies—they are likely to face increased challenges
table. If not, we’ll never
in accessing resources due to climate change. This find a solution on the
becomes a devastating burden in conflict-affected
areas, where women face an increased risk of insecurity ground.
and violence in carrying out these daily tasks.92 Climate
change is also a growing factor affecting migration
Climate change is
and displacement, combining with other influences a survival issue,
including unequal land distribution, insecure land tenure
and inadequate infrastructure, to push populations not a question of
to seek alternative livelihoods in urban areas and
across borders, raising local, regional and international negotiations. We
tensions.93 As with all displaced populations, women and
girls displaced by climate change and resource scarcity
need to make sure
are vulnerable to sexual and gender-based violence and that youth—future
other violations of their human rights. This is discussed in
more detail in Chapter 4: Protecting Rights. generations—are part
Despite their direct experience coping with climate
of the solution.”
change and resource scarcity, women are severely
under-represented in decision-making on natural Sylvia Atugonza Kapella, Head of the
resource management in fragile and conflict-affected Riamiriam Civil Society Network in Karamoja,
settings. For example, lack of access to water Uganda95
is a significant security and political issue in the
West Bank.94 Palestinian women, as the managers
of domestic water use, have developed coping
strategies to recycle gray water, monitor quality and
prevent waste. Despite this knowledge, however,
they are under-represented in decision-making at the As recognition grows that the natural environment is a
Palestinian Water Authority, which negotiates directly factor in many armed conflicts, and that environmental
with the Israeli Ministry of Defence and the soldiers degradation has specific gender-related impacts,
that guard water resources. Similarly, women must conflict prevention efforts must necessarily account
also be part of national, regional and international for these factors. Women’s knowledge of the natural
negotiations on climate change, and part of the design environment and resource scarcity can play an integral
and implementation of climate change policies and role in early warning systems for climate-related
programmes. resource scarcity and conflict, and in developing a
sustainable response to conflict.
 213

“The transformative
potential of the WPS
agenda has not been
fulfilled, and this has to
do as well with far too
little focus on prevention
and long-term structural
change in societies, with
too much focus on very
short-term concrete
results.”

Respondent to the civil society survey for the

Global Study, based in Sweden, working in conflict
zones in West and Central Africa, Colombia and
Myanmar
214 Chapter 8. Preventing Conflict

RECOMMENDATIONS

Moving progress beyond 2015: Proposals for action

ADDRESSING INEQUALITY, ARMS PROLIFERATION, Civil Society should:

ORGANIZED CRIME AND MILITARIZATION
Member States should: ✓ Produce benchmark tools, with a gender
perspective, for monitoring the initiatives taken by
✓ As a part of States Parties’ obligations to implement arms producing corporations on responsibility for
the Arms Trade Treaty’s provision on gender- the use of arms.
based violence (Art. 7(4)), require arms producing
corporations to monitor and report on the use of their EARLY WARNING
arms in violence against women.
Member States, the UN, regional and international
✓ Meet all Sustainable Development Goals—including organizations should:
goal 5 on gender equality, goal 10 on reducing
inequalities within and among countries, and goal ✓ Include women’s participation, gender-responsive
16 on peaceful inclusive societies—ensuring that indicators and sexual and gender-based violence
women and girls benefit equitably from achievement, related indicators (including conflict-related sexual
and prioritizing their consultation and participation in violence) in all early-warning processes, conflict
the implementation, monitoring and accountability of prevention and early-response efforts, with links to
programmes relating to the sustainable development official channels for response at the local, national,
agenda. regional and international level.

✓ Adopt gender-responsive budgeting practices, ✓ Support further collection of data and awareness-
including through consultation with civil society, as a raising on causalities between gender inequalities,
strategy to address, highlight and mitigate militarized levels of violence against women and the potential
state budgets and their destabilizing impact on for violent conflict.
international peace and security and women’s rights.

TECHNOLOGY
Member States, the UN and civil society should: The UN, Member States and civil society should:

✓ Provide financial, technical and political support to ✓ Work with the private sector to develop and use
encourage educational and leadership training for new technologies which increase women’s physical
men, women, boys and girls, which reinforces and security and strengthen conflict prevention.
supports nonviolent, non-militarized expressions of
masculinity. ✓ Support the collection of data on the gender digital
divide, and the factors inhibiting and promoting
✓ Devise educational strategies that lead to a culture women’s and girls’ access to ICTs, particularly in
of nonviolent resolution of conflict in the home and in conflict-affected and fragile settings.
public spaces.
 215

ELECTORAL VIOLENCE PREVENTION, DISPUTE CLIMATE CHANGE AND NATURAL RESOURCE

RESOLUTION AND MEDIATION SCARCITY
The UN should: The UN, Member States and civil society should:

✓ Fully implement the recommendations of the High- ✓ Work in partnership with affected women
Level Independent Panel on United Nations Peace and girls when designing, implementing and
Operations pertaining to mediation, ensuring monitoring climate-change and natural resource-
consultation with civil society and women and girls related strategies, in order to harness their local
in conflict-affected areas. knowledge and community-level networks for
information-sharing.
✓ Develop new strategies to include the women,
peace and security agenda more systematically in
its wider preventive diplomacy work, including in Member States should:
early warning mechanisms, insider mediation and
building infrastructure for peace. ✓ Work with civil society to develop or revise national
action plans for the implementation of resolution
Member States, the UN and Civil Society should: 1325 to, as relevant, address the role of climate-
related resource scarcity and natural disaster
✓ Collaborate, including through financial, technical response in exacerbating conflict, and provide
and political support, to strengthen the capacity inclusive solutions to climate and resource-related
of women’s civil society to organize and play a insecurity.
greater role in national and community-led election
monitoring and electoral violence prevention, ✓ Develop gender-sensitive natural resource
dispute resolution and mediation initiatives. management policies.
216 Chapter 8. Preventing Conflict

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Israel, the Russian Federation, South Korea, Belgium,
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in the Maras and Other Street Gangs of Central America’s
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which requires the linking of efforts to prevent the
Peacebuilding - Early Warning Analysis to Action, April
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and Female Involvement,” Background Paper (Small
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 219

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2013).
it also exposes females to further victimization. Female
involvement with gangs exposes them to [intimate partner 90. Asia Pacific Forum on Women, Law and Development,
violence] and sexual violence which is shaped by, and “Climate Change Natural Disasters Affecting Women
often used to legitimize, the hyper-masculine norms of Peace and Security,” 9.
the gang.” See, Racovita and Carapic, “Girls, Gangs and
91. “Women Peace and Security in the Context of Climate
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Change Summary: Summary Document and Analysis”
82. Carapic, “Organized Crime, Gangs, and Female (Permanent Mission of the United Arab Emirates to the
Involvement.” UN, Georgetown University Institute for Women, Peace
and Security, UN Women, January 15, 2015), http://wps.
83. Ibid.
unwomen.org/en/highlights/uae-panel-discussion-women-
84. “Transforming Our World: The 2030 Agenda for peace-and-security-in-the-context-of-climate-change.
Sustainable Development,” para. 16.4.
92. “Women and Natural Resources: Unlocking the
85. Megan Bastick and Kristen Valasek, “Converging Peacebuilding Potential” (United Nations Environmental
Agendas: Women, Peace, Security and Small Arms,” in Programme (UNEP), UN Women, United Nations
Small Arms Survey 2014: Women and Guns, Submission Peacebuilding Support Office (PBSO), United Nations
to the Global Study (Small Arms Survey, 2014), 51. Development Programme (UNDP), 2013).
86. Asia Pacific Forum on Women, Law and Development, 93. Ruttinger et al., “A New Climate for Peace: Taking Action
“Climate Change Natural Disasters Affecting Women on Climate and Fragility Risks: An Independent Report
Peace and Security,” Submission to the Global Study, Commissioned by the G7 Members,” 26.
(March 13, 2015), 3.
94. “Women and Natural Resources: Unlocking the
87. Lukas Ruttinger et al., “A New Climate for Peace: Taking Peacebuilding Potential,” 22.
Action on Climate and Fragility Risks: An Independent
95. “Thematic Discussion: Voices from the Climate Front
Report Commissioned by the G7 Members” (adelphi,
Lines,” Session Notes (United Nations Climate Summit
International Alert, Woodrow Wilson International Center
2014, September 23, 2014).
for Scholars, European Union Institute for Security
Studies, 2015), vii.
220 Chapter 9. Countering Violent Extremism

09
 221

COUNTERING
VIOLENT EXTREMISM
WHILE RESPECTING
THE RIGHTS AND
AUTONOMY OF
WOMEN AND THEIR
COMMUNITIES
222 Chapter 9. Countering Violent Extremism

Christian militias exist in many parts of the world.3 In Asia,

groups have committed violations in the name of Hinduism
“In many ways, [women’s and Buddhism,4 and in other parts of the world, political
ideologies have led groups to take up arms.5 What is clear
rights are] at a crossroads is that extremism in all its forms has had serious impacts
on the rights of women and girls. From forced marriage,
on the international plane. to restrictions on education and participation in public life,

Feminist communities to systematic sexual and gender-based violence (SGBV),

this escalation in violence and insecurity demands the
have engaged and attention of the women, peace and security agenda.

fractured on different In consultations for this Global Study, women were

understandings and very firm in their beliefs. Although research shows that
societies that respect women’s rights are less prone
criticisms of the politics of to extremism, women felt strongly that women’s rights
should not be securitized and should not be seen as
counter-terrorism. Today, an instrumental tool for countering extremism. Rather,
women’s rights are an end in and of themselves. When
working for the dissolution women’s advocacy becomes too closely associated with
of international conflict, a government’s counter-terrorism agenda, the risk of
backlash against women’s rights defenders and women’s
feminism’s marriage with rights issues, in often already volatile environments,
increases.6 Lessons from such contexts, in which
counter-terrorism is a broad-based counter-terrorism efforts have sought to

central starting point for a explicitly engage women, indicate that such securitization
can increase alienation, heighten women’s insecurity,
critical and self-reflective and create a concern of women being ‘used’ by the
government, rather than being empowered to participate
praxis on the global stage.” fully in society and overcome the barriers they face.7

Even while the incidents and events around acts of terror

Vasuki Nesiah “Feminism as Counter- increase, there must also be a word of caution. Extremism
Terrorism: The Seduction of Power”1 must only be of concern to the global community if it
ends in violence, hate or violates the rights of others.
Freedom of speech in a democratic state requires that
different points of view, no matter how extremist, should
be allowed expression—except for hate speech. We cannot
At present the world is gripped with fear of rising violent insist that the whole world has one ideology. Growth and
extremism. Much of it is real but a great deal is also change in a multicultural world will only occur if beliefs
due to media sensation creatively manipulated by the are challenged and questioned in light of the very ideals
perpetrators. While most of the media’s attention has been held dear. Fighting extremism cannot be a license to
on acts of systematic terror committed by groups such as remake the world according to individual understanding
ISIS, Boko Haram and Al Qaida in the name of Islam, it of what is correct for any society. Global concern must
is important to note that the growth in extremist violence only be triggered if there is violent extremism that destroys
is not limited to one religion. Even in the Middle East, communities and violates the rights of others as set out in
crimes have been committed in defense of Judaism,2 and international laws and standards.
 223

In a globalized world, it must also be recognized that

extremists feed off each other. An extremist burns a
Koran in Florida, and there is a riot in Cairo; someone
A common thread shared
burns a mosque in Rangoon and there is an attack on
a Buddhist site in Bihar. Respecting the dignity and
by extremist groups is that
autonomy of others is a starting point for the important in each and every instance,
conversation on violent extremism. The need for political their advance has been
leaders at the international and national level to take a coupled with attacks on the
strong stand against hate speech and hate mongering
by way of example is also a policy for the international
rights of women and girls—
community to consider and foster. rights to education, to public
life, and to decision-making
over their own bodies.
MODERN DAY VIOLENT EXTREMISM AND
THE DELIBERATE TARGETING OF WOMEN
AND GIRLS

Today, unlike in cases in the past, groups like ISIS The abduction of 276 teenage girls from Chibok in
and Boko Haram are grounding their violence on an April 2014 by the group has been the largest single
ability to govern and control territory. For example, incident so far, shining a spotlight on the increasing
in Dabiq—the magazine issued by ISIS—appeals are use of this tactic, and triggering an international
made for doctors, engineers, and professionals to campaign to ‘Bring Back Our Girls.’ Research also
engage in hijrah (devotional migration) in order to indicates that abducted women and girls held in
assist in the construction of an Islamic government.8 captivity by Boko Haram experience a range of
ISIS lures fighters and supporters, including women, violations including physical and psychological abuse,
from around the world with sophisticated social media forced labor, forced participation in military operations,
campaigns, and promises of meaningful employment. forced marriage to their captors and sexual abuse,
Weak governance institutions, ongoing conflicts, cross- including rape.11
border ethnic and cultural ties, globalized financial and
commercial networks, and an impressive command SGBV is also an explicit tactic of ISIS. Mirroring the
of new communications and information technology accounts of Nigerian girls who have escaped from Boko
platforms have helped violent extremists increase their Haram, Yazidi women and girls who have fled from the
influence, with specific impacts on the rights of women control of ISIS in northern Iraq have reported horrific
and girls. sexual violence, and being traded as slaves among
fighters. Information gathered by the Iraqi Fact Finding
Across religions and regions, a common thread Mission in 2015 points to the crime of genocide against
shared by extremist groups is that in each and every the Yazidi population, crimes against humanity, war crimes
instance, their advance has been coupled with attacks and other serious violations of human rights, including
on the rights of women and girls—rights to education, against women and girls. Reports indicate that forced
to public life and to decision-making over their own marriage to foreign fighters has become increasingly
bodies. For example, kidnappings of women and girls common in territory controlled by ISIS. This phenomenon
have come to constitute a deliberate tactic of Boko has also been observed in internally displaced persons
Haram, to lure security forces into an ambush, force camps, and in neighboring countries, where refugee
payment of a ransom, or for a prisoner exchange.9 communities have resorted to measures such as child
Reports estimate that there have been some 2,000 marriage, removal from school and physical confinement
women and girls abducted since the start of 2014.10 to ‘protect’ daughters and wives.12
224 Chapter 9. Countering Violent Extremism

“Women’s groups
are trapped between
terrorism and countering
terrorism...working
in very dangerous
context[s] where
terrorists [exist] and
on the other hand their
chances to deliver their
voice…[are] shrinking in
the name of countering
terrorism.”

Respondent to the civil society survey for the

Global Study, based in Libya
 225

The imposition by ISIS of a strict interpretation of Sharia who do not live according to Hindu strictures, as well as
law previously unseen in the Syrian Arab Republic, members of the Islamic community.21 Throughout the
setting out edicts on all aspects of life, from dress to world, extremists have perpetrated acts of violence and
movement, employment and religious observance, has made threats to the personal security of women in an
restricted basic freedoms, particularly for women. Women effort to limit their basic rights including participation in
and girls over the age of 10 must be fully covered when public life. This was powerfully and tragically highlighted
venturing outdoors and are not permitted to be in the in the attack on Malala Yousafzai by the Tehreek e Taliban
company of men outside of their immediate family. Failure Pakistan.22
to obey is punishable by lashings carried out by the Al-
Hisbah morality police, or increasingly by the all-female Targeted violence against the rights of women and girls
brigade Al-Khans’aa.13 The restrictions are particularly is receiving increasing global attention. Indeed, the UN
pronounced as the conflict in Syria continues and the Secretary-General’s 2015 report on conflict-related
numbers of Syrian men killed and disappeared increases, sexual violence highlights the use of sexual violence as
leading directly to a rise in female-headed households in integrally linked with the strategic objectives, ideology and
the midst of a systemic oppression of women’s rights.14 funding of extremist groups.23 However, even as extremist
Similar mass violations and restrictions on basic freedoms groups place the subordination of women at the forefront
can also been seen in the accounts of women and girls of their agenda, the promotion of gender equality has
living in northern Mali under Ansar Dine,15 and in Somalia, been an afterthought in the response of the international
under the growing influence of Al Shabaab.16 community. Instead, as extremist groups continue to grow
in power and influence, international actors have focused
The rise of violent extremism is also present among on military and security solutions to stop their progress.
other religions around the world, although the acts are This approach is no longer sufficient to address a
more isolated, less brutal and not as widespread and problem that has changed and evolved.
systematic. Some orthodox Jewish settler communities
in Israel, who also place a great deal of restrictions on
women’s rights, have periodically engaged in isolated WOMEN’S ROLES IN VIOLENT
acts of violence in Hebron.17 Christian militias in the EXTREMISM
West, with an increasing number of copycat websites of
white supremacy, also engage in isolated acts of violence Women are not only victims, but have long been
as happened recently in Norway and the United States.18 involved with groups engaged in violent extremism.
In Asia, Buddhist extremist groups have targeted Islamic Their roles vary according to each group and can
and Christian places of worship and their rise also has include conducting suicide bombings,24 participating
consequences for women and girls. Over the past year in in women’s wings or all-female brigades within armed
Myanmar some of the most controversial mobilization by organizations and gathering intelligence. Women can
monks has focused on the passage of a law that restricts also be sympathizers and mobilizers through providing
interfaith marriages between Buddhist women and Muslim healthcare, food and safe houses to violent extremists
men, in violation of women’s right to freely choose their and terrorists.25 For example, while mothers can be an
spouse.19 entry point for prevention efforts, they can also be a
source of radicalization. One notable leader of Al Qaeda
Despite slow global progress towards gender equality, eulogized his mother on social media saying, “She never
including through the achievement of targets under the asked for my return, rather she prepared and urged me
Millennium Development Goals, there are concerns that to Jihad.”26
extremist groups favoring more rigid cultural and religious
practices may roll back gains made by women, especially In understanding women’s desire to become members
with regards to health and education.20 Hindu extremist of violent extremist groups, it is also critical to recognize
groups in India continue to target women and artists the nature of women’s agency. Research conducted
226 Chapter 9. Countering Violent Extremism

into why women joined the Liberation Tigers of Tamil ‘liberation’ fighters. Academics describing such female
Eelam (LTTE) in Sri Lanka describe a context in which combatants have spoken about their ‘ambivalent agency,’
civil society had been absorbed into a militarized space that allows them a certain freedom from family and social
that offered no outlet for women’s grievances.27 Women restraints though they have to function within a strict
who were victims of violence and discrimination often felt hierarchy dominated by men.
they had no nonviolent option. Prolonged displacement
also affected their decision to join the group. All of these At the same time, it is also evident that women are
experiences shaped women’s political identities, often also on the front lines of countering extremist violence.
creating highly committed female insurgents.28 Mothers de-radicalizing their children, women police
officers engaging with local communities to prevent
Initial responses to the recent upswing in foreign violent extremism, female imams preaching religious
women traveling to Iraq and Syria to support ISIS29 tolerance, to name a few. The roles of women
have perpetuated stereotypes about women and Islam, are myriad. The opportunities to engage however,
assuming young Muslim women must be tricked or particularly at senior levels, have been limited. It is
brainwashed, or only join ISIS to become ‘jihadi brides,’ also interesting to note that in the most dangerous
and that they would not join if they knew the full extent of areas, older women are the only group to be trusted by
ISIS’ horrors toward women. both parties to a conflict. In Syria, in situations where
international and national humanitarian workers are
While in some cases women may be motivated by forbidden, older women from the community are the
romance or be unduly influenced, others are drawn ones who do the negotiating for the humanitarian needs
to groups like ISIS for many of the same reasons as of the community.34
men: adventure, inequality, alienation and the pull of
the cause.30 Indeed, a recent study by the Institute for Any attempt to constantly portray women in non-western
Strategic Dialogue outlined three self-identified reasons societies within an extremist frame, as one monolithic
why women travelled to ISIS: oppression of Muslims group of helpless victims or resistance fighters in states
throughout the world; desire to contribute to state- of terror is both incorrect and misses an important
building; and individual duty and identity.31 However, dynamic. While there is a conservative backlash in
policy and public discourse rarely acknowledge that many Asian and African societies, it is also because
women may have such grievances and motivations. For women are moving ahead, becoming empowered and
example, European women in ISIS have spoken of how there is fear that this advance may threaten the social
alienation and restrictions on their religious practices fabric. They are going to schools and universities in
back home, like France’s ban on wearing burqas in ever-larger numbers, they are entering the workforce,
public, helped push them into the group.32 In Western and they are becoming tech-savvy with the help of
countries, it is Muslim women and girls, particularly in education and social media. Malala’s determination and
religious attire, who bear the brunt of the Islamophobic the determination of so many other young women reflect
attacks and harassment that can increase alienation, this extraordinary growth in girls’ education over the last
as well as, for some, the appeal of ISIS narratives that decade. This is very true throughout Asia where in many
position the West against Islam.33 societies girls are outperforming boys in educational
institutions.35 The Arab spring saw many women also
There are women who do join violent extremism take to the streets and though they may not have taken
movements, some against their will but others with leadership positions they appeared active, confident and
a measure of enthusiasm. They may join, as was articulate.
mentioned earlier, because of the same root causes that
make men join. In addition, coming from conservative The new world promised by globalization and
families, they may also be seduced by powerful internet international social media has given access to new ways
advertisement imagery to join extremist groups as of thinking and being for middle class and lower middle
 227

class women and girls. Some women do seize the The response by nation states and the
opportunity provided by a changing world and become international community to international terrorism
professionals and activists, remaking their lives and
educating their daughters. The new and diverse ways The response of the international community to
of living in a globalized world are constantly clashing widespread and systematic acts of terror has not
with traditional values and practices. This tension and been successful for many reasons. Before 2001, most
contestation between the old and the new is present in countries dealt with extremism and terrorism as a police
most of the Asian and African regions. In some countries, matter within the framework of national laws and human
these coexist with a great deal of tolerance. In others, rights. Since then, with the coined term ‘war on terror,’
they have become sites of terrible and extreme violence the response to violent extremism and acts of terror
and women’s rights, women’s personal lives and their has been primarily through the use of force. There have
bodies have become sites of the contestation. been many national and international efforts under the
rubric of ‘counter-terrorism’ to deal with these issues.
In many countries, counter-terrorism legislation as
well as newfound practices of security forces deeply
compromise human rights standards and norms of

“While injustices and international humanitarian law. Counter-terrorism as a

framework lies somewhere in the middle, between a
inequalities embedded police operation and a war fully governed by international
humanitarian law. The ambiguous positioning along with
in gender relations new, unregulated technologies and practices of warfare
have created increasing dilemmas for both women’s
are a long-term threat rights and human rights activists and mechanisms. In
to development and addition, the concept of counter-terrorism is not static but
is constantly evolving to include more actors and more
stability, gender aspects of a community’s life. One cannot question the
fact that many countries face difficult security choices,
equality represents a but conceptual clarity with regard to what they hope to do

safeguard to the spread and what limits should be placed on certain strategies,
must be the first step in moving forward.
of radicalization and
violent extremism. It is Increasing recognition of women’s participation and
empowerment should not be part of counter-terrorism
critical, therefore, that strategies but a part of the civilian peace agenda
women’s leadership be
Recent research from many think tanks, highlighted in the
tapped into as a critical journal Foreign Policy,36 has increasingly shown that there
is a correlation between women’s rights and a decrease
resource for peace.” in violent extremism. Those countries with relative
gender equality are less prone to violent extremism.
Committee on the Elimination of The revelation of this research data has resulted in a
Discrimination against Women, submission great deal of debate and discussion. Many advocates
to the Global Study have different approaches on how to instrumentalize the
finding, leading to sharp division among policy makers
and practitioners alike.
228 Chapter 9. Countering Violent Extremism

The first school of thought put forward by many security role of the UN system in that respect; and (IV) ensuring
think tanks is to include the issue of women and women’s respect for human rights for all and the rule of law as
equality in military planning. It urges field level military the fundamental basis for the fight against terrorism.38
officers to engage and befriend women, empower them The peace and security dimensions of counter-terrorism
and to train them to be watchful so as to use them as are particularly understood as being expressed in pillars
intelligence. This is a dangerous, shortsighted use of I and IV.39
this research. It puts women at risk, alienates them from
their communities as well as their families. Though it may While the Global Counter-Terrorism Strategy does not
produce results in the short-term, in the long-term it will include a specific reference to gender, the resolution
destroy the social fabric of the society that is being rebuilt. adopted at its fourth biennial review in June 2014
encourages Member States, UN entities as well as
The second approach is the nation building approach international and regional organizations to “consider the
which aims at a comprehensive policy, where many participation of women in efforts to prevent and counter
strategies, including development, human rights and terrorism.”40 The Secretary-General’s 2014 report on
women’s rights, are included in a top down model Activities of the UN system in implementing the Global
imposed from above and which essentially supplements Counter-Terrorism Strategy notes that women can play
a military or securitized counter-terrorism strategy. This a significant role in preventing extremist violence and
second approach is currently dominant in the discourse building resilience against it.41
of the United Nations and OECD countries. The Global
Counter-Terrorism Strategy of the United Nations adopted The UN human rights system has increasingly
by consensus in September 2006, and its review addressed the issue of gender and terrorism. The
resolutions,37 provide the strategic framework and policy Committee on the Elimination of Discrimination against
guidance to the collective effort of the UN system on Women (CEDAW) General Recommendation 30 on
countering terrorism. The Global Counter-Terrorism women in conflict prevention, conflict and post-conflict
Strategy characterizes terrorism as “one of the most situations recommended that State Parties, “reject all
serious threats to international peace and security” forms of rollbacks in women’s rights protections in
and contains four pillars: (I) tackling the conditions order to appease non-State actors such as terrorists,
conducive to the spread of terrorism; (II) preventing private individuals or armed groups.”42 The Human
and combating terrorism; (III) building States’ capacity Rights Council requests the Special Rapporteur on
to prevent and combat terrorism and to strengthen the the promotion and protection of human rights and
fundamental freedoms while countering terrorism to,
inter alia, “integrate a gender perspective throughout
the work of his/her mandate,”43 and the 2009 report
to the General Assembly by the Special Rapporteur
calls on Governments to remedy the gender inequality
The Secretary General’s that makes women the targets of terrorism, and ensure
2015 report on conflict- that victims of terrorism receive support, including
related sexual violence by repealing discriminatory barriers (e.g., unequal
inheritance laws) that frustrate assistance.44 The General
highlights its use as Assembly resolutions on the protection of human rights
integrally linked with and fundamental freedoms while countering terrorism
the strategic objectives, have called on Member States “to shape, review and
ideology and funding of implement all counter-terrorism measures in accordance
with the principles of gender equality and non-
extremist groups.
discrimination.”45
 229

The Security Council has increasingly referred to women the country. To enmesh such programmes in counter-
in its resolutions and statements related to terrorism. terrorism strategies, sanctioned by the Security
Resolution 2178 adopted in September 2014 focuses Council, is to deeply compromise the role of women’s
on the threat posed by foreign terrorist fighters and organizations and women leaders associated with the
recognizes for the first time the need to empower women programmes. There has to be a shift towards recognition
as a mitigating factor to the spread of violent extremism that countering terrorism should be limited in scope
and radicalization.46 It is also the first time in a Chapter and where broad-based strategies for countering
VII resolution that efforts to counter violent extremism, and preventing violent extremism are concerned, the
including preventing radicalization and recruitment, are development and human rights agencies should take
deemed an ‘essential element’47 in addressing the threat the lead. The Secretary-General is currently developing
posed by foreign fighters. This is emblematic of the a Plan of Action to Prevent Violent Extremism that he will
shift seen over the past year in particular, in the UN’s present to the 70th General Assembly in November this
approach to this issue. year. It is hoped that the Plan will consider these words
of caution.
This paradigm shift within the UN system and in Europe
remains deeply problematic and goes against everything
women actually living in local communities are saying. Countering violent extremism and the women,
While empowering women as a bulwark against peace and security agenda
extremism is an important idea, such empowerment
should never be part of Chapter VII of the Charter on As the previous paragraphs point out, in countering
the use of force. It should not come within the ambit of violent extremism, the international community is moving
counter-terrorism, but as part of the civilian assistance toward a nation building approach which includes
to the development and human rights programmes in human rights and women’s rights as part of a counter-

FOCUS ON

Utilizing the role of mothers in preventing violent extremism

Noting that mothers are often in a unique position to a space for mothers to discuss common issues,
identify early signs of violent behavior and intervene, particularly regarding violent extremism. However, there
a number of initiatives focusing on the roles of is a risk for Mothers Schools to promote a stereotypical
mothers have been established in countries including view of women’s roles in society. It is therefore
India, Ireland, Nigeria, Pakistan and Yemen. These important that any support to Mothers Schools includes
include Mothers MOVE! (Mothers Opposed to Violent an empowerment component, for example access to
Extremism) and Mothers Schools. income-generating skills or education opportunities
for mothers, or their daughters, participating in the
Through Mothers Schools, the organization SAVE programme. Building the capacity of mothers as well
provides training and materials for local partners to run as families to detect early warning signs of violence,
home-based workshops with mothers in communities- and intervene emotionally and intellectually, must be
at-risk for a period of six months.49 These provide supported.50
230 Chapter 9. Countering Violent Extremism

terrorism approach. Many Member States and women’s

organizations in western capitals strongly support the
nation building approach outlined above since it allows
for more holistic governance without reliance on purely
In understanding women’s
military means, though it still remains within a military desire to become members
ambit. However, it is ironic that such policies, as well as of violent extremist
the groups supporting them, do not recognize the internal groups, it is also critical
contradiction; that human rights and women’s rights to recognize the nature of
are also elements of “checks and balances” within a
governance system. To include them as counter-terrorism
women’s agency.
efforts is to deeply compromise their value in any given
society.

Consultations in Africa and Asia made it clear that

women’s organizations in those continents, where example, in 2005 Morocco’s Ministry of Habous and
these strategies actually play out, were deeply skeptical Islamic Affairs began certifying female preachers
of including such programmes within the rubric of (imams), known as mourchidates. They are charged with
counter-terrorism, especially if such strategies implied promoting religious moderation and tolerance with the
a top-down nation building approach emanating from a objective of curbing violent extremism. As of 2014, there
global strategy which essentially supplements a military are more than 500 mourchidates working in mosques,
process. Such strategies, initially designed for Iraq and communities, and prisons with women and youths in
Afghanistan, have not been a total success and cannot Rabat and Casablanca. The mourchidate initiative has
really move forward without acknowledging the variation been hailed as a success within and beyond Morocco.48
that exists among regions and communities.
Another area is the use of alternative media that
The alternative that was suggested, and which this Study presents a different narrative. Violent extremists have
endorses fully, is to remove women’s rights and even made effective use of social media platforms to advance
human rights interventions from military responses and their aims, whether through engagement, propaganda,
counter-terrorism efforts. Their place in these efforts radicalization or recruitment. In the same way, media
deeply compromises the practitioners. Instead it is channels can be used to counter the narratives of violent
important to have a distinct civilian process, that may extremists and develop messages on gender equality,
require the military to provide security but which is fully good governance, and conflict prevention as it relates
detached from the military, that places emphasis on to countering violent extremism. One example is Sawa
respecting the autonomy of local women peacebuilders Shabab, a radio series airing weekly in South Sudan
and civil society organizations. These groups should based on an educational, peacebuilding curriculum
take the lead and it is important to work with them in designed and produced with local partners. Sawa
partnership to design programmes for combatting violent Shabab follows the daily lives of different young South
extremism outside the framework of counter-terrorism or Sudanese as they face unique challenges while learning
any military process. Some successful examples do exist how to become peacebuilders in their communities.
and such programmes designed by locals, assisted by The underlying curriculum includes a strong focus
international actors, are more likely to have resonance in on countering stereotypes, respecting diversity and
the community without instrumentalizing and securitizing promoting gender equality. After listening to the
women’s rights. show, young female participants indicated that ‘being
educated’ is an important quality for young women
One such programme is the training of women religious and awareness among male participants about gender
leaders to work as mentors in their communities. For equality had notably increased.51
 231

RECOMMENDATIONS

Moving progress beyond 2015: Proposals for action

Member States, the UN and regional ✓ Invest in research and data collection on women’s
organizations should: roles in terrorism including identifying the drivers
that lead to their radicalization and involvement
✓ Detach programming on women’s rights from with terrorist groups, and the impacts of counter-
counter-terrorism and extremism, and all military terrorism strategies on their lives. This should
planning and military processes. Any effort at include the impact of counter-terrorism laws
empowering them should be through civilian and regulations on the operation of women’s
assistance to the women themselves or to civil society organizations, and their access
development and human rights agencies. to resources to undertake activities relating to
countering violent extremism.
✓ Protect women’s and girls’ rights at all times and
ensure that efforts to counter violent extremism ✓ Ensure gender-sensitive monitoring and evaluation
strategies do not stereotype, instrumentalize or of all counter-terrorism and countering violent
securitize women and girls. extremism interventions. This should specifically
address the impact on women and girls, including
✓ Work with local women and institutions to engage through use of gender-related indicators and
women at all levels, and allow local women collection of sex-disaggregated data.
autonomy and leadership in determining their
priorities and strategies in countering extremism.
Member States and the UN should:

Member States, the UN, regional organizations ✓ Develop gender-sensitive disengagement,

and civil society should: rehabilitation and reintegration programmes that
address the specific needs of women and girls.
✓ Build the capacity of women and girls, including Draw upon the lessons learned from disarmament,
mothers, female community and religious leaders, demobilization, and reintegration (DDR) initiatives
and women’s civil society groups to engage in under the women, peace and security agenda.
efforts to counter violent extremism in a manner
tailored to local contexts. This can include the
provision of specialized training, facilitating, The UN should:
training of women religious leaders to work as
mentors in their communities, increasing women’s ✓ Ensure accountability mechanisms and processes
access to secular and religious education to mandated to prevent and respond to extremist
amplify their voices against extremist narratives violence have the necessary gender expertise to
and supporting mother’s schools. All this capacity fulfill their mandates.
building should again be through civilian agencies
and with women peacebuilders deciding the
priorities and the content of their programmes.
232 Chapter 9. Countering Violent Extremism

REFERENCES
1. Vasuki Nesiah, “Feminism as Counter-Terrorism: The 14. Ibid., para. 59.
Seduction of Power,” in Gender, National Security, and
15. “Report of the Secretary-General on the Situation in Mali,”
Counter-Terrorism: Human Rights Perspectives, ed.
UN Doc. S/2012/894 (United Nations Security Council,
Margaret L. Satterthwaite and Jane Huckerby, Human Rights
November 28, 2012), 21 – 23, 24; “Mali: War Crimes by
Perspectives (Routledge, 2013), 127–51.
Northern Rebels,” Human Rights Watch, April 30, 2012,
2. “Hebron: Israeli Settlers Must Be Stopped from Taking over http://www.hrw.org/news/2012/04/30/mali-war-crimes-
Al-Rajabi House – UN Special Rapporteur,” United Nations northern-rebels; “Women Primary Victims of Violence in
Office of the High Commissioner for Human Rights (OHCHR), Northern Mali, Says UN Rights Official,” United Nations New
April 15, 2014, http://www.ohchr.org/EN/NewsEvents/Pages/ Centre, October 9, 2012, http://www.un.org/apps/news/story.
DisplayNews.aspx?NewsID=14512. asp?NewsID=43239#.VgQxDt9Vikp.
3. For example, Christian militias have gone on a bloody 16. Chris Albin-Lackey and Letta Tayler, Harsh War, Harsh Peace:
campaign against Muslims in the Central African Republic. Abuses by Al-Shabaab, the Transitional Federal Government,
David Smith, “Christian Militias Take Bloody Revenge on and AMISOM in Somalia. (New York, NY: Human Rights
Muslims in Central African Republic,” The Guardian, March Watch, 2010); “Fleeing Somali Women Recount Tales of
10, 2014, http://www.theguardian.com/world/2014/mar/10/ Terror,” BBC News, October 7, 2010, http://www.bbc.com/
central-african-republic-christian-militias-revenge. news/world-africa-11437595.
4. For example, Buddhist extremists in Sri Lanka have incited 17. “Hebron: Israeli Settlers Must Be Stopped from Taking over
anti-Muslim riots. See, Rohini Mohan, “Sri Lanka’s Violent Al-Rajabi House – UN Special Rapporteur.”
Buddhists,” The New York Times, January 2, 2015, http://
18. Steven Erlanger and Scott Shane, “Norway Shooting and
www.nytimes.com/2015/01/03/opinion/sri-lankas-violent-
Bomb Attack Leaves at Least 92 Dead,” The New York
buddhists.html.
Times, July 31, 2011, http://www.nytimes.com/2011/07/24/
5. The Liberation Tamil Tigers of Eelam are one such example. world/europe/24oslo.html; Jace Jenkins, “The Christian
Terrorist Movement No One Wants To Talk About,” Think
6. Martin Scheinin, “Report of the Special Rapporteur on
Progress, December 4, 2014, http://thinkprogress.org/
the Promotion and Protection of Human Rights and
justice/2014/12/04/3599271/austin-shooter-christian-
Fundamental Freedoms While Countering Terrorism,” UN
extremism/; Peter Bergen and David Sterman, “Opinion: In
Doc. A/64/211 (United Nations General Assembly, August
U.S., Right Wing Extremists More Deadly than Jihadists,”
3, 2009), para. 36.
CNN, April 15, 2014, http://www.cnn.com/2014/04/14/
7. Jane Huckerby, “Women and Preventing Violent Extremism: opinion/bergen-sterman-kansas-shooting/.
The U.S. and U.K. Experiences,” Briefing Paper (NYU Center
19. “Convention on the Elimination of All Forms of Discrimination
for Human Rights and Global Justice, 2012), 13.
against Women,” December 18, 1979; Matthew J Walton
8. Naureen Chowdhury Fink and Benjamin Sugg, “A Tale of and Susan Hayward, “Contesting Buddhist Narratives:
Two Jihads: Comparing the Al-Qaeda and ISIS Narratives,” Democratization, National and Communal Violence in
IPI Global Observatory, February 9, 2015, http:// Myanmar,” Policy Studies 71 (East-West Center, 2014);
theglobalobservatory.org/2015/02/jihad-al-qaeda-isis- “Burma: Discriminatory Laws Could Stoke Communal
counternarrative/. Tensions,” Human Rights Watch, August 23, 2015, https://
www.hrw.org/news/2015/08/23/burma-discriminatory-laws-
9. Mausi Segun et al., “Those Terrible Weeks in Their Camp”:
could-stoke-communal-tensions.
Boko Haram Violence against Women and Girls in Northeast
Nigeria (Human Rights Watch, 2014), 4. 20. “Women and Countering Violent Extremism: Summary
Document and Analysis” (Permanent Mission of the United
10. Amnesty International, “Nigeria: Abducted Women and Girls
Arab Emirates to the UN, Georgetown University Institute for
Forced to Join Boko Haram Attacks,” April 14, 2015, https://
Women, Peace and Security, UN Women, October 27, 2014),
www.amnesty.org/en/latest/news/2015/04/nigeria-abducted-
http://wps.unwomen.org/en/highlights/uae-panel-discussion-
women-and-girls-forced-to-join-boko-haram-attacks/.
the-role-of-women-in-countering-violent-extremism.
11. Tactical goals include: luring security forces into an ambush, or
21. Naureen Chowdhury Fink and Rafia Barakat, “Strengthening
forcing payment of a ransom or a prisoner exchange. Segun
Community Resilience against Violence and Extremism:
et al., “Those Terrible Weeks in Their Camp”: Boko Haram
The Roles of Women in South Asia,” Policy Brief (Center on
Violence against Women and Girls in Northeast Nigeria.
Global Counterterrorism Cooperation, November 2013).
12. “Report of the Secretary-General: Conflict-Related Sexual
22. “Profile: Malala Yousafzai,” BBC News, December 10, 2014,
Violence,” UN Doc. S/2015/203 (United Nations Security
http://www.bbc.com/news/world-asia-23241937.
Council, March 23, 2015), para. 61.
23. “Secretary-General’s Report on Conflict-Related Sexual
13. “9th Report of the Independent International Commission of
Violence (2015),” para. 83.
Inquiry on the Syrian Arab Republic,” UN Doc. A/HRC/28/69
(United Nations Human Rights Council, February 5, 2015), 24. Mia Bloom, Bombshell: The Many Faces of Women Terrorists
para. 64, 161. (Hurst, 2011).
 233

25. Naureen Chowdhury Fink, Rafia Barakat, and Liat Sheret, 38. “Resolution Adopted on the United Nations Global Counter-
“The Roles of Women in Terrorism, Conflict, and Violent Terrorism Strategy,” UN Doc. A/RES/60/288 (United
Extremism: Lessons Learned for the United Nations Nations General Assembly, September 20, 2006), 288.
and International Actors,” Policy Brief (Center on Global
39. “Report of the Secretary-General on Activities of the United
Counterterrorism Cooperation, 2013), 3.
Nations System in Implementing the United Nations Global
26. Mia Bloom, “When Women Are the Problem,” in Charting a Counter-Terrorism Strategy,” UN Doc. A/RES/68/841 (United
New Course, Thought for Action Toolkit: Women Preventing Nations General Assembly, April 14, 2014), para. 22.
Extremism (Untied States Institute of Peace, 2015), 20.
40. “General Assembly Resolution on the UN Global Counter-
27. Nimmi Gowrinathan, “Motivations of Female Fighters,” in Terrorism Strategy Review (2014).”
Charting a New Course, Thought for Action Kit: Women
41. “Secretary-General’s Report on Activities of the UN System
Preventing Violent Extremism (United States Institute of Peace,
in Implementing the UN Global Counter-Terrorism Strategy
2015), 22–24.
(2014),” para. 107.
28. Ibid.
42. “General Recommendation No. 30 on Women in Conflict
29. Jayne Huckerby, “When Women Become Terrorists,” The Prevention, Conflict and Post-Conflict Situations,” UN
New York Times, January 21, 2015, http://www.nytimes. Doc. CEDAW/C/GC/30 (Committee on the Elimination of
com/2015/01/22/opinion/when-women-become-terrorists. Discrimination against Women, October 18, 2013).
html; Jayne Huckerby, “Gender, Violent Extremism, and
43. “Protection of Human Rights and Fundamental Freedoms
Countering Violent Extremism,” Just Security, March 3, 2015,
While Countering Terrorism: Mandate of the Special
https://www.justsecurity.org/20620/gender-violent-extremism-
Rapporteur on the Promotion and Protection of Human
countering-violent-extremism-cve/.
Rights and Fundamental Freedoms While Countering
30. Jayne Huckerby, “When Women Become Terrorists”; Jayne Terrorism,” UN Doc. A/HRC/RES/6/28 (United Nations
Huckerby, “Gender, Violent Extremism, and Countering Violent Human Rights Council, December 14, 2007).
Extremism.”
44. Scheinin, “Report of the Special Rapporteur on the
31. Carolyn Hoyle, Alexandra Bradford, and Ross Frenett, Promotion and Protection of Human Rights and
“Becoming Mulan? Female Western Migrants to ISIS” Fundamental Freedoms While Countering Terrorism (2009),”
(Institute for Strategic Dialogue, 2015). para. 32–33
32. Jayne Huckerby, “When Women Become Terrorists”; Jayne 45. “Resolution Adopted on Protection of Human Rights and
Huckerby, “Gender, Violent Extremism, and Countering Violent Fundamental Freedoms While Countering Terrorism,” UN
Extremism.” Doc. A/RES/68/178, (January 28, 2014), para. 6(r).
33. Jayne Huckerby, “When Women Become Terrorists”; Jayne 46. “General Assembly Resolution on the United Nations
Huckerby, “Gender, Violent Extremism, and Countering Violent Global Counter-Terrorism Strategy (2010),” para. 32–33;
Extremism.” “Resolution 2178 (2014),” UN Doc. S/RES/2178 (United
Nations Security Council, September 24, 2014), para. 16.
34. Consultation for the Global Study with women civil society
representatives from the Middle East and North Africa, held at 47. “Resolution 2178 (2014),” para. 15; Naureen Chowdhury
the WILPF 2015 conference in The Hague. Fink, “Countering Terrorism and Violent Extremism: The
Role of the United Nations Today and the Impact of Security
35. “Society at a Glance: Asia/Pacific 2014” (Organisation for
Council Resolution 2178,” Policy Brief (Global Center on
Economic Co-operation and Development (OECD), 2014), 9.
Cooperative Security, November 2014).
36. Phumzile Mlambo-Ngcuka and Radhika Coomaraswamy,
48. Kristina London Couture, “A Gendered Approach to
“Women Are the Best Weapon in the War Against Terrorism,”
Countering Violent Extremism: Lessons Learned From
Foreign Policy, February 10, 2015, http://foreignpolicy.
Women in Peacebuilding and Conflict Prevention Applied
com/2015/02/10/women-are-the-best-weapon-in-the-war-
Successfully in Bangladesh and Morocco,” Brookings
against-terrorism/.
Institutions Policy Paper (Brookings Institution, July 2014).
37. “Resolution Adopted by the General Assembly on the United
49. Naureen Chowdhury Fink and Rafia Barakat, “Strengthening
Nations Global Counter-Terrorism Strategy,” UN Doc. A/
Community Resilience against Violence and Extremism: The
RES/62/272 (United Nations General Assembly, September
Roles of Women in South Asia.”
15, 2008), 272; “Resolution Adopted on the United Nations
Global Counter-Terrorism Strategy,” UN Doc. A/RES/64/297 50. Edit Schlaffer and Ulrich Kropiunigg, “Can Mothers
(United Nations General Assembly, October 13, 2010), Challenge Extremism? Mothers’ Perception and Attitudes
297; “Resolution Adopted on the United Nations Global of Radicalization and Violent Extremism” (Women Without
Counter-Terrorism Strategy,” UN Doc. A/RES/66/282 (United Borders/SAVE: Sisters Against Violent Extremism, 2015).
Nations General Assembly, June 29, 2012), 282; “Resolution
51. Nancy Payne, “Everyday Technologies Can Help Counter
Adopted by the General Assembly on the United Nations
Violence and Build Peace,” in Charting a New Course,
Global Counter-Terrorism Strategy Review,” UN Doc. A/
Thought for Action Kit: Women Preventing Violent Extremism
RES/68/276 (United Nations General Assembly, June 24,
(United States Institute of Peace, 2015), 32.
2014).
234 Chapter 10. Key Actors

10
 235

KEY ACTORS FOR

WOMEN, PEACE
AND SECURITY:
MONITORING AND
ACCOUNTABILITY
236 Chapter 10. Key Actors

THE ROLE OF KEY ACTORS

In the first decade of the implementation of Security concrete change in areas where progress has been
Council resolution 1325 (2000), few tools and data sluggish. Importantly, Security Council resolution
were available to systematically track progress across 2122 (2013) recognized with concern that without a
the women, peace and security (WPS) agenda. In significant implementation shift, women and women’s
many areas the evidence available to inform policy- perspectives would continue to be underrepresented
making and programming was limited, good practice in conflict prevention, resolution, protection and
was not regularly recorded, and mechanisms for peacebuilding for the foreseeable future, and as such
holding different stakeholders to account were largely encouraged Member States, regional organizations
absent. In the build-up to the tenth anniversary of and United Nations entities to start reviewing existing
resolution 1325, growing concerns were expressed implementation plans and targets.
that, despite an expanding normative framework and a
wide range of activities spurred by the adoption of the This chapter examines initiatives taken by different
resolution, women’s and girls’ lives were still wrecked stakeholders to accelerate action, measure progress
by violence, and women’s participation at all stages and deliver better results on the ground. It highlights
of peace processes remained unacceptably low. This good practice and puts forward concrete proposals
prompted a closer look at issues around monitoring for future action. As the review of the implementation
and accountability, in particular because the more of resolution 1325 coincides with other major policy
transformative and structural changes envisioned by all reviews and debates underway—including discussions
actors contributing to the birth of resolution 1325 were linked to the 2030 Sustainable Development Goals,
far from achieved. targets and indicators; the 20-year review of the
Beijing Declaration and Platform for Action; the
In the lead up to the fifteenth anniversary of resolution 2015 High-Level Independent Panel on United
1325, policy makers, researchers and practitioners Nations Peace Operations; the 2015 Review of the
looked back to assess what this resolution and United Nations Peacebuilding Architecture; and the
related normative frameworks on women, peace and preparations for the World Humanitarian Summit—the
security had achieved. They also looked ahead to chapter also explores linkages and synergies between
see what needed to be done in the future to address the various agendas on issues concerning peace and
emerging priorities and concerns, and bring about security from a gender perspective.
 237

MEMBER STATES
238 Chapter 10. Member States

HIGHLIGHTS FROM THE RESOLUTIONS

Resolution 1325 Resolution 1889

Urges Member States Welcomes the efforts
to ensure increased of Member States in
representation of women at implementing its resolution
all decision-making levels 1325 (2000) at the
[...] in mechanisms for the national level, including the
prevention, management, development of national
and resolution of conflict action plans, and encourages
Member States to continue to
pursue such implementation

2000 2009

Resolution 1888
Encourages Member States
to deploy greater numbers
of female military and police
personnel to United Nations
peacekeeping operations,
and to provide all military and
police personnel with adequate
training to carry out their
responsibilities
 239

Resolution 1889 Resolution 2106

Urges Member States, United Urges concerned Member
Nations bodies and civil society, States to ensure full
including non-governmental accountability, including
organizations, to take all feasible prosecutions, in cases of
measures to ensure women and [sexual exploitation and
girls’ equal access to education abuse by UN personnel]
in post-conflict situations, given involving their nationals
the vital role of education in
the promotion of women’s
participation in post-conflict
decision making

2013

Resolution 2122
Encourages concerned Member States to develop
dedicated funding mechanisms to support the
work and enhance capacities of organizations that
support women’s leadership development and
full participation in all levels of decision-making,
regarding the implementation of resolution 1325
(2000)
240 Chapter 10. Member States

NATIONAL ACTION PLANS

“For this fifteenth UN agencies and donor countries have identified the
formulation of national action plans (NAPs) as a critical
anniversary I would like tool for moving forward Member State commitments
in this area. These plans, when they are successful,
to see more member provide an opportunity for national stakeholders to
states develop and identify priorities, determine responsibilities, allocate
resources, and initiate strategic actions within a defined
adopt national action time frame. However, consultations in all regions for this
Global Study indicated that this conception of an action
plans…[N]ational action plan was sometimes based on an idealistic premise

plans that will have the that all sectors within a country would work together
regardless of diversity, division or polarity. Likewise,
active participation bringing all groups under one umbrella, regardless
of divergent agendas, could lead to unrealistic and
of civil society, of unachievable action plans, especially when resources
were limited. It is therefore essential to first understand
local communities... ground realities in an armed conflict situation before
National action plans pushing for national action plans and defining their
content.
that would have the
As of July 2015, 54 countries have adopted a NAP (24
necessary budget and in Europe, of which several have already launched their

technical resources third generation NAP; 17 in Africa; nine in Asia; three in

the Americas; and one in Oceania).1 Several NAPs are
so that we will not see due to be updated soon and close to 20 more countries
are in the process of preparing their first action plan.2
governments napping…” Some of these are expected to be launched in time for
the 15th year anniversary of resolution 1325 and the
High-Level Review in the Security Council in October
Mavic Cabrera-Belleza, 2015. Notably, among countries that have adopted or
International Coordinator, Global Network are currently drafting NAPs, some are situations on the
of Women Peacebuilders agenda of the UN Security Council, while others are
hosting a peacekeeping or special political mission,
have received funds from the Peacebuilding Fund, and/
or were included on the World Bank’s list of Fragile
Situations in 2014.3
While the full implementation of Security Council
resolution 1325 (2000) is the duty of multiple NAPs have evolved significantly since Denmark
stakeholders, Member States have the primary launched the first one in 2005, followed by other
responsibility to ensure that global commitments western European and Nordic countries. Côte d’Ivoire
and obligations on women, peace and security are was the first post-conflict country to adopt a plan in
integrated into domestic policies, laws, planning and 2007, followed by Uganda in 2008, and Liberia in 2009.
budget processes. Nation states remain the most Most early NAPs had a stronger focus on processes
influential actors in the implementation of the WPS rather than outcomes. Analyses of some of these
agenda. early documents show the absence of a clear division
 241

Number of National Action Plans on Women, Peace and Security adopted by year4

Philippines, 1st Asian Iraq is first MENA

Country with NAP Country with NAP

Guinea & Guinea

Bissau—first PBC Denmark adopts
Norway adopts first countries with NAPs 3rd generation
NAP with indicators NAP
Chile only LAC
Country with NAP
1st Generation WPS NAPs
Cote d’Ivoire Denmark adopts 1 2nd Generation WPS NAPs
adopts first NAP 2nd generation
with indicators and NAP 3rd Generation WPS NAPs
budget 2

Denmark adopts Denmark adopts

first NAP 2nd generation 1 1
NAP 1
12 2
9
1 7
6 6
5 5
3 3 1
1 1
2005 2006 2007 2008 2009 2010 2011 2012 2013 2014 2015

between comprehensive goals, strategic objectives • strong leadership and effective coordination;
and actions, lack of clear lines of responsibilities,
budget and timelines, and of coordinating and oversight • inclusive design processes;
mechanisms.5 Since then, newly developed or second
or third generation NAPs have attempted to address • costing and allocated budgets for implementation;
these earlier deficiencies.
• monitoring and evaluation; and

WHAT MAKES A HIGH-IMPACT NAP? • flexibility to adapt to emerging situations.

STANDARDS EVOLVING FROM LESSONS
LEARNED AND GOOD PRACTICE
Strong leadership and effective coordination
The growth in the number of NAPs globally is often
welcomed as an illustration of Member States’ growing Effective NAP development, implementation and
commitment to implement resolution 1325. However, monitoring require clear government commitment
it is important to bear in mind that these are simply and leadership, both at political and technical levels.7
processes and facilitators of action, not ends in The choice of government institution to conduct the
themselves. In regional and country consultations for this coordination of the NAP is crucial, and ideally the process
Study, civil society organizations echoed past lessons should be led by a high-level ministry that not only has
learned in NAP reviews and identified common elements political influence but also enjoys the confidence of
necessary to the development of a NAP that can be a women’s groups. Evidence points to stronger outcomes
tool for coherent, targeted and impactful action.6 These where these processes are coordinated by line ministries
elements include: such as the Ministry of Defense or Foreign Affairs, rather
than the Ministry of Gender, as this can signal that the
242 Chapter 10. Member States

plan is central to issues of peace and security and is Inclusive processes

mainstreamed across all relevant departments.8
In addition to government leadership, effective national
Beyond clarity on responsibilities and coordination within implementation plans and strategies require broad
the government, an issue strongly emphasized in NAP participation of civil society organizations, academic
review processes and consultations for the study was the institutions, donor partner governments, women, men,
importance of effective coordination between the range as well as local communities and populations directly
of actors involved in the realization of the WPS agenda. affected by conflict. These actors can make substantial
To do this, several countries have established at the contributions to the design, implementation, monitoring
national level either a task force, or a steering committee and evaluation, and review of such plans.
or working group to coordinate the various ministries and
other stakeholders involved.9 Opportunities for cross- Tensions may exist in some contexts between wide-
learning and good practice exchange with other countries ranging consultations and possible time and resource
have also proven valuable in informing the design of an constraints, as well as decision-making traditions
effective NAP.10 that make it difficult for governments to collaborate
with civil society partners in some contexts.11 Yet, the
benefits of broad participation are too many to ignore.
Inclusion can raise awareness, contribute to advocacy
initiatives, and ensure a variety of perspectives on
“For women and girls issues of security that affect diverse stakeholders. In
turn, broad participation, which reinforces the right to
in conflict countries, equality and non-discrimination, makes the resulting

all too often, plans and strategies more responsive to the needs
and expectations on the ground, and increases the
governments see the level of ownership and commitment to implementation.

resolutions as a policy There is growing good practice to build on from

both non-conflict and conflict-affected settings. In
document and not the Netherlands, for example, the second NAP was
legally binding which co-signed by three Dutch government ministries,
four research institutions and over 30 civil society
translates into weak organizations including multinational NGOs, women’s
peace movements and diaspora organizations.12
National Action Plans In Sierra Leone, the year-long NAP design process

that do not allocate began by establishing a Government-Civil Society Task

Force, the WANMAR 1325 Task Force, comprised
funding or support to of 35 government representatives, civil society and
local organizations.13 Following the launch of the NAP,
NGOs.” the WANMAR 1325 Task Force was transformed into
a steering committee to guide the implementation
Respondent to the civil society survey for process. The inclusion has facilitated strong buy-in
the Global Study, organization working at the from local-level government bodies to translate the
global level in Myanmar, Iraq and the US NAP into their own contexts. Seven of the 19 sub-
national local councils are currently implementing NAP
activities.
 243

basis. Specifically, the Agency for Gender Equality

worked with local government and civil society actors,
In Sierra Leone, the year- with technical support provided by the Institute for
long NAP design process Inclusive Security, to develop local NAPs in five pilot
municipalities that address women’s daily security
began by establishing concerns, including protection from gender-based
a Government-Civil violence and discrimination, human trafficking,
Society Task Force, access to legal protection, education, healthcare,
the WANMAR 1325 natural and economic resources, and environmental
and infrastructure concerns such as recent floods,
Task Force, comprised
landmines, street lighting and public transportation.
of 35 government
representatives, civil Since 2010 a range of ‘localization’ initiatives have
society and local been implemented by the Global Network of Women
organizations. Peacebuilders (GNWP) and partners in Burundi, Colombia,
the Democratic Republic of the Congo (DRC), Liberia,
Nepal, the Philippines, Serbia, Sierra Leone and Uganda,
with good practices emerging.15 For example, in the
Philippines, localization workshops held in 2012 inspired
the inclusion of four women in the Bodong traditional
In Bosnia and Herzegovina, by emphasizing human peace council in the Kalinga province—a 24 member
security, the government has used the NAP as century-old council appointed by tribal elders, which until
a platform to achieve meaningful change at the then had been exclusively male.16 The workshops also led
community level.14 The plan has facilitated a move to government officials in the municipality of Real, Quezon
away from a traditional, militarized concept of national province, passing a resolution guaranteeing 50 per
security to focus on civilian safety and protection cent women’s representation in appointed posts in local
from all forms of intimidation and threats on a daily governance bodies.

FOCUS ON

Nepal’s national action plan: A case study of a participatory approach

The armed conflict in Nepal between government combatants were female, and women were also
security forces and the Communist Party of Nepal heavily involved in bringing about an end to the
– Maoist left more than 14,000 dead and 200,000 conflict. Despite this, Nepali women were ultimately
displaced.17 Its impact on women and girls was absent from the formal peace negotiation table.18
especially devastating, including widespread sexual
and gender-based violence (SGBV). There was a In 2011, following extensive advocacy by the
high level of female participation in the conflict— Nepali women’s movement and the UN, and
approximately 30–40 per cent of the Maoist under the leadership of the Ministry of Peace and
244 Chapter 10. Member States

Reconstruction (MoPR), the Government of Nepal With support of the 1325 Action Group, Saathi, a
launched its National Action Plan on Security Council national NGO, and the MoPR undertook the latest
resolutions 1325 and 1820. The process to develop NAP Mid-Term Monitoring Report launched in October
the NAP was highly participatory from national to 2014.21 The review revealed important areas of
district level including participation by line ministries, progress, including increased awareness of how the
civil society, women’s organizations and external WPS agenda should inform policy implementation,
development partners. More importantly, the process resource allocation, and capacity-building of
included broad consultations with women and girls government and security officials. The WPS agenda
directly affected by conflict. had also increasingly been mainstreamed into wider
development efforts, such as in the delivery of basic
A key element of this successful participatory and services. Further, evaluation of implementation in
consultative approach was the partnership and Far West communities showed improved attention
joint effort of the Peace Support Working Group, a to district level NAP implementation and to the
consortium of development partners and UN entities, development of local monitoring reports submitted to
working closely with NGO and CSO networks such as the MoPR. The mid-term report also documented how
CARE, Shanti Malika and Sankalpa, who had long- women have become more active as peace agents
standing trust and good relationships with women and human rights defenders, resolving conflicts at the
and the wider community at the local level. Long-term family and community levels and assuming leadership
support from these organizations to women’s groups roles that were previously considered culturally
and their ability to facilitate participation by women to inappropriate for women.
identify their social, economic and other development
needs provided the basis for consultations on the Challenges were also reported however. There
NAP. Further, to strengthen oversight, a civil society continues to be a lack of dedicated budget to address
“1325 Action Group” was established to monitor WPS-related needs, as well as weak coordination
implementation. between responsible agencies. Difficulties remain in
terms of strengthening day-to-day implementation of
The MoPR, and ministries of Federal Affairs and localization guidelines, which require local planning
Local Development, with Nepali CSOs, developed and budgeting processes to be revised to ensure
NAP Localization Guidelines in 2013 with the goal that NAP activities are systematically incorporated.
of integrating activities directly into local planning In addition, official and accurate data regarding
processes.19 This also led to the inclusion of conflict-affected women and survivors of SGBV is
resolutions 1325 and 1820 in school curricula, and often missing, despite the fact that unofficial estimates
in police and army training.20 In terms of funding, exist. This makes it harder to push for effective action
the co-existence of both the Nepal Peace Trust by agencies, such as the Local Peace Committees.
Fund and the UN Peace Fund was instrumental to Finally, Nepali survivors of conflict-related violence,
start-up implementation by line ministries, as they including gender-based violence, continue to face
complemented each other in the NAP “localization” obstacles in seeking justice and related compensation
process. The Funds included support to the “District and reparations.
Coordination Committees” and the Local Peace
Committees (LPCs), including application of gender-
responsive budgeting to planning processes at the
district level.
 245

“Governments [must]
take concrete measures
[…] to implement
National Action Plans.
This will strengthen full
and equal participation
for women in post-
conflict decision-
making processes and
positions.”

Respondent to the civil society survey

for the Global Study, based in Iraq
246 Chapter 10. Member States

Costing and budgeting the implementation

of national action plans while managing
expectations “Success is still
There is resounding consensus that predictable and limited, due to absence
sustainable financing is a prerequisite for the effective
realization of the WPS agenda at both national and of strong in-country
international levels. However, a review of 47 NAPs in
2014 showed that only 11 had a specified budget, with
monitoring systems.
great variation in terms of the proportion of the allocated Mostly programs are
budget.22 Civil society groups expressed a great sense
of frustration and cynicism in this regard, about NAPs conducted in capitals
just being pieces of paper and idealized concepts that
will not work in underdeveloped societies.23 Unless plans
in center with very
were realistically drafted and funded, and expectations limited spread in the
properly managed, there was a danger of them falling
into disuse and only fueling cynicism within society. regions.”
To guarantee sustainable funding, a comprehensive and
realistic costing of NAPs must be carried out from the Respondent to the civil society survey for
planning stage, and specific funding earmarked for their the Global Study, working in conflict areas
implementation. Here, a preliminary institutional audit of Armenia/Azerbaijan
can be helpful, providing a government with specific
information that addresses stakeholders’ resource and
capacity constraints so as to help establish clear lines
of responsibilities and accountability. Countries including
Ireland, Norway, Rwanda, Sweden and the UK have In some settings, such as Burundi for example, a
carried out institutional audits prior to beginning their Multi-Stakeholder Financing Mechanism has been
NAP development processes. In the UK, a preliminary set up to support implementation. This has, however,
audit helped to identify existing initiatives and remaining been challenged by limited continuity and buy-in from
gaps in gender-related activities across the government.24 various stakeholders.26 In Bosnia and Herzegovina,
Clearly allocated budgets and responsibilities, which the dedicated NAP-funding mechanism supported
both include and benefit civil society organizations, by Austria, Sweden and Switzerland, and other
are a good indicator of existing commitments. At the international organizations including UN Women,
same time, some departments may back out of specific UNDP, NATO, the European Union Police Mission
commitments for lack of funding.25 (EUPM), and the European Union force (EUFOR),
has proven fundamental to translating words into
Partnerships with bilateral, regional and multilateral meaningful action.27 While donors should continue
agencies can provide an avenue to generate wider to provide predictable, long-term and substantial
political and sometimes financial support for the financial and other resources, the role of the United
national application of WPS resolutions and thus Nations—including through South-South cooperation
increase chances of success. This is especially and capacity building for both governments and civil
needed in conflict and post-conflict countries, society—is also crucial. In addition, innovative sources
where the government’s ability to fully finance their of funding and support, including from the private
commitments under NAPs is likely to be limited. sector, should be considered.
 247

FOCUS ON

Financing for the implementation of national action plans

In 2013, Cordaid and GNWP conducted a survey28 • Mechanisms for tracking and monitoring NAP
among Member States that have adopted National financing are often non-existent or inadequate.
Action Plans (NAPs), to establish the current financing
landscape of such plans. A number of common concerns • While many governments employ gender-responsive
and priorities were put forward by the respondents that budgeting, the particular approach used varies,
participated in the survey. In particular, the findings with funding for NAP implementation typically not
reaffirmed the urgency of adequate, sustained and guaranteed.
dedicated financing for the effective implementation of
NAPs as well as the broader WPS agenda. • The critical role of civil society—particularly women’s
rights organizations, networks and movements—
The main survey findings showed that:29 in NAP development and implementation is not
adequately supported, resourced or recognized.
• The majority of governments do not earmark funding
for either the development or implementation of NAPs. • There is an expressed interest in contributing to
funding a Multi-Stakeholder Financing Mechanism
• The sources and sustainability of financing for NAP for NAP implementation (a suggestion that has
implementation vary greatly, with implications for been captured within the proposal for the Global
tracking, monitoring and accountability. Acceleration Instrument for Women, Peace and
Security and Humanitarian Action; see Chapter 13:
• Many governments finance the implementation of Financing WPS).
their NAPs based on shifting national priorities and
do not fund all pillars adequately.
248 Chapter 10. Member States

Establishing robust frameworks for monitoring, and improve reporting. For example, in 2009, only six
reporting and evaluation of 15 NAPs (40 per cent) included result indicators.
By 2014, out of 47 NAPs reviewed, 30 contained
For NAPs to show concrete results in the lives of indicators for monitoring progress (close to 64 per
women, girls and their communities, their actual cent), and 19 had measurable targets, all of which
impact should be systematically monitored and included quotas on women’s participation in conflict
regularly assessed. An effective monitoring and prevention, protection, governance and recovery.33 In
evaluation system can help improve policies addition, the submission of an annual implementation
and programmes, strengthen commitment and progress report to parliament is an emerging good
partnerships, encourage accountability, and build a practice. This could be further strengthened by making
foundation for sustainable investments.30 Establishing a version of the progress report available to the public.
such a system must take place necessarily at the In three countries, Liberia, Nigeria and the US, NAP
planning stage, alongside a comprehensive context progress is reported directly to the President.34
analysis and assessment of different factors, actors,
risks and needs. The context analysis serves to create The role of civil society in collecting up-to-date
a baseline critical for future monitoring and evaluation. information on the situation of women affected by
conflict, as well as in maintaining the momentum
In Burundi, the Democratic Republic of the Congo for NAP implementation, is well recognized. While
and Rwanda, for example, the formulation of NAPs the majority of NAPs include provisions for civil
was preceded by baseline analyses using information society involvement, the level of direct participation
gathered at the community level.31 In Rwanda, such in monitoring and reporting varies. For example, in
analysis revealed the feminization of poverty as one countries such as Austria, Australia, Belgium, the
of the key underlying structural problems women Democratic Republic of the Congo, Ghana, Liberia,
face on a daily basis, a factor that impedes the full the Netherlands and the US, civil society can produce
implementation of resolution 1325. This observation shadow reports and/or are invited to comment on
provided an important foundation for post-conflict annual implementation reports as part of national
programming that could then tackle structural monitoring mechanisms. In Australia, this takes the
obstacles to women’s empowerment while also aiding form of a civil society report card that is presented
the post-conflict transitional process.32 annually in conjunction with the Australian NAP’s
progress reports.35 In Chile, the government recently
Since 2010, greater emphasis has been given to the committed to creating a space for public dialogue
development of indicators, benchmarks and targets with civil society in order to close the existing gaps in
that help measure progress on NAP implementation implementing its second NAP launched in 2015.36
 249

“NAPs, national
consultations
and monitoring,
[have] opened new
opportunities for
women’s participation
in peacebuilding and
conflict prevention on
one side and protection
of women and girls from
violence on the other.”

Respondent to the civil society survey for the Global Study,

working in conflict areas around the globe
250 Chapter 10. Member States

RECOMMENDATIONS

Moving forward beyond 2015: Proposals for action

All relevant actors—Member States, civil society, the voices of the most affected and marginalized
donors, and multilateral agencies—should: populations inform and shape relevant responses
and monitoring of progress.
✓ Document best practices, and promote and adopt
global standards for the design, monitoring and ✓ Provide capacity building and support the
implementation of high-impact NAPs, and other development, financing, implementation and
women, peace and security domestication tools, monitoring of NAPs in conflict-affected countries
building on lessons learned across the areas of: that lack the resources to initiate and sustain a NAP
a) leadership and coordination, b) inclusion and development and implementation process, through
collaboration with civil society, c) costing and partnerships, bilateral and multilateral cooperation,
financing, d) monitoring and evaluation, and e) including through North-South, South-South and
flexibility and adaptability of plans. triangular cooperation, and with civil society.

✓ Strengthen national and global reporting The UN should:

mechanisms for monitoring progress in the
development and implementation of NAPs, to ✓ Facilitate the establishment, by the UN Standing
enhance transparency and facilitate exchange of Committee on Women, Peace and Security, of a
learning, and scale up good practice. comprehensive and accessible database of NAPs
to share good practices, lessons learned, and
ensure transparency and accountability.
Member States should:
✓ Ensure the proposed new Assistant Secretary-
✓ Support and invest in participatory processes, General for Crisis and Conflict role at UN Women
social accountability tools and localization initiatives includes a specific focus on monitoring and
to link global, national and local efforts and ensure reporting on NAPs.
 251

REFERENCES
1. Afghanistan, Australia, Austria, Belgium, Bosnia 12. “Planning for Action on Women Peace and Security:
and Herzegovina, Burkina Faso, Burundi, Canada, National-Level Implementation of Resolution 1325
Central African Republic, Chile, Cote d’Ivoire, Croatia, (2000),” 38.
Democratic Republic of Congo, Denmark, Estonia,
13. “Nairobi Symposium: Maximizing Impact of Women,
Finland, France, Gambia, Georgia, Germany, Ghana,
Peace and Security Policies in Africa” (Nairobi, Kenya:
Guinea, Guinea Bissau, Iceland, Indonesia, Iraq, Ireland,
Institute for Inclusive Security, July 22, 2014), 7.
Italy, Korea, Republic of Kosovo-SCR 1244 (1999),
Kyrgyzstan, Liberia, Lithuania, Macedonia, FYR, Mali, 14. “Implementation of the UN SC Resolution 1325
Nepal, Netherlands, Nigeria, Norway, Philippines, (2000) in Bosnia and Herzegovina from 2000 to
Portugal, Rwanda, Senegal, Serbia, Sierra Leone, 2015,” Submission to the Global Study (Bosnia and
Slovenia, Spain, Sweden, Switzerland, Tajikistan, Togo, Herzegovina, Ministry for Human Rights and Refugees,
Uganda, United Kingdom, and United States. Gender Equality Agency of Bosnia and Herzegovina,
February 12, 2015).
2. Argentina, Bangladesh, Bulgaria, Greece, Guatemala,
Japan, Jordan, Kazakhstan, Kenya, State of Palestine, 15. “Implementing Locally, Inspiring Globally: Localization
Papua New Guinea, Paraguay, Solomon Islands, of UNSCR 1325 and 1820,” Submission to the Global
Somalia, South Africa, South Sudan, Thailand and Study (Global Network of Women Peacebuilders, March
Timor-Leste. 2, 2015).
3. Malika Bhandarkar, “Mapping Progress of WPS Action 16. Ibid., 4.
Plans” (UN Women, August 2014).
17. “Beyond 2015 for Women, Peace and Security: CARE
4. Ibid. International Position on the 15th Anniversary of
UNSCR 1325,” Submission to the Global Study (CARE
5. For an analysis of eleven NAPs adopted between
International, 2015), 6.
2005 and 2009, see Belgin Gumru and Jan Marie
Fritz, “Women, Peace and Security: An Analysis of the 18. “From Resolution to Reality: Lessons Learned
National Action Plans Developed in Response to UN from Afghanistan, Nepal and Uganda on Women’s
Security Council Resolution 1325,” Societies Without Participation in Peacebuilding and Post-Conflict
Borders 4, no. 2 (July 1, 2009): 209–25. See also, Governance” (CARE International, January 2010).
Sahana Dharmapuri, “A Survey of UN 1325 National
19. “Localization Guideline 2013: National Action Plan
Action Plan Mechanisms for Implementation, Monitoring,
on the Implementation of the United Nations Security
Reporting and Evaluation,” Discussion Paper (U.S. Civil
Council Resolutions 1325 & 1820” (Government of
Society Working Group on Women, Peace and Security,
Nepal, Ministry of Peace and Reconstruction, February
November 2011).
20, 2013).
6. The Institute for Inclusive Security coined and
20. “Implementing Locally, Inspiring Globally: Localization of
developed the term ‘high-impact NAP’ and has
UNSCR 1325 and 1820,” 4.
developed numerous resources on the topic. For more
information on NAPs, including a training course on 21. “National Action Plan on Implementation of United
the development of high-impact NAPs, see https:// Nations Security Council Resolutions 1325 & 1820:
actionplans.inclusivesecurity.org/. Nepal Mid-Term Monitoring Report” (Ministry of Peace
and Reconstruction, Government of Nepal, 1325 Action
7. Natalia Zakharova, “Women and Peace and Security:
Group Nepal, Saathi, October 2014).
Guidelines for National Implementation,” in UN Women
Sourcebook on Women, Peace and Security (UN 22. Bhandarkar, “Mapping Progress of WPS Action Plans.”
Women, 2012).
23. “Global Report: Civil Society Organization (CSO) Survey
8. Ibid., 12. for the Global Study on Women, Peace and Security:
CSO Perspectives on UNSCR 1325 Implementation 15
9. “Planning for Action on Women Peace and Security:
Years after Adoption,” 31.
National-Level Implementation of Resolution 1325
(2000)” (United Nations, International Alert, 2010), 50. 24. “Planning for Action on Women Peace and Security:
National-Level Implementation of Resolution 1325
10. Ibid., 35–37.
(2000),” 45.
11. Christin Ormhaug, “OSCE Study on National Action
25. Aisling Swaine, “Assessing the Potential of National
Plans on the Implementation of the United Nations
Action Plans to Advance Implementation of United
Security Council Resolution 1325” (Peace Research
Nations Security Council Resolution 1325,” Yearbook of
Institue Oslo (PRIO), Organization for Security and Co-
International Humanitarian Law 12 (December 2009): 425.
Operation in Europe (OSCE), September 2014), 40.
252 Chapter 10. Member States

26. Natalie Raaber, “Financing for the Implementation of 31. “Advancing National Action Plans, Regional Action
National Action Plans on Security Council Resolution Plans, and Twinning on Women, Peace and Security,”
1325: Critical for Advancing Women’s Human Rights, Working Paper (Civil Society Advisory Group to the UN
Peace and Security” (Cordaid, The Global Network of on Women, Peace, and Security, October 2012).
Women Peacebuilders, October 2014), 27.
32. Natalie Florea Hudson, “National and Regional
27. “Global Technical Review Meeting: Building Implementation of Security Council Resolutions on
Accountability for Implementation of Security Council Women, Peace and Security,” Background Paper (UN
Resolutions on Women, Peace and Security” (Glen Women, 2013).
Cove, New York: UN-Women, November 5, 2013), 22.
33. Bhandarkar, “Mapping Progress of WPS Action Plans.”
28. Raaber, “Financing for the Implementation of National Action
34. Ibid.
Plans on Security Council Resolution 1325: Critical for
Advancing Women’s Human Rights, Peace and Security.” 35. Susan Hutchinson, “Australian Case Study of Civil
Society Engagement with Government on the National
29. Ibid., 4.
Action Plan,” Submission to the Global Study (WILPF
30. What Matters Most: Measuring Plans for Inclusive Security” Australia, March 30, 2015).
(Inclusive Security, November 2014); “Recommendations for
36. “Report on the Implementation of UN Security Council
Reviewing and Revising National Action Plans on Women,
Resolution 1325 in Chile,” Submission to the Global
Peace and Security,” Submission to the Global Study
Study (Permanent Mission of Chile to the United
(Inclusive Security, September 2014). For more information on
Nations, March 2, 2015).
NAPs, including a training course of the development of high-
impact NAPs, see https://actionplans.inclusivesecurity.org/.
 253

REGIONAL ORGANIZATIONS
254 Chapter 10. Regional Organizations

HIGHLIGHTS FROM THE RESOLUTIONS

Resolution 1820 Resolution 1888

Urges appropriate Urges the Secretary
regional and sub-regional General, Member States
bodies in particular to and the heads of regional
consider developing and organizations to take
implementing policies, measures to increase the
activities, and advocacy representation of women in
for the benefit of women mediation processes and
and girls affected by decision-making processes
sexual violence in armed with regard to conflict
conflict resolution and peacebuilding

2008 2009

Resolution 2106
Reiterates the importance of addressing
sexual violence in armed conflict whenever
relevant, in mediation efforts, ceasefires
and peace agreements; requests the
Secretary-General, Member States and
regional organizations, where appropriate,
to ensure that mediators and envoys
[…] engage on sexual violence issues,
 255

Resolution 2122
Further recognizes with concern that without
a significant implementation shift, women
and women’s perspectives will continue to
be underrepresented in conflict prevention,
resolution, protection and peacebuilding for the
foreseeable future, and as such encourages
those Member States, regional organizations as
appropriate, and United Nations entities […] to
start reviewing existing implementation plans and
targets

2013

including with women, civil society,

including women’s organizations and
survivors of sexual violence, and ensure
that such concerns are reflected in
specific provisions of peace agreements,
including those related to security
arrangements and transitional justice
mechanisms
256 Chapter 10. Regional Organizations

Since 2000, the magnitude and complexity of global for the Democratic Republic of the Congo and the
security threats, crises and intra-state conflicts that Region1 by 11 countries under the auspices of the AU,
frequently spill across borders have prompted an the International Conference on the Great Lakes Region
increase in regional approaches to security management, (ICGLR), the Southern African Development Community
peacemaking, protection and prevention. Cooperation (SADC) and the United Nations is one concrete example
in the area of peace and security between the United of intensified cooperation and new partnerships.
Nations and regional and sub-regional organizations
such as the African Union (AU) and the European Regional consultations for this Study highlighted the
Union (EU) has intensified, with specific application in numerous ways in which regional and sub-regional
countries such as the Central African Republic, Mali, organizations have integrated global women, peace
Somalia and Sudan, and with the North Atlantic Treaty and security commitments within their security, crisis-
Organization (NATO) in Afghanistan. The adoption in response, human rights or peacebuilding efforts since
2013 of the Peace, Security and Cooperation Framework 2000. This includes: the adoption of specific regional
policy frameworks, monitoring tools and action plans;
development of jurisprudence on women’s rights;
appointment of high-level representatives to drive action
on women, peace and security; closer engagement
“How can political, with women’s organizations to strengthen early warning
systems; and interventions to boost technical gender
economic and social expertise within these regional organizations. Analysis
institutions be indicates, however, that progress made by these
initiatives—and the leadership support they receive—is
strengthened in such a highly uneven across regions and sub-regions. As a
consequence, the results on the ground remain mixed
manner that they work or too recent to properly assess.

harmoniously to replace
the legacy of conflict REGIONAL POLICIES AND ACTION PLANS
ON WOMEN, PEACE AND SECURITY
and violence with a
As of May 2015, five organizations—the Economic
new, inclusive and more Community of West African States (ECOWAS),2 the
people-centred order EU,3 the Inter-Governmental Authority on Development
(IGAD),4 NATO,5 and the Pacific Islands Forum (PIF)6
of relations in support —had adopted dedicated regional action plans (RAPs)
on women, peace and security. Other notable regional
of achieving sustainable initiatives since 2010 include:

development?” • the development of a strategy on ‘Protection of

Arab Women: Peace and Security’ by the League
Rosa Emilia Salmanca, keynote remarks, of Arab States (which is to be complemented by a
UN General Assembly Thematic Debate on regional action plan on women, peace and security
“Ensuring Stable and Peaceful Societies,” 24 in 2015);7
April 2014
• the adoption of an action plan for the
implementation of resolution 1325 in support of the
 257

no voice nationally because of structural issues or

discrimination, for example through mechanisms such
Stronger take-up of the as the African Commission on Human and Peoples’
WPS agenda by key Rights and the European Court of Human Rights. The
effectiveness of RAPs, however, depends largely on a
regional organizations has number of factors including: the political commitment
contributed to an increase underpinning their implementation; the existence
in related NAPs by Member of a conducive environment; the involvement and
States. strength of civil society; adequate financial, human and
technical resources; coordinated implementation; and
a strong regional monitoring and evaluation system.

In a number of regions, stronger take-up of the

Peace, Security and Cooperation Framework for the WPS agenda by key regional organizations has
Democratic Republic of the Congo (DRC) and the contributed to an increase in related NAPs by
Region; and Member States. For instance, in West Africa, where
Member States committed to the development of
• the AU’s launch of a new major five-year Gender, NAPs in the ECOWAS regional action plan, 12 out
Peace and Security Programme for 2015-2020.8 of 15 countries developed these plans within three
years of its adoption. In the EU, by May 2015, 17
Increasingly, regional organizations have improved out of 28 Member States had developed NAPs and
sector-specific guidance and strategic planning tools a number supplemented these with additional policy
that integrate women’s human rights and gender guidance related to women, peace and security.
perspectives, including in areas such as mediation, In the Pacific Islands region, the RAP guided the
security sector reform, transitional justice, disaster risk development of national plans in the Solomon Islands
reduction and countering violent extremism; building and the Bougainville Autonomous Region of Papua
on global normative frameworks on women, peace and New Guinea. Regional organizations can also play
security. a key role in capturing and sharing lessons learned
and good practices across their Member States. The
Regional and sub-regional policies and action plans OSCE, for example, in cooperation with the Peace
on women, peace and security can be complementary Research Institute Oslo (PRIO) published a study
and mutually reinforcing to national action plans analyzing the 27 NAPs in the region, highlighting
(NAPs), as well as to other national and regional good practices, gaps and challenges.10 OSCE, along
human rights and related sectoral policies and action with UN Women and partners also informed the NAP
plans. They can help promote peace and security development process in the Ukraine initiated in 2015.
in the context of cross-border conflicts, for example
the monitoring of pastoralist conflicts in the Horn of
Africa’s region; the facilitation of dialogue between IMPROVING THE REPRESENTATION OF
Serbia and Kosovo by the European Union, and WOMEN IN REGIONAL ORGANIZATIONS
efforts by the Association of Southeast Asian Nations
(ASEAN) in 2011 that resulted in the cessation of The promotion of women’s human rights, leadership and
violence along the Thai-Cambodian border. They meaningful participation is core to advancing regional
provide opportunities to share limited resources and organizations’ global and regional commitments, as well
build on neighbors’ experiences, often in similar as the recruitment and appointment of women to senior
historical, cultural, and socio-economic contexts.9 positions.
They also may give access to groups who may have
258 Chapter 10. Regional Organizations

Data shows an overall upward trend in the (11 per cent) and 31 out of 135 positions in country
representation of women in senior positions in offices and missions (23 per cent). Although one of the
regional organizations since 2012,11 although spotty two EEAS mediators in 2014 was a woman, women
data availability prevents more robust trend analysis, held only one out of 10 (10 per cent) of the special
and much of the data that does exist points to envoy and representative positions.13
continued low levels of women’s representation in
key areas of staffing. Information provided by NATO In the case of the Pacific Island Forum Secretariat, women
for instance showed that women held six out of 38 held four out of seven headquarters-based executive
executive leadership positions (16 per cent) at NATO positions (57 per cent), but the rate of female special
headquarters12 as of December 2014, and two out of representatives or envoys was low—five per cent (just two
seven in country offices (28 per cent). In addition, one out of 36) .14 Notable achievements have been made by
of the two NATO Special Representative positions was the AU Commission. Not only has parity been reached
held by a woman, bringing the overall rate of women among its Commissioners, but in terms of top leadership,
holding leadership positions to 19 per cent—still low. In the appointment of Ms. Nkosazana Dlamini-Zuma as
the EU’s External Action Service (EEAS) women held the AU Commission Chairperson in 2012 signaled an
three out of 28 headquarters-based executive positions important shift in female representation.

FOCUS ON

Building capacity on gender within NATO

NATO’s efforts in implementing resolution 1325 and of the Operational Plan and generation of forces. The
related commitments on women, peace and security Resolute Support Mission was also the first mission
have led to considerable strengthening of gender where Allies and Partner Nations made the required
expertise and capacity within the organization. gender expertise available at all levels from the very
A 2012 review found that whilst a robust policy start of the mission.16
platform had been established, the challenge lay
in putting the policies into practice throughout the A well-functioning network of gender advisors and
entire organization.15 Among other things, the review focal points are now in place across both civilian
recommended that every Commander’s initial mission and military elements of NATO institutions and field
analysis be informed by resolution 1325, and that commands. Gender advisor posts are fully established
relevant planning, report and assessment tools be and budgeted, and advisors are trained at the Nordic
revised to include a gender perspective. Center for Gender in Military Operations.17 In recent
years, much has also been invested in developing and
The Resolute Support Mission in Afghanistan was a improving gender training for all categories of staff,
key step forward in this context. Its planning process including pre-deployment training, to raise awareness
showed that integrating a gender perspective is no about the responsibilities of all staff to implement
longer an afterthought but part of the entire planning commitments on women, peace and security and build
cycle, from political decision-making to development their capacity to do so.
 259

International
organizations
must support local
organizations by building
their capabilities
and strengthening
their international
position to be effective
internationally,
regionally, and locally.

Respondent to the civil society survey for the

Global Study, based in Iraq
260 Chapter 10. Regional Organizations

BUILDING GENDER EXPERTISE missions, also cover other interrelated issues such as
women’s human rights.19
The adoption of resolution 1325 and related global
commitments on women, peace and security have had
a tangible influence on the gender-responsiveness HIGH-LEVEL REPRESENTATIVES OR
and architecture of regional security organizations. ENVOYS ON WOMEN, PEACE AND
Within the OSCE it added momentum for creating SECURITY
support mechanisms such as a Gender Section
in the Secretariat, a Gender Unit within the Office The appointments of dedicated advocates have
for Democratic Institutions and Human Rights, and also contributed to strengthening collaboration and
the establishment of a Gender Focal Point System partnerships between these organizations and the UN,
throughout the Organization. A notable development as manifested through the adoption of Memorandums
was the inclusion of a gender advisor at the very of Understanding, joint missions and initiatives.
outset of the establishment of the OSCE Special Regional envoys have increasingly been appointed
Monitoring Mission in Ukraine after the 2014 crisis.18 to coordinate and drive action.20 These high-level
Similarly, the AU established civilian protection and dedicated posts have demonstrated real impacts for
gender units in its field missions, for example in their respective organizations. The NATO Secretary
Somalia (AMISOM) and in Darfur (UNAMID) and General appointed the first Special Representative
included gender experts in post-conflict needs for Women, Peace and Security in August 2012 to
assessment teams. serve as the high-level focal point on all aspects of
NATO’s contributions to the WPS agenda. The position
The EU’s work on women, peace and security is has now been formalized into a permanent NATO
supported by gender advisors and focal points in senior staff position within the office of the Secretary
different sections at its headquarters, as well as General.21 As at June 2015, discussions were
by the informal EU Task Force on Security Council underway on the appointment of a similar position
resolution 1325, consisting of representatives of EU within the EU. Further, in January 2014, Bineta Diop
Member States and institutions. At present, all of the was appointed the first Special Envoy for Women,
16 Common Security and Defense Policy missions Peace and Security of the African Union Chairperson.
currently deployed by the EU have either a gender
advisor or a focal point who, in the majority of
EXPANDING CAPACITY TO MONITOR AND
EVALUATE RESULTS

Since 2010, regional and sub-regional organizations

Regional envoys have have strengthened their efforts to build systems for
monitoring progress, evaluating results and sharing
increasingly been good practice on the implementation of the WPS
appointed to coordinate agenda. For example:
and drive action. These
high-level dedicated posts • The Council of the EU has adopted a set
of indicators to assess progress on their
have demonstrated real Comprehensive Approach to the implementation
impacts for their respective of Security Council resolutions 1325 and 1820.22
organizations. Building on lessons learned in compiling data,
these are currently under review to enhance
measurability and effectiveness.
 261

FOCUS ON

The first year of the AU Special Envoy on Women, Peace and Security

“Achieving our goal of silencing the guns by 2020 for the release of the Chibok girls, as well as highlighted
requires a complete paradigm shift. We need to the importance of education for girls in the face of
think out of the box, we need to innovate, to build the Boko Haram onslaught against education.23 In the
solidarity, chains among women, to reach out to Central Africa Republic, her joint visit with UN Women
traditional leaders, religious leaders, involve our Executive Director, Dr. Phumzile Mlambo-Ngcuka, in
men and educate our boys.” May 2014, led to a joint plan of action between the
UN and AU for support to women’s participation in
Bineta Diop, Special Envoy on Women, Peace and forthcoming elections, rule of law reform and transition
Security of the Chairperson of the African Union mechanisms.
Commission.
In March 2014, the Special Envoy was appointed to
Since her appointment in 2014, Special Envoy Bineta the AU Commission of Inquiry on South Sudan. Her
Diop has been working to promote an end to the engagement facilitated close interactions with South
victimization of women and children during conflicts, and Sudanese women, ensuring there was specific focus on
to advocate for women’s participation in peacebuilding the crimes committed against them during the conflict,
and state-building processes. In her first year, the and reinforcing the importance of women’s involvement
Special Envoy’s approach focused on understanding the in the peace process. In December 2014, the AU Peace
realities of conflict-affected communities through direct and Security Council urged the African Commission,
interactions to hear their views. through the coordination of the Office of the Special
Envoy, to formulate a Continental Results Framework to
She undertook solidarity missions to the Central African monitor the implementation by AU Member States and
Republic, Nigeria and Somalia. In Nigeria, her visit lent other relevant stakeholders of commitments on women,
visibility to the efforts of Nigerian women in their fight peace and security in Africa.
262 Chapter 10. Regional Organizations

• NATO included a monitoring and evaluation Further opportunities for cross-learning and
framework with indicators in its 2014 Action Plan information sharing should be explored. These could
for policy implementation on women, peace and include mechanisms for the dissemination of women,
security. As part of a stronger commitment to peace and security-related statistics and other
monitoring and reporting, Allies and Partner Nations information collected at global, regional and national
are briefed every six months on progress made, levels; and stronger engagement of beneficiaries in
and the NATO Secretary-General is obliged to the design, implementation and evaluation of projects
publish an Annual Report on the implementation of and programmes. One area where little comparable
the Policy on Women, Peace and Security.24 information is available, that would benefit from greater
information sharing and cooperation, is the financing
• In 2015, the AU initiated the development of a of regional initiatives on women, peace and security.
Continental Results Framework on Women, Peace More must also be done to formally engage and
and Security in Africa. This will build on the notable partner with local women peace leaders, women’s
policy-level advancements across the continent in human rights defenders and other civil society
recent years, and will include recommendations organizations in the work of regional organizations.
for improving institutional capacities for sex- Such engagement and partnership can usefully
disaggregated data collection, particularly in fragile contribute to strengthening regional and national
and post-conflict settings, including through the efforts of implementation of the global WPS agenda,
deployment of gender experts, capacity building as well as monitoring of implementation.
and technology development, and by strengthening
national statistical institutions.25
 263

RECOMMENDATIONS

Moving progress beyond 2015: Proposals for action

Member States should: ✓ Increase engagement and interaction with

international and regional human rights mechanisms
✓ Ensure adequate funding and political will to to ensure full consideration of women’s human
effectively implement regional policies and action rights, a central component of the WPS agenda.
plans on women, peace and security, as well as other
interrelated policies, sector-specific action plans and ✓ Establish a network of women’s human rights
strategies. and gender advisors and focal points to further
mainstream gender perspectives across all
✓ Support and fund the attendance and meaningful workstreams.
participation of civil society organizations in regional
decision-making processes Regional organizations and the UN should:

Regional organizations should: ✓ Collaborate to establish avenues for cross-

learning and information exchange on gender-
✓ Appoint high-level women, peace and security sensitive priorities and concerns pertaining to the
representatives to drive implementation at the regional implementation of the WPS agenda, including by
level, building on the experience of the AU and NATO. integrating these issues in joint dialogues and
intergovernmental meetings on cooperation between
✓ Establish channels for women leaders and civil society the UN and regional organizations in the areas of
organizations to systematically contribute to the peacemaking, preventive diplomacy, peacekeeping
conflict-prevention and peacebuilding work of regional and peacebuilding—such as the regularly scheduled
organizations, including by establishing regional meetings between the UN Security Council and AU
advisory bodies of women peace leaders. and EU.

✓ Build regional capacity for monitoring and reporting on

progress in the implementation of the WPS agenda.
264 Chapter 10. Regional Organizations

REFERENCES
1. “A Framework of Hope: The Peace, Security and 12. This covers NATO headquarters international staff,
Cooperation Framework for the Democratic Republic excluding International Military Staff and Delegations.
of Congo and the Region” (Office of the Special Envoy
13. “European Union - Input to the Global Study on Women,
of the Secretary-General for the Great Lakes Region of
Peace and Security” (European Union, March 2015).
Africa, 2013).
14. “Pacific Islands Forum Secretariat Input for Global
2. The ECOWAS first Plan of Action for the implementation
Study on the Implementation of UNSCR 1325 - Annex
of UNSCRs 1325 and 1820 was adopted in Dakar,
II - Indicator Reporting Template” (Pacific Islands Forum
Senegal in September 2010, during the celebration of the
Secretariat, 2015).
10th Anniversary of resolution 1325 (2000).
15. “Review of the Practical Implications of UNSCR 1325
3. In 2008, the EU adopted the “Comprehensive Approach
for the Conduct of NATO-Led Operations and Missions”
to the EU implementation of the UNSCRs 1325 and
(NATO, Nordic Centre for Gender in Military Operations,
1820 on WPS” which in 2010 was complemented by
Swedish Defence Research Agency (FOI), 2013).
a set of indicators that form the basis for reporting on
implementation. 16. “Submission of NATO to the Global Study” (North Atlantic
Treaty Organization (NATO), March 23, 2015), 4.
4. The IGAD-RAP for 2011- 2015 to implement UNSCRs
1325 (2000) and 1820 (2008) was one of the core 17. Ibid., 10.
outcomes of the IGAD Women and Peace Conference
18. Ormhaug, “OSCE Study on National Action Plans on the
held between 26th and 29th April 2011 in Addis Ababa,
Implementation of the United Nations Security Council
Ethiopia.
Resolution 1325.”
5. A revised NATO policy and Action Plan on Women,
19. “European Union - Input to the Global Study on Women,
Peace and Security were developed in 2014 with NATO’s
Peace and Security,” 13.
partners in the Euro-Atlantic Partnership Council (EAPC),
as well as with Afghanistan, Australia, Japan, Jordan and 20. These appointments are mirrored at the national level,
the United Arab Emirates, and with New Zealand as an with ambassadors in countries including the United
associate. All together 50 Nations have signed up for the States, Australia and Sweden working as dedicated
Policy and Action Plan. advocates for gender equality.
6. The Pacific Regional Action Plan: Women, Peace and 21. “Submission of NATO to the Global Study,” 5. Following
Security, adopted in 2012, covers the period 2012- Norwegian diplomat Mari Skåre, Dutch diplomat Marriët
2015. A Pacific Islands Forum Reference Group was Schuurman was appointed the NATO Secretary General’s
established to provide oversight and initial funding was Special Representative for Women, Peace and Security in
obtained from Australia to support its implementation. October 2014.
7. “The Arab Region Report on the Implementation of the 22. For a full list of indicators, see “Indicators for the
UNSCR 1325 and The Regional Strategy on Protecting Comprehensive Approach to the EU Implementation of
Women in the Arab Region” (League of Arab States, June the United Nations Security Council Resolutions 1325
2015). and 1820 on Women,” July 14, 2010. Data is compiled
and reported bi-annually, but availability is still low for
8. “African Union Launches Five-Year Gender Peace and
some of the indicators.
Security Programme 2015-2020,” African Union - Peace
and Security Department, June 2, 2014, http://www. 23. “Report of the Special Envoy on Women, Peace and
peaceau.org/en/article/african-union-launches-five-year- Security of the Chairperson of the African Union
gender-peace-and-security-programme-2015-2020. Commission” (African Union Commission, January 30,
2014).
9. “Advancing National Action Plans, Regional Action Plans,
and Twinning on Women, Peace and Security,” Working 24. “Submission of NATO to the Global Study,” 4.
Paper (Civil Society Advisory Group to the UN on
Women, Peace, and Security, October 2012). 25. “Towards a Continental Results Framework on Women,
Peace and Security in Africa,” Recommendations
10. Christin Ormhaug, “OSCE Study on National Action Plans from High Level Side Event to the 59th Session of the
on the Implementation of the United Nations Security Commission on the Status of Women (Conference Room
Council Resolution 1325” (Peace Research Institute Oslo 11, UN HQ: Office of the Special Advisor on Africa
(PRIO), Organization for Security and Co-Operation in (OSAA), African Union (AU), UN Department of Public
Europe (OSCE), September 2014). Information (DPI), UN Women, NGO Working Group on
Women, Peace and Security, Femmes Africa Solidaritẻ
11. See, e.g., “Report of the Secretary-General: Women
(FAS), March 10, 2015).
and Peace and Security,” UN Doc. S/2014/693 (United
Nations Security Council, September 23, 2014).
 265

THE UNITED NATIONS

266 Chapter 10. The United Nations

HIGHLIGHTS FROM THE RESOLUTIONS

Resolution 1325 Resolution 1888

Further urges the Secretary- Expresses its intention to
General to seek to expand ensure that resolutions
the role and contribution of to establish or renew
women in United Nations peacekeeping mandates
field-based operations, contain provisions, as
and especially among appropriate, on the
military observers, civilian prevention of, and response
police, human rights and to, sexual violence, with
humanitarian personnel corresponding reporting
requirements to the Council

2000 2008 2009

Resolution 1820 Resolution 1960

Requests the Secretary-General, Requests the Secretary-
where appropriate, to encourage General to track and monitor
dialogue to address this issue implementation of these
(sexual violence) in the context commitments by parties to
of broader discussions of conflict armed conflict on the Security
resolution between appropriate Council’s agenda that engage
UN officials and the parties to the in patterns of rape and other
conflict, taking into account, interalia, sexual violence, and regularly
the views expressed by women of update the Council in relevant
affected local communities reports and briefings
 267

Resolution 2122
Requests the Secretary-General to
strengthen the knowledge of negotiating
delegations to peace talks, and members
of mediation support teams, on the gender
dimensions of peacebuilding, by making
gender expertise and gender experts
available to all United Nations mediation
teams

2010 2013

Resolution 2106
Recognizes the distinct role of Gender
Advisors in ensuring that gender perspectives
are mainstreamed in policies, planning and
implementation by all mission elements; calls
upon the Secretary-General to continue to
deploy Gender Advisors to the relevant United
Nations peacekeeping and political missions as
well as humanitarian operations and to ensure
comprehensive gender training of all relevant
peacekeeping and civilian personnel
268 Chapter 10. The United Nations

Perhaps the most visible progress made in the area of

women, peace and security over the past decade and
a half has been a near universal recognition of the “Advancing the
critical role of women in preventing and responding to
conflict, and building peace. This shift is evidenced in cause of women,
the growth of the normative framework in the Security
Council, the integration of these norms into the work peace and security
of other UN bodies, the accelerated creation of
national action plans on women, peace and security,
must be integral to
and the evocation of these commitments in statements our peacemaking,
of Member State delegates during deliberations
and debates. As just one example of this, when the peacekeeping, and
Security Council convened an Arria formula meeting
in January 2014 to hear the views of Syrian women
peacebuilding efforts,
on the conflict in their country—a convening that not an afterthought.”
itself would have been unlikely just five years ago—
participation in the meeting was at ambassador level
for most Council members, and each seemed to read Ban Ki-moon,
from the script; reiterating the need for an inclusive United Nations Secretary-General
process and noting the importance of women’s
participation. While a growth in norms, policy, and
rhetoric cannot on its own lead to the impactful
change needed on the ground in conflict-affected
countries, it establishes standards against which
key actors can be held to account, measuring their seen as lacking, with limited perceived impact
actions against their own commitments and rhetoric. on the ground. Those consulted shared the view
that the expectations of where the UN should stand
The UN, as a body responsible for establishing these with regards to progress in the implementation of
global norms, has a particular responsibility to ensure the women, peace and security (WPS) agenda are
their full implementation within its own efforts, and considerably higher than the results to date. In
provide a model of leadership for others. In line with responses to a global civil society survey undertaken
this, the UN has gradually integrated commitments as a contribution to this Study and the 2015 High-
on gender equality, women’s human rights, and Level Review,1 slightly over half of respondents
empowerment into entity-specific policies, guidance, indicated that the UN works too much with larger
training, monitoring and reporting. More entities are organizations and not enough with grassroots
employing technical gender expertise to inform their organizations, and that processes are too slow
work. At headquarters, there has been a push to and bureaucratic. Furthermore, almost one third
develop common frameworks to monitor the UN’s of respondents saw lack of coordination between
work in this area, and to improve accountability. And UN entities and donor countries on the ground as
at the highest levels, increased attention has gone a major challenge. These views from those who
towards improving the gender balance of the UN should be the beneficiaries of the WPS agenda point
workforce, including in leadership positions. to the need for much more to be done to integrate
gender and women’s participation in all areas of the
Despite this progress, global consultations for UN’s peace and security efforts. New and innovative
this Study revealed that these efforts are still ways of working should be sought which prioritize
 269

outcomes, address specific obstacles to women’s IMPROVING SYSTEMS FOR MONITORING

participation, make more effective use of existing PROGRESS AND COORDINATING ACTION
capacities and resources, scale up investments, and
demonstrate more effective senior leadership to bring In October 2010, in a ministerial-level meeting of the
the UN in line with expectations and ensure that it is Security Council, the Secretary-General pledged the
indeed ‘fit for purpose’ in the current context. development of a more comprehensive and measurable
approach to implementing resolution 1325 (2000) in
This chapter examines three distinct but the UN system. This was in response to a global call
interconnected areas where the UN system must for enhanced accountability and action.2 A number of
focus greater attention to effectively accelerate key initiatives have been established since then. These
implementation of the WPS agenda: enhancing include the Secretary-General’s Seven-Point Action
system-wide accountability, coordination and Plan on Gender-Responsive Peacebuilding , the set of
coherence; increasing women’s representation and indicators to track the implementation of resolution 1325,
leadership both at headquarters and in the field; and and the UN’s Strategic Results Framework on Women,
strengthening the UN’s gender architecture. Peace and Security, all of which are closely related.

FOCUS ON

UN monitoring and accountability frameworks on women, peace and security

The Secretary-General’s Seven-Point Action Plan for as an annex to the annual Secretary-General report
Gender-Responsive Peacebuilding3 sets out the most on women, peace and security.6 The set includes
tangible set of targets to date across the following 26 indicators.7 Several Member States and regional
areas: mediation, post-conflict planning and financing, organizations have adapted indicators from this set to
governance, rule of law and women’s economic their own national/regional needs and are including
recovery. Notably, under the area of financing, the them in their own monitoring frameworks, including
Secretary-General committed the UN system to national action plans on women, peace and security.8
allocate at least 15 per cent of UN-managed funds
in support of peacebuilding to projects that address To further guide the UN’s own implementation of
women’s specific needs, advance gender equality resolution 1325, the Security Council requested the
or empower women as their principal objective. The development of a strategic framework.9 This resulted in
action plan was endorsed by the UN Policy Committee, the UN Strategic Results Framework (SRF) on Women,
and the Secretary-General included its implementation Peace and Security.10 The SRF measures progress
among his priorities for his second term. As of attained by UN entities across several functional areas
September 2013, 12 UN Country Teams had including: gender expertise and gender balance;
volunteered to spearhead implementation of the plan.4 planning and financing; the promotion of women’s
The global set of indicators to track implementation participation, security and their rights; monitoring and
of resolution 1325 was developed at the request of reporting; and consultative mechanisms with women
the Security Council5 and presented in October 2010 leaders and groups.11
270 Chapter 10. The United Nations

Each of these UN accountability frameworks has ENSURING THE UN IS LEADING BY

contributed to better quality information on progress, EXAMPLE: REPRESENTATION AND
implementation trends and good practices across LEADERSHIP
a range of areas.12 They have also cast a light
on areas of stagnation and regression, such as
women’s representation in managerial positions in Women’s representation among UN staff
the UN system, the financing of the WPS agenda and
weaknesses in the UN gender architecture. In 1987, Dame Margaret Anstee became the first woman
to be named an Under-Secretary-General of the UN
An internal assessment of the above-mentioned (USG)—42 years after the organization’s founding.15
monitoring frameworks explored how to use the Since then, more women have been appointed to senior
findings effectively to inform policy change, planning, leadership positions, particularly as heads of missions.
resource allocation and programming.13 Key findings In the last decade, driven by the Secretary-General’s
include the limited usability of the frameworks for commitment to this issue, the numbers are markedly
accountability and advocacy purposes owing to the higher. The proportion of peacekeeping and special
existence of three separate but related UN frameworks political missions headed by women has fluctuated since
on the same issue. In addition, several of the targets 2011, with rates between 15 to 25 per cent.16 An all-time
and indicators attached to these frameworks are high was reached by DPKO in May 2015 with almost 40
complex and—as currently framed—immeasurable. per cent of peacekeeping missions led by a woman. There
Progress to date is most visible within entities that has also been a positive trend in the number of women
have benefited from senior leadership support and deputy-heads: in 2011 only 15 per cent of field missions
managed to integrate system-wide commitments into were deputy-headed by women; by 2014 this number had
entity-specific frameworks and tools.14 Harmonizing reached 24 per cent although it declined once more to 19
the various frameworks, refining indicators and targets, per cent as of January 2015. There is a considerable way
separating progress from outcome measures and to go however to reach gender parity, called for as a goal
securing the necessary political support from each by 2015, in the positions of special representatives and
of the responsible entities as well as from senior UN special envoys,17 and the overall pace of progress across
leadership would make a significant difference in all levels of UN staff has remained slow.
implementation.

Peacekeeping and Special Political Missions headed and subheaded by women18

30

25

20 % Missions headed by
women
15 % Missions subheaded
by women
10

0
2010 2011 2012 2013 2014
 271

In peacekeeping missions, the share of managerial positive, faster change is possible. For example, UNAIDS
positions (P5 to D2) held by women shifted upwards from launched its Gender Action Plan with an emphasis on
a constant 21 per cent between 2011 and 2013, to 33.4 accountability and career development, which resulted
per cent in 2014.19 Similarly, in special political missions in an 8 per cent increase in P5 representation, and an
the rates shifted upwards from 18 to 29 per cent almost 50 per cent increase in female heads of country
between 2011 and 2014. While this ascending trend is offices in only one year, from 2013 to 2014.

Percentage of women in P5 to D2 positions in peacekeeping and special political missions20

50

40

30

DPA

20 DPKO

10

0
2011 2012 2013 2014

In other UN entities working in conflict and post- UNDP and UNAIDS scored high on gender balance,
conflict countries,21 the proportion of women in reporting overall female representation rates beyond
managerial positions varies widely, with entities 40 per cent.23 However, in both organizations more
such as IFAD, UNFPA or UN Women reaching or women were concentrated in the lower level posts—in
even surpassing gender parity, and others such as UNAIDS, female representation in managerial level
UNESCO, FAO and UNAIDS falling below the 20 per posts was as low as 18 per cent. This was the case
cent mark.22 Most notably, the Secretariat’s gender in most reporting organizations in 2014: the rates of
balance in conflict and post-conflict field settings is female representation was larger in lower professional
significantly worse than that of other large UN entities positions (P4 and below), with the exceptions of IFAD,
such as UNHCR, WFP, UNICEF, UNFPA, and UNDP, UNFPA, WFP, and UN Women, where more women
and underperforms NATO, the World Bank, the were represented in managerial posts than overall in
European Union, and IOM in the overall percentage the organization. The only two entities that reported
of women working in conflict and post-conflict parity or beyond parity rates of female representation at
locations. all levels were IOM and UN Women.
272 Chapter 10. The United Nations

Gender balance that is tipped in the other direction than a peace and security issue for both men and
(i.e. ‘beyond parity’) can also be problematic however, women. As noted by the High-Level Independent Panel on
particularly when it relates to those working on gender United Nations Peace Operations, “There is a prevailing
issues specifically. Having only women working on erroneous notion that women and peace and security is
women, peace and security sends the incorrect ‘a woman’s issue’ that can be addressed only by women,
signal that this is an agenda that impacts, and is the instead of being understood as a peace and security issue
responsibility of, only one half of the population, rather for men and women and for society as a whole.”24

Percentage of women in senior and in all positions in 2014 (conflict and post conflict country offices only)25

0.9

FAO
0.8
IFAD

0.7 IOM
Percentage of women at all levels

UNAIDS
0.6 UNDP
UNESCO
0.5
UNFPA

0.4 UNICEF
WFP
0.3 WHO
UNWOMEN
0.2

0.1

0
0 0.2 0.4 0.6 0.8 1

Percentage of women in P5 to D2 positions

Compared to 2010 and earlier, more women are UN country teams. As of May 2015, there were 53
playing key roles relating to the Secretary-General’s women (39 per cent) out of a total of 136 Resident
Good Offices including as the Secretary-General’s Coordinators leading UN country teams. However, this
Special Envoys, Advisors or Coordinators. Yet as number was significantly lower in conflict and post-
of May 2015, this amounted to four women in conflict settings. Out of the 33 countries and territories
total actively engaging in these functions across reviewed,27 31 had Resident Coordinators leading UN
regions.26 Gaps also remain with regard to women’s country teams. Of these, only six (19 per cent) were
representation among senior leadership across women.
 273

Equally of note, although there are almost 7,000

international civilian staff in field missions
(peacekeeping and political), less than 30 per cent
are women and women account for only 20 per cent Although there are
of those in senior management positions.28 Among almost 7,000 international
national staff, which make up an even larger share of civilian staff in field
the workforce in missions, the percentage of women
missions (peacekeeping
is only 17 per cent. Even more worrisome, surveys
reveal that Secretariat staff in both field missions and
and political), less than
headquarters continue to place little value on gender 30 per cent are women
balance at the workplace.29 and women account for
only 20 per cent of those
The low percentages, especially at the senior
manager level, are expected to drop in the near future
in senior management
because of the higher attrition rate affecting women, positions.
the drawdown and closing of some of the missions
with better gender balance, and the impending
retirement of many women at the P5 level.30 The
biggest problems exist at the P5 to D2 levels where
the process is regulated by the staff selection system
implemented, and this Study recommends a number of
rather than the SG’s appointment process, which, by
additional measures listed below.
contrast, has seen significant progress.

Importantly, evidence suggests that elevated women

In 2015, the High-Level Independent Panel on United
representation rates at entry levels do not necessarily
Nations Peace Operations noted that the Secretary-
translate into high representation in decision-making
General should continue to appoint more women to
positions, unless initiatives to support retention,
senior mission leadership positions, both from within
recruitment and promotion are also consistently
the Organization and outside, and to support the
developed and applied. In some parts of the system,
promotion of serving female staff to senior leadership
the representation of women has remained almost
roles, including through mentoring programmes, and
static, with negligible improvement.33
recruitment of new female staff. A range of options
for accelerating progress has been identified by the
While it is important to recognize the challenges
UN Department of Field Support, the Office of Human
faced by organizations in reaching gender balance,
Resources Management, and the UN Focal Point for
the UN must lead the way and be the standard bearer
Women and relevant entities, including the requirements
on this fundamental goal, particularly as it requests
that at least one woman candidate is shortlisted; that a
other actors and Member States to take bold steps
talent-pipeline be established for recruiting, promoting
for gender equality. In the context of Beijing+20, a
and retaining women senior managers; and that in-
renewed call for action was made to make the UN
depth research is carried out on the barriers that women
system 50/50 by 2030.34
face. Human Resources Management has introduced
a self-monitoring scorecard that requires missions to
make a 50 per cent gain in their current performance
Leadership
gap towards parity.31 In addition, the Secretary-General
has committed to issue periodic directives to heads of
Ownership and implementation of women, peace and
departments reminding them of their gender balance
security commitments requires leadership from the
targets.32 These measures need to be supported and
274 Chapter 10. The United Nations

highest levels. Indeed, one of the key lessons learned For example, resolution 2122 requested the Secretary-
in three years of UN-SWAP implementation is that General’s Special Envoys and Special Representatives
success is predicated significantly on the dedication to UN missions, from early on in their deployment,
of senior management to gender equality and the to regularly consult with women’s organizations
empowerment of women, and to their consistent and women leaders, including socially and/or
commitment and messaging to set the ‘tone at the economically excluded groups of women, and to
top.’35 In particular, a committed leadership within report to the Council on these and other measures to
UN field operations and offices that recognizes the fulfill their mandate on women, peace and security. 36
importance of addressing the issue of women’s rights Language on this commitment should be integrated
and gender equality, and enthusiastically supports into the terms of reference of SRSGs and Special
women’s participation, sends a strong signal about Envoys, and the Security Council must be more
the legitimacy of the issue, reassures women’s consistent in asking questions of those who are
organizations and builds the credibility of gender tasked to brief on a situation (see Chapter 11: The
experts working at all levels. Security Council).

In order to achieve this, systematic inclusion of In line with this recommendation, the High-Level
these goals and expectations must be included in Independent Panel on United Nations Peace
all key mandates, instructions, operational guidance, Operations requested that compacts between the
terms of reference and senior level compacts as well Security Council and heads of missions specify three
performance evaluations of senior staff. Not only must gender-related performance indicators: commitment
these goals be part of the culture of what is expected to promote gender mainstreaming across all
of UN leaders, but those who do not deliver must mandated tasks; commitment to encourage national
be seen to be held to account, rather than simply leaders to take ownership of the WPS agenda; and
recycled into other senior positions, or worse yet, commitment to increase gender parity amongst
promoted. staff. 37 However, these targets are vague and, as
currently phrased, immeasurable. The language must
be further refined and specific definitions will need to
be agreed in order to ensure that the performance of
heads of mission can be accurately assessed.
Not only must these goals be
Finally, the High-Level Independent Panel on United
part of the culture of what is Nations Peace Operations noted that all briefings
expected of UN leaders, but and reports to the Security Council should include
those who do not deliver must the differentiated impacts of conflict on women
be seen to be held to account, and girls, as well as an analysis of successes,
challenges, failures, and recommendations to
rather than simply recycled
address implementation deficits in this area.38
into other senior positions, or UN Resident Coordinators, particularly in conflict-
worse yet, promoted. affected countries, should similarly have women,
peace and security as one of the priority areas of
their terms of reference.
 275

FOCUS ON

Leading by example on the women, peace and security agenda

In March 2013, Mary Robinson, the former president Special Envoy, in partnership with Femmes Africa
of Ireland and UN high commissioner for human Solidarité (FAS) and the International Conference on
rights, was appointed Special Envoy to Africa’s the Great Lakes Region (ICGLR), organized the first
Great Lakes region to bolster implementation of the Regional Conference on Women, Peace, Security
Peace, Security and Cooperation Framework for the and Development held in Bujumbura, Burundi. The
Democratic Republic of Congo (DRC) and the Region. meeting culminated in the adoption of the Bujumbura
The Framework, an accord dubbed the ‘Framework Declaration and the draft Regional Action Plan on the
of Hope,’ was signed by 11 African countries in implementation of resolution 1325 by the Democratic
February that year. Not only was Robinson the first Republic of Congo, Rwanda and Burundi in support of
woman to be appointed a UN Special Envoy, she also the Framework of Hope. Robinson also played a key
focused attention on the WPS agenda from the outset. role in securing notable financing for gender-based
This included ensuring that relevant language was projects in the region, including USD 150 million
added to her Terms of Reference, requesting from UN from the World Bank. Unfortunately, the systematic
Women the secondment of a senior gender advisor approach and strong prioritization on these issues
to her team, and establishing channels for regular demonstrated by Mary Robinson in taking on her
exchange with women’s civil society organizations duties as Special Envoy does not yet constitute regular
and leaders through the women’s platform for the practice applied by all Special Envoys and Senior
Peace and Security Framework. In July 2013, the Representatives appointed by the Secretary-General.

STRENGTHENING THE UN’S GENDER

ARCHITECTURE: PROGRESS AND
CHALLENGES A committed leadership
within UN field operations
While steps have been taken to follow-up
recommendations for strengthening the UN’s gender
and offices that
architecture—and good practice is emerging—evidence recognizes the importance
suggests that many of the challenges identified in of addressing ... and
the 2012 Gender Architecture Review remain.39 enthusiastically supports
Implementation is largely left in the hands of small teams
women’s participation,
(sometimes just one gender advisor or focal point) in
missions and other field-based entities, including UN
sends a strong signal
Women. This negatively impacts the capacity to follow-up about the legitimacy of
and support key commitments, such as the promotion the issue.
and expansion of partnerships with women’s civil society
networks and local women’s groups.
276 Chapter 10. The United Nations

FOCUS ON

Women, peace and security and peace operations missions in the report of the High-Level Independent
Panel on United Nations Peace Operations

The High-level Independent Panel on United Nations effectively with the local population, especially
Peace Operations report devotes a chapter to the women and girls;
women, peace and security agenda, noting that it is
an area where implementation remains lacking despite • There is an uneven commitment to the agenda at
a strong normative foundation.40 In citing some of the the most senior levels and within the ranks of all
obstacles in relation to peace operations missions mission personnel, both civilian and uniformed,
themselves, the report highlights in particular that: and at Headquarters, and a failure to understand
the integration of gender and the advancement
• The ‘gender issue’ is too often routinely assigned of the women, peace and security agenda as a
to staff in gender units, instead of integrated into responsibility of all staff; and
all relevant functional units;
• Outreach to women leaders and women’s civil
• There is an absence of sufficient policy, society organizations, especially at the senior
substantive and technical capacity to support the mission level, is often irregular or informal. This is
gender work of missions, both within missions and a critical missed opportunity to engage women in
at Headquarters; contributing to the work of the mission. By failing
to work closely with women, a mission forfeits
• The lack of mission funding to support gender- the opportunity to contribute to their capacity as
related activities limits the capacity to engage partners and leaders when the mission leaves.

Responsibility for the full implementation of the WPS In 2012, as follow-up to the Secretary-General’s
agenda rests across a number of UN entities, all of report on civilian capacity in the aftermath of
which are represented along with civil society on the conflict, 41 UN Women, in coordination with DPKO,
UN’s Inter-Agency Standing Committee on Women, DPA, UNICEF, UNDP and UNFPA, commissioned
Peace and Security. The Standing Committee is a review of gender expertise in post-conflict
chaired by UN Women, and coordinated through contexts to assess the adequacy of deployment
the agreed Strategic Results Framework on Women, and coherence throughout the UN system, in
Peace and Security. Across all responsible entities, addressing gender issues in peacekeeping and
there is a need for dedicated women, peace and peacebuilding contexts. 42 Based on good practice,
security expertise, in addition to effective gender several recommendations were put forward, including
mainstreaming, for meaningful results. Specific proposals to:
recommendations in relation to strengthening
capacities and dedicated expertise in these entities • Place senior gender experts in the field offices of
are included in relevant chapters of this Study. the Secretary-General’s Special Representatives
 277

and Resident Coordinators, with direct access

and reporting lines to senior management;
While in-mission capacity
• Include technical sector-specific gender expertise is crucial across peace
within substantive sections or units of the mission,
as well as in strategic technical assessment teams
operations missions,
and missions; and equally critical is the
dedicated capacity at
• Improve coordination and coherence through the headquarters level, where
gender theme groups of the UN country teams. staffing is necessary for
Similarly, the report of the High-Level Independent Panel
comprehensive gender
on United Nations Peace Operations included a number mainstreaming.
of recommendations on strengthening the gender
architecture of missions and ensuring that missions have
the necessary gender expertise and capacity. One of its
recommendations echoed the 2012 Gender Architecture
review mentioned above, whereby senior gender that is transmitted to the Security Council to inform
advisors should be located in the Office of the Special deliberations and action. On the whole, a key finding
Representative of the Secretary-General, reporting of a DPA internal review of its WPS work seems to
directly to the SRSG and advising him or her and senior reflect a challenge that is consistent across the peace
mission leadership at the strategic level. Additionally, and security architecture of the entire UN system:
it recommended that gender expertise should be staff members with gender-related responsibilities are
integrated within all functional components requiring “under-ranked, under-staffed and under-resourced and
gender knowledge and experience.43 For example, often relegated to the most junior staff.”46
Political Affairs officers with expertise in women’s
engagement in mediation, negotiation, and other political DPKO is perhaps the most visible face of the UN
processes; DDR officers with expertise on issues system in conflict-affected countries. As highlighted
relating to the special needs of women who formerly in its own internal strategies, the core tenets of
served as combatants; Electoral officers with expertise the WPS agenda are fundamental to its work in
on preferential statutory and other measures to involve peacekeeping.47 DPKO has established both a gender
more women in electoral processes, among others.44 unit at headquarters and gender expertise in its
Embedding combined sectoral and gender expertise in peacekeeping missions, with a goal of incorporating
each of the thematic sector areas of the mission was gender dimensions in peacekeeping missions’
successfully implemented in Timor-Leste (UNMIT) in mandated tasks. In an important development, all
2006, and has been highlighted as a good practice. multidimensional peacekeeping missions now have
posts for senior gender advisors. These senior
advisors play an important role in ensuring a gendered
DPKO and DPA perspective is integrated in all areas of the mission’s
work, and a gender analysis is included in briefings
As the UN departments primarily responsible for and reports from the mission to the Security Council.
executing the Security Council’s mandates for
peace operations, DPKO and DPA have a unique However, the role and sectoral expertise of gender
role in implementing the WPS agenda, both within advisors has varied widely—at times making these
the UN system and in the field, and in ensuring difficult jobs to execute, with little traction among
the quality of information, intelligence and analysis uniformed contingents or specialist sectors, and
278 Chapter 10. The United Nations

FOCUS ON

Lessons from the United Nations Integrated Mission in Timor-Leste (UNMIT):

Establishing an innovative gender architecture from the outset

In the wake of the major political, humanitarian and one P5 senior gender advisor, one P3 officer, two
security crisis that erupted in Timor-Leste in April-May national political officers, one UN Volunteer and one
2006, the Secretary-General asked his Special Envoy, local administrative assistant). The budget proposed
Ian Martin, to lead a Multi-Disciplinary Assessment the inclusion of dedicated posts with functions
Mission to Timor-Leste to develop recommendations requiring both sectoral and gender expertise, including
for a new UN presence to follow the UN’s political for: the Administration of Justice Support Unit; gender
mission (UNOTIL). The Multi-Disciplinary Assessment and juvenile issues; the Electoral Assistance Office
Team was comprised of representatives in 13 sectors, and the Serious Crimes Investigation Team, with
including a ‘Gender Dimensions’ sector which was appointed officers reporting directly to the head of
tasked under the Terms of Reference to: “Assess the respective Unit/Office. The General Assembly
the gender dimensions of all issues covered by the approved all of these posts, conveying support for this
assessment in order to develop recommendations for innovative approach.
integrating gender perspectives in all functional areas
of the post-UNOTIL mission, including on the gender In addition, various coordination mechanisms were
capacity required for this purpose.” established to promote integration of the activities
of UNMIT and those of the UN agencies, funds and
The findings of the Assessment Mission, and its programmes in furtherance of a ‘One UN’ approach
recommendations for the mandate of the new and the ‘Compact’ with the Timor-Leste Government,
mission were presented to the Security Council in a including in the area of gender. An outstanding
report of the Secretary-General.45 After considering example was the UNMIT/UN Country Team’s Thematic
the report and its recommendations, the Council Working Group on Gender, chaired by the UNMIT
adopted resolution 1704 of 25 August 2006 which Deputy SRSG for Governance Support, Development
authorized the establishment of UNMIT with broad- and Humanitarian Coordination (ASG level) who also
ranging mandated tasks, including to: “mainstream served as the Resident Coordinator/Humanitarian
gender perspectives and those of children and youth Coordinator heading the UN Country Team.
throughout the Mission’s policies, programmes and
activities, and, working together with United Nations Timor-Leste serves as an example of good practice
agencies, funds and programmes, support the on several levels, including senior leadership (in
development of a national strategy to promote gender both DPKO and UNMIT), the inclusion of gender
equality and empowerment of women.” and conflict analysis from the outset, the importance
of putting forward concrete gender-specific
Based on the scope of the tasks as set out in the recommendations in reports and mission mandates
resolution, it was decided that the proposed budget to with accompanying budgets, the establishment of
be presented by the Secretary-General to the General posts requiring both sectoral and gender expertise,
Assembly for the new Mission should include posts and the establishment of mechanisms for coordination
supporting priority substantive areas requiring gender in the area of gender, that bring together all relevant
expertise, as well as a small Gender Affairs Unit (with partners on the ground.
 279

isolated from senior leadership and key decisions.48 It number of these efforts, as well as the core challenges
is telling that while nine of the 16 active peacekeeping remaining.50 These obligations and commitments have
missions managed by DPKO have a senior gender been particularly noticeable in the unit that provides
advisor, seven of these posts were vacant at the support to mediation processes and conflict resolution
end of 2014.49 Furthermore, gender affairs units are processes globally, which houses the Gender Unit.
typically the smallest or one of the smallest of all
substantive units in each mission, as compared to In terms of capacity on women, peace and security,
other thematic areas of the mission mandate, from DPA has utilized a combination of gender advisors and
human rights to protection of civilians, rule of law, gender focal points in its Special Political Missions.
security sector reform, disarmament, electoral support While only six of the 12 Special Political Missions
and child protection. had a dedicated gender advisor post in 2014, all
Special Political Missions had appointed Gender Focal
Women’s protection advisors (WPAs) are also Points.51 The seniority of these focal points is also
an important part of the architecture, and work on the rise. While this points to a positive trend, focal
to operationalize the series of Security Council points, no matter how senior, should complement not
resolutions on conflict-related sexual violence, to substitute for dedicated gender expertise.
strengthen the response of human rights, gender
and other relevant components on sexual violence While in-mission capacity is crucial across peace
in conflict, to help implement the new Monitoring, operations missions, equally critical is the dedicated
Analysis and Reporting Arrangements (MARA), and to capacity at headquarters level, where staffing is
take forward a protection dialogue on this issue with necessary for comprehensive gender mainstreaming
parties to armed conflict. across the range of work of both DPKO and DPA. At
present, the DPA Gender Team has just one gender
For its part, DPA’s role provides vital opportunities advisor funded from the regular budget, with one
to ensure women’s rights and participation in key additional temporary position covered from extra-
aspects of conflict prevention and resolution. In the budgetary sources. Similarly, DPKO has just three
past several years, DPA has taken an increasingly budgeted posts.52 Seniority, staff numbers, stability of
consistent approach to integrating the WPS agenda contract and political leadership is needed to provide
into its work, and the entity’s recent internal essential funding and capacity for the Secretariat to
assessment on women, peace and security points to a more effectively deliver on its commitments on women,
peace and security. Gender units with senior leads
and sufficient staffing should be institutionalized within
the regular budget envelope of both DPA and DPKO/
DFS.
Staff members
with gender-related Dedicated and sufficient gender staffing within a
mission is crucial, but these capacities must be linked
responsibilities are to, backed by, and have access to, the expertise
“under-ranked, under- of the broader system in order to leverage their full
staffed and under- potential. Recognition of this need was reflected in a
resourced and often further recommendation of the High-Level Independent
relegated to the most Panel on United Nations Peace Operations which
noted that “missions should have full access to the
junior staff.” policy, substantive, and technical support from UN
Women on implementation of the SC resolution 1325
and successive resolutions, together with support
280 Chapter 10. The United Nations

currently received from the Departments of Political

Affairs and Peacekeeping Operations and Political
Affairs.”53 Similar language is included in the report of Strengthening the
the Advisory Group of Experts for the 2015 Review of
the United Nations Peacebuilding Architecture, which
partnerships between UN
indicates that “to promote better delivery of gender- Women and field missions
sensitive peacebuilding, UN Women (together with would capitalize on existing
other relevant UN agencies, funds and programmes) and limited resources for
and the lead departments responsible for peace the implementation of
operations, DPA and DPKO, should actively explore
enhanced ways to work in partnership.”54
resolution 1325 within the
UN system.

UN WOMEN

The General Assembly’s Special Committee on

Peacekeeping (C34) has requested in annual existing gender expertise, and leverage UN Women’s
resolutions that DPKO and DPA cooperate and comparative advantages. This includes its continuous
coordinate with UN Women (and other relevant UN interaction with women’s civil society organizations
actors) in the implementation of the women, peace on the ground, and its ability therefore to bring a vital
and security mandate and the promotion of gender constituent closer to mission actors and help with
perspectives in peacekeeping operations.55 outreach. Its unique role as a hybrid entity—both part
of the UN Secretariat and part of the wider system of
UN Women’s capacity on women, peace and security agencies, funds, and programmes—with a mandate
includes a dedicated team on Peace and Security that encompasses both a normative and coordination
in headquarters and peace and security advisors function, as well as a policy and programming
in regional offices. There is also dedicated capacity function, offers the potential to better link the peace
in some (but still too few) conflict-affected country and security agenda with other areas of the UN’s work.
offices. Security Council resolution 2122 (2013), Moreover, its technical expertise on women, peace and
requests more regular briefings by UN Women’s security and position as a global advocate should be
Executive Director, highlighting the important role of seen as an asset for supporting mission actors.
the entity in bringing the experiences of women and
girls in conflict-affected countries to the attention In addition, greater coherence would help to address
of this body. Capacity at the country-level generally some of the broader structural issues identified by
remains a challenge for UN Women in carrying both the High-Level Independent Panel on United
out their mandate. While this reflects the dearth of Nations Peace Operations and the Advisory Group
resources for capacity and expertise on women, peace of Experts for the 2015 Review of the United Nations
and security in the broader UN system, the capacity Peacebuilding Architecture, in particular the disconnect
at the country-level must be addressed as a matter between UN Country Teams and peace operations
of priority, so as to translate the agenda into visible missions. In the area of women, peace and security,
impacts for conflict-affected societies.56 the review of UN peacebuilding architecture found
that fragmentation and ‘silos’ impact the ability of the
Strengthening the partnerships between UN Women UN to implement its commitments this area, noting
and field missions would capitalize on existing and that “Mission components tended to concentrate
limited resources for the implementation of resolution on narrow but important questions of political
1325 within the UN system, maximize the UN’s participation and the prevention of conflict-associated
 281

sexual and gender-based violence, while the UNCTs Finally, building capacity for rapid deployment of
worked on gender-sensitive approaches to economic temporary gender expertise is another area requiring
recovery and inclusion without always bringing a more focus, including to support investigations
‘peacebuilding lens’ fully to bear… separate funding into human rights violations, mediation efforts, the
silos and institutional imperatives reinforce[d] these undertaking of different technical assessment missions
tendencies.”57 As such, the review recommended and planning processes and crisis response. In
greater “coherence and integration between missions conflict and crisis settings, such expertise may be
and UNCTs in the delivery of gender-oriented needed on short-notice as processes and situations
peacebuilding.”58 can shift quickly. Despite growing evidence of
strong impact of strategic and timely deployments,61
Further, greater integration, complementarity and cumbersome administrative procedures and limited
coherence on women, peace and security between capacity to maintain sector-specific rosters of technical
peace missions, UN Women and other UNCT actors gender experts have limited the potential for scale
should also be pursued by building on and expanding up. This is an area that could be further developed
models of integration, co-location, joint work-planning through close collaboration of key UN entities and
and the development of common implementation interested Member States.
frameworks like common Gender Theme Group work-
plans; the Global Focal Point for Police, Justice and
Corrections Areas in the Rule of Law in Post-conflict HIGH-LEVEL LEADERSHIP ON WOMEN,
and other Crisis situations; the One Gender Framework PEACE AND SECURITY
in Liberia; or the Implementation Frameworks for the
Secretary-General’s Seven-Point Action Plan.59 Options In consultations globally, Member States, civil society
for establishing more formal partnerships between key and affected women voiced the need for more visible,
entities with technical gender expertise in conflict and dedicated and senior level leadership on women,
post-conflict settings should be explored, including peace and security in the UN system. Such leadership
between DPKO, DPA and UN Women.60 Improved would be fundamental to drive accountability,
coordination through interagency forums should champion the voices of women, coordinate the system
include elevating the importance of gender theme and accelerate implementation.
groups which often suffer from low participation and
prioritization. As one possible response to this need, there has been
some initial discussions and consideration by Member
States on the idea of a Special Representative of the
Secretary-General on women, peace and security.
However, while a new SRSG post would address
the need for dedicated senior level representation, it
would, in fact, risk doing more to undermine rather
The capacity at the than strengthen the agenda.
country-level must be
addressed as a matter of In particular, an SRSG post does not ‘fit’ the nature of
priority, so as to translate the women, peace and security mandate. The current
related Security Council mandated SRSGs on Children
the agenda into visible and Armed Conflict, and Sexual Violence in Conflict
impacts for conflict- are compliance and accountability mandates that
affected societies. involve the naming and shaming of credibly suspected
perpetrators of grave violations, which is not the case
for women, peace and security. Secondly, the creation
282 Chapter 10. The United Nations

As the lead on the WPS agenda in the system, UN

Women has a particular responsibility in this regard,
Stronger determination and in performing the function of briefing the Security
from both UN senior Council on issues of relevance to women, peace and
security. This necessarily requires dedicated senior
leadership and the UN level leadership in support of the Executive Director of
membership is required to UN Women. As such, a dedicated office and budget
guarantee that staffing and should be established at UN Women at the ASG level
resource needs are met to to be devoted full time to conflict and emergency
settings, dedicated to driving the implementation of the
effectively deliver on these
main recommendations of this Global Study, to scaling
mandates on the ground. up the programming good practice highlighted in it,
and to strengthening UN Women in the field.

Without significant bolstering of the UN’s institutional

gender architecture in conflict-affected and crisis
of such a post could risk narrowing the parameters
settings, the capacity to provide gender-sensitive
of resolution 1325, restricting the agenda to those
conflict early warning, support women’s engagement
countries on the Council’s agenda, and weakening
in conflict resolution, deliver adequate immediate
the prevention as well as post-conflict peacebuilding
and long-term recovery services to women and girls
pillars. For large parts of the globe—including where
affected by conflict or crisis, or provide the Security
conflicts are either subnational in nature or are not
Council with adequate intelligence about gender-
deemed to be a threat to international peace and
specific threats, challenges and opportunities for
security—this would mean that the work of such a
women’s engagement in different processes will
Special Representative would not apply, essentially
continue to fall short of expectations and needs.
narrowing and neutralizing the universal application
Uneven leadership and commitment from senior
of resolution 1325. Thirdly, the creation of a new
managers across missions and at headquarters
office would divert already limited resources, and risk
is another key challenge identified pointing to a
creating new institutional tensions and confusion over
need to strengthen the accountability framework
reporting lines and points of accountability in the UN
for implementing the women, peace and security
system. Lastly, the creation of a new post would bi-
mandate.62 Stronger determination from both UN
furcate the WPS agenda into two distinct protection
senior leadership and the UN membership is required
and participation elements, rather than enabling
to guarantee that staffing and resource needs are met
implementation as a comprehensive and interlinked
to effectively deliver on these mandates on the ground.
process.
 283

RECOMMENDATIONS

Moving progress beyond 2015: Proposals for action

To more effectively drive implementation of the WPS report women, peace and security statistics in
agenda beyond 2015, including follow-up to findings coordination with national statistical systems where
of this report and gender-specific recommendations of relevant, and to use women, peace and security
the related high-level reviews and processes, the UN statistics to inform reports, statements, programme
should take action in a range of areas, including: planning, budgeting and implementation.

✓ Sharing gender-specific information in code

Monitoring and accountability frameworks
cables, periodic updates, data reporting
mechanisms and early warning systems amongst
Harmonize, strengthen and refine existing monitoring all key actors, including UN field missions and
and accountability frameworks (specifically strategic country teams in a timely manner.
frameworks and indicators) on women, peace and
security and humanitarian action by:
Gender-balance
✓ Building on monitoring experience to date and
taking into account new developments in gender
Accelerate action to reach the Organization’s staffing
statistics, information management systems and
gender parity goal at all levels, by:
emerging priorities.

✓ Removing obstacles to the recruitment, promotion

✓ Eliminating duplication and focusing on issues of
and retention of women staff in all categories
utmost relevance to achieving commitments.
and levels, and—with the support of Member
States—investing in the implementation of
✓ Ensuring measurability of indicators, feasibility of recommendations put forward in previous reviews
data collection, and attaching to each indicator and in reports of the Secretary-General on the
jointly agreed methodological guidelines that are in improvement in the status of the representation of
line with international statistical standards. women in the UN system.

✓ Designing and setting up clear reporting ✓ Integrating gender-balance targets as an indicator

mechanisms and enforcing periodic reporting of individual performance in all compacts with
requirements from key actors. senior management. The gender-balance targets
in the HRM scorecard should be reviewed every
✓ Integrating system-wide women, peace and quarter at the senior level by mission and country
security commitments into policies, strategies, teams.
planning documents and monitoring and evaluation
tools of all UN entities working in conflict and post- ✓ Investing in making mission life and spaces more
conflict settings. friendly and safe for women (e.g., special family
or leave arrangements for women, adequate and
✓ Strengthening financial and technical capacity appropriate mission facilities for women, from
of UN entities—including in field missions and accommodation quarters and sanitary facilities
country teams—to regularly collect, analyze and to welfare and recreational spaces and activities,
284 Chapter 10. The United Nations

special medical and gynecological care), and ✓ Ensuring all review processes integrate a gender
making contract benefits better known to potential perspective, and appoint more women to High-
women candidates, as well as improving outreach Level Reviews and panels.
and communications activities regarding life and
work in peacekeeping missions.
Leadership
✓ Facilitating women’s representation among national
staff contracts in missions through better childcare Make senior leadership accountable for implementing
policies and facilities, and revising experience women, peace and security commitments, including
requirements in countries where women have limited recommendations put forward in this Study, through:
education opportunities or access to the workforce.
✓ Inclusion of concrete performance measures
✓ Actively mentor and groom women in P2-P4 posts in senior managers’ Compacts between the
to promote career advancement and prepare them Secretary-General and his/her Special Envoys,
for management positions. Representatives, Advisors and other Senior
Managers, and revision of senior managers’ Terms
✓ Introducing greater flexibility in some requirements of Reference to reflect women, peace and security
until parity is reached: for example, allowing for as a key priority. This should include Resident
current P5s to be directly eligible for D2 positions Coordinators in conflict-affected countries.
if they are eligible for D1 positions, and for
D1s to be eligible to apply for ASG positions; ✓ Full compliance with the UN-SWAP commitments
reconsidering the non-reversion policy, by which demonstrated by marked progress across all
staff at the D2 level are asked to relinquish their indicators by the 2017 deadline.
right to return to their parent UN organization
when assuming head and deputy head of mission ✓ Routine inclusion of gender, conflict and crisis analysis
positions for a limited duration. in thematic and country-specific briefings and reports
to the Security Council and other key UN bodies.
✓ Auditing missions who have remained stagnant
or regressed, instituting a system of sanctions
and rewards for performing and under-performing Gender architecture
missions, and holding leaders accountable for
progress or lack of progress with regards to ✓ Ensure the presence of gender expertise in
gender targets. missions at the senior decision-making level and
all relevant substantive units, by placing senior
✓ Since many of the women that leave the gender advisors in all peace operations missions,
organization may have partners but no children, from the outset and for the whole duration of
providing full consideration to adding a third missions, situated directly in the office of the
category of duty stations that are conducive for SRSG, supported by hybrid gender expertise in
couples without children, or staff with healthy adult each of the technical units of the mission (e.g.,
dependents. rule of law, human rights, DDR, SSR, elections).
 285

✓ (Member States should) invest in DPKO and DPA the strengthening of rosters, joint selection of
gender units at HQ, to increase the resources, staff, training, support through communities of
seniority and number of staff, ensuring a minimum practice, surge capacity and rapid deployments
number of posts are included in the regular budget and technical support. The final say on
and giving due consideration to the placement of recruitment would rest with the SRSG as well as
these units in the Office of the USG. accountability—there would be a single line of
reporting to the SRSG with access to UN Women
✓ (Member States should) invest in strengthened for information sharing, and gender staff would be
UN Women country offices in conflict-affected backed technically and have a link to the entity
contexts to further inter alia support to women’s responsible for gender equality.63 The model
organizations, women’s leaders, and strengthen should be carefully monitored and assessed on
the UN’s implementation of women, peace and challenges and successes after 2 years.
security commitments.
✓ (The Secretariat should) explore the possibility
✓ Strengthen the UN’s gender architecture to promote of joint rosters with UN Women for rapid and
women’s full participation in efforts to advance targeted deployment of technical gender
peace and security by expanding the support base expertise, and open new avenues for using
for gender work within the missions, and maximize existing rosters managed by agencies, funds and
the impact of existing resources, by establishing a programmes.
formal cooperation arrangement between DPKO,
DPA and UN Women so that existing missions ✓ Establish the position of Assistant Secretary-
have access to UN Women’s technical, political General, with a dedicated budget, at UN Women,
and policy expertise. Through this arrangement, with responsibility for work in the area of conflict,
UN Women would bring its existing resources, crises and emergencies, under the guidance of
capacities, expertise, and staffing as the lead on UN Women’s Executive Director. This ASG would
women, peace and security to support the relevant drive the implementation of the recommendations
components of peace operations missions. of this Study, help scale up the programming good
practice described, and strengthen UN Women’s
✓ Pilot in two future missions: UN Women’s more field presence in conflict and emergency settings,
effective integration into missions—including in with the support of Member States and partners.
286 Chapter 10. The United Nations

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 287

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operated during 2014, or concerning that with which (United Nations Security Council, October 18, 2013),
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considered by the Council at a formal meeting during the
37. “Report of the High-Level Independent Panel on United
period from 1 January 2014 to 31 December 2014, or
Nations Peace Operations (2015),” para. 243.
countries or territories that received programmatic funds
from the Peacebuilding Fund in 2014. 38. Ibid.
22. UN entities provide this data annually to UN Women for 39. Carole Doucet, “UN Gender Architecture in Post-Conflict
inclusion in the report of the Secretary-General on Women Countries” (UN Women, UN Wide Inter-Agency Task
and Peace and Security. See, “Secretary-General’s Report Team, September 20, 2012).
on Women and Peace and Security (2015),” para. 115.
40. “Report of the High-Level Independent Panel on United
23. Ibid. Nations Peace Operations (2015),” para. 239–243.
24. “Uniting Our Strengths for Peace - Politics, Partnership 41. “Report of the Secretary-General on Civilian Capacity in
and People,” UN Doc. A/70/95–S/2015/446 (High-Level the Aftermath of Conflict.” (A/66/311-S/2011/527).
Independent Panel on United Nations Peace Operations,
42. Carole Doucet, “UN Gender Architecture in Post-Conflict
June 16, 2015), para. 239(i).
Countries” (UN Women, UN Wide Inter-Agency Task
25. UN entities provide this data annually to UN Women Team, September 20, 2012).
for inclusion in the report of the Secretary-General
43. “Report of the High-Level Independent Panel on United
on Women and Peace and Security. See, “Secretary-
Nations Peace Operations (2015),” para. 241.
General’s Report on Women and Peace and Security
(2015),” para. 115. 44. Nina Lahoud, “Possible Model for Increased Integration of
Gender Dimensions in DPKO-Led Multidimensional Peace
26. Ibid., para. 116.
Operations” (Department of Peacekeeping Operations,
27. Research undertaken to inform the Global Study in 2015. 2015).
28. “Bridging the Gender Gap in Peace Operations” (United 45. “Report of the Secretary-General on Timor-Leste pursuant
Nations Department of Field Support (DFS), United Nations to Security Council Resolution 1690 (2006),” S/2006/628
Department of Peacekeeping Operations (DPKO), United (United Nations Security Council, August 8, 2006).
Nations Department of Political Affairs (DPA), 2013).
46. “Taking Stock, Looking Forward: Implementation of UN
29. Ibid. Security Council Resolution 1325 (2000) on Women,
Peace and Security in the Conflict Prevention and
30. Additionally, budget reductions may affect women
Resolution Work of the UN Department of Political Affairs
more negatively, since women are comparably more
(2010-2014)” (United Nations Department of Political
represented in temporary contracts, and therefore more
Affairs, March 2015), para. 53.
vulnerable to contract termination.
47. “DPKO/DFS Gender Forward Looking Strategy (2014-
31. “UN System-Wide Action Plan for the Implementation of
2018)” (UN DPKO-DFS Gender Unit, 2014).
the CEB Policy on Gender Equality and the Empowerment
288 Chapter 10. The United Nations

48. Doucet, “UN Gender Architecture in Post-Conflict Countries.” women, peace and security provides important avenues
for bridging the work of the system. As the newest
49. Data provided to the Global Study by DPKO. With both
entity, it is envisioned as being catalytic and providing
a P4 and P5 advisor, the United Nations Stabilization
dedicated expertise, capacity and support to the UN
Mission in Haiti was the only peacekeeping mission with
system as a whole to drive forward implementation of its
more than one senior advisor and the only mission with
commitments in all areas of gender equality.
a P5-level advisor. Eight DPKO missions had gender
advisors at the P2 to P3 level. 56. “Thematic Evaluation of UN Women’s Contribution to
Increasing Women’s Leadership and Participation in
50. “Taking Stock, Looking Forward: Implementation of UN
Peace and Security and in Humanitarian Response” (UN
Security Council Resolution 1325 (2000) on Women,
Women, September 2013).
Peace and Security in the Conflict Prevention and
Resolution Work of the UN Department of Political Affairs 57. “Report of the Advisory Group of Experts for the 2015
(2010-2014).” Review of the United Nations Peacebuilding Architecture
(2015),” para. 80.
51. 44 per cent were men in 2014. Ibid., para. 56. The
gender focal point is not a full-time position; persons 58. Ibid.
appointed as gender focal points normally have other
59. The Global Focal Point arrangement, established in
areas of responsibility. Furthermore, the review notes
2012, has led to better mainstreaming of gender issues
that individuals responsible for gender mainstreaming in
in the rule of law area through integrated planning and
missions “are given increased responsibilities without
programming, and access to mutual rosters by DPKO,
additional resources and often with insufficient support
UNDP, UN Women and other UNCT entities, resulting for
from the senior leadership, while the gender advisors
instance in co-location in Central African Republic and
are also increasingly called upon to build the capacity of
joint projects in Mali.
government counterparts and women’s organisations in
the host country.” Ibid., para. 54. 60. An independent evaluation of UN Women’s peace and
security programming recommended in particular that
52. Four posts on conflict-related sexual violence are funded
at the country level, there should be an increase in joint
from extra-budgetary sources.
programming and collaboration with other UN entities
53. “Report of the High-Level Independent Panel on United on peace and security and humanitarian response.
Nations Peace Operations (2015),” para. 243. Since The evaluation went on to note that “in some cases,
UN Women was created, the GA’s Special Committee this may require the development of memorandums of
on Peacekeeping has adopted language every year on understanding on ways to work together, to facilitate
the need for DPKO to cooperate and coordinate with country-level inter-agency relations. This seems
UN Women specifically on women, peace and security. particularly appropriate to facilitating in-country relations
“Report of the Special Committee on Peacekeeping between UN Women and DPKO.” “Thematic Evaluation
Operations,” UN Doc. A/65/19 (United Nations General of UN Women’s Contribution to Increasing Women’s
Assembly, May 12, 2011); “Report of the Special Leadership and Participation in Peace and Security and
Committee on Peacekeeping Operations,” UN Doc. in Humanitarian Response,” 11 (emphasis added).
A/66/19 (United Nations General Assembly, September
61. The deployments of experts from UN Women-Justice
11, 2012); “Report of the Special Committee on
Rapid Response roster, and the Team of Experts in the
Peacekeeping Operations,” UN Doc. A/68/19 (United
Office of the SRSG on sexual Violence in Conflict are
Nations General Assembly, April 1, 2014).
two such examples, which are discussed in Chapter 5:
54. “The Challenge of Sustaining Peace,” UN Doc. Transformative Justice.
A/69/968–S/2015/490 (Advisory Group of Experts for
62. “DPKO/DFS Gender Forward Looking Strategy (2014-
the 2015 Review of the United Nations Peacebuilding
2018).”
Architecture, June 29, 2015), para. 159.
63. UN Women would continue to sit in the UN Country Team
55. See, e.g., “Report of the Special Committee on
to ensure stronger horizontal linkages across mission
Peacekeeping Operations (2011)”; “Report of the Special
and country team on gender equality, and prepare the
Committee on Peacekeeping Operations (2012)”;
foundation for eventual drawdown and handover to
“Report of the Special Committee on Peacekeeping
the country team and, more importantly, local actors.
Operations (2014).” UN Women’s mandate is unique in
This pilot should be closely monitored to assess the
that it bridges the technical, operational, programming,
successes and challenges that result.
and intergovernmental spheres, which in the area of
 289

THE MEDIA
290 Chapter 10. The Media

“I, a girl, am going down to Tahrir Square, and mainstream media as they went. Asmaa and her video
I will stand alone. And I’ll hold up a banner…. message shone a powerful light on today’s access
Don’t think you can be safe anymore. None of to technology, online platforms and media tools for
us are. Come down with us and demand your women and girls around the world to drive discourse
rights, my rights, your family’s rights.” and foster social change.3

Asmaa Mahfouz, Egyptian activist At a time when conflict both takes root in communal
disputes and spills across borders, media can play
On 18 January 2011, 26-year old Egyptian activist a key role in advancing the WPS agenda, by rallying
Asmaa Mahfouz spoke these words in a video messages and people; creating awareness and
uploaded to YouTube, calling for protesters to join her breaking taboos; providing comprehensive narratives
in toppling the corrupt government of Hosni Mubarak.1 on gender and women’s lives in conflict and post-
The video quickly went viral on social media platforms, conflict settings; and importantly, holding states
and became one of the sparks for the Arab Spring. accountable.
Throughout the region, women—often at great personal
risk—countered state-owned national media with citizen But, as emphasized by many during the consultations
journalism and social media, influencing the global for this Global Study, in order to do so, information
must be accessible to women and girls regardless
of age, ability and location, and be appropriately
representative of their experience. This remains a
particular challenge in many conflict and post-conflict
When a society is contexts, where infrastructure has been destroyed,
literacy rates are low or mainstream media—owned by
threatened by violent national private sector actors—may be manipulated
or controlled by conflicting State and non-State
conflict, opposing parties to serve their cause. Moreover, in militarized

sides seek to control societies, women’s voices, concerns and experiences

tend to be marginalized by the ‘tyranny of the
the media. [...] emergency.’

To get one’s message Ultimately, the media is but an avenue, and it is up to

those using it to define its content and value, ideally
out in the media is using its various mediums of communication to
extremely important contribute to the accurate portrayal of women’s lives
in conflict and post-conflict contexts—highlighting the
since the public whole range of their roles and strengths as well as the
impact of conflict in their lives.
generally accept what
is presented in the WOMEN- AND COMMUNITY-LED
news as ‘truth.’” MEDIA CHANNELS

Pernilla Ahlsén, “Peace Journalism: How MAMA FM, a community radio station in Uganda,
Media Reporting Affects Wars and Conflicts”2 is one of a handful of women-run radio stations
in the world.4 In order to ensure that women from
marginalized communities without access to a radio
 291

channel is an example of how media can be a

doubly-powerful tool, spreading messages of gender
Information must be equality and women’s empowerment at the grassroots
level, all while bringing women together to build and
accessible to women strengthen networks of peacebuilders and decision-
and girls regardless of makers. Similarly, in Fiji, the feminist media network
age, ability and location, FemLINKPACIFIC uses radio and television-based
and be appropriately dialogue to draw rural women and government officials
representative of their together to discuss development and human security
challenges, providing a unique public platform for
experience. women to share their ideas and perspectives with
government decision-makers and the public alike.6
FemLINKPACIFIC has played a key role in supporting
women’s participation in peacebuilding in the region,
are able to listen, they organized ‘women’s listening and in informing the development and implementation
clubs’ in 15 districts of Uganda—spaces for women of the Pacific Regional Action Plan on Women, Peace
to gather, listen and discuss.5 MAMA FM’s media and Security.

FOCUS ON

Libya – The ‘Noor’ Campaign

The Noor Campaign, led by NGO Voice of Libyan different themes about women’s security in the public
Women, seeks to address the misrepresentation of Islam and private spheres. Two radio advertisements broadcast
within Libyan culture to justify the perpetration of violence throughout the country, encouraged the Libyan public
against women. In order to confront this distortion of the to think about the treatment of women during the holy
religion, the campaign uses Islamic teachings to show month of Ramadan. National TV stations aired four
that Islam does not tolerate any form of discrimination advertisements on domestic violence, and videos of the
against women.7 ads were also broadcast through social media channels
using the hashtag #NoorLibya—these were widely viewed
The first phase of The Noor Campaign was officially in Libya and abroad. Further phases of the campaign
launched on 5 July 2013 through a nation-wide media built on this in several ways, including through outreach
campaign designed to start a conversation about the to community members and students in seminars,
treatment of women under Islam. The launch intentionally workshops and surveys. The Noor Campaign exemplifies
coincided with the start of the holy month of Ramadan; grassroots, religious-based activism for women’s rights. It
a time for peace and reflection, but also a time when illustrates how modern-day advocates are using an array
Libyans are especially tuned in to popular mediums of arguments while exploring old and new mediums, to
such as radio and television. Additionally, thirty-three disseminate their messages to a wider audience, and in
billboards in 17 cities throughout Libya highlighted so doing contribute to societal transformation.
292 Chapter 10. The Media

for perpetrators who commit, command or condone

these crimes.
“Media has a
In many cases, the media’s portrayal of this form of
constructive role to violence has been an oversimplification of the complex
horrors endured by Congolese civilians, and particularly
play for the society. women and girls. However, the coverage has undeniably
Today news channels also served as a tool for galvanizing international
pressure to demand an end to one of the gravest
and even some conflicts of the 21st century, and an end to conflict-
related sexual violence globally. International media
newspapers are efforts and campaigns to end sexual violence in conflict

mouthpiece[s] of have led to a shift in public consciousness and political

will.9 This attention has undoubtedly bolstered efforts for
some social issues, the adoption of a series of Security Council resolutions
on the prevention, protection and accountability for
which helps us to conflict-related sexual violence crimes,10 and continues
to help maintain pressure on governments, national
estimate the realities courts, as well as the International Criminal Court to
of lives.” hold perpetrators of sexual violence accountable for
their crimes. The media itself has been especially
vigilant in shining a light on sexual abuse by UN
Respondent to the civil society survey for the Peacekeepers, raising international attention when the
Global Study, working in Afghanistan UN has itself been slow to act.

Positive stories that go beyond the portrayal of

women as victims of conflict to examine and highlight
their various roles in peacebuilding have gained
INVESTIGATIVE JOURNALISM – TELLING momentum. For example, the 2008 award-winning
THE STORIES THAT NEED TO BE TOLD PBS documentary, Pray the Devil Back to Hell, tells the
story of the Liberian women who took on the regime
Various forms of investigative reporting can be of former President Charles Taylor in the midst of the
powerful tools in making hitherto invisible issues country’s brutal civil war, and won a once unimaginable
visible to the greater public, and in helping to break peace. Such stories, that capture the capabilities, spirit
taboos. For instance, a number of documentary films and leadership qualities of women, can be valuable
have offered a close-up look at the impact of war on in awareness-raising and provoking much needed
women. In 2006, filmmaker Lisa Jackson traveled attitudinal change in traditionally patriarchal societies
to the Democratic Republic of Congo (DRC) to and indeed, on the international stage.
interview women survivors of conflict-related sexual
violence. Her documentary, The Greatest Silence, Still, such portrayals of women are rare, and many
received international acclaim at a time when sexual more stories are simply not being told. A 2015 analysis
violence in conflict was receiving little attention in the undertaken by the Global Media Monitoring Project
mainstream media.8 In recent years, media outlets (WACC)11 in 15 conflict and post-conflict countries
around the world have highlighted rape as a weapon found that only 13 per cent of stories in the news
of war in the DRC and elsewhere, illuminating both media on peace and security-related themes
the gravity of these crimes and the ongoing impunity included women as the subject, and women were
 293

“I believe that making

sexual violence against
women in conflict
visible [...] can have an
effect on public policy,
and [help] change the
discourse in terms of
violence against women.”

Jineth Bedoya Lima,

Journalist, UN Women Video Interview, 2015
294 Chapter 10. The Media

What determines the ‘news worthiness’ of a particular

issue can often rest on whether it has received the
Regardless of the topic, vocal support of an influential person or group. The
media coverage that follows often becomes a huge
only four per cent of
event with wasteful costs. Meanwhile, women on the
the stories portrayed frontline, those who actually engage in humanitarian
women as leaders in negotiations, face the fighting, and protect the innocent
conflict and post-conflict are often invisible in the media, their voices usurped by
countries. celebrity hubbub and the politics of spectacle.

In the years following the adoption of resolution 1325,

there has been a sea change in women’s abilities to
represent themselves and their causes in the media,
central to the story in only six per cent of cases. whether through traditional and less gender-inclusive
Regardless of the topic, only four per cent of the stories mediums such as television, radio and print—which
portrayed women as leaders in conflict and post- are part of organized industry and owned by public
conflict countries and only two per cent highlighted or private sector actors—or newer and more widely
gender equality or inequality issues, while no story did accessible platforms, such as various forms of social
in Uganda, South Sudan or the DRC. The portrayal of media and mobile technology.
women as leaders was highest in Mali (20 per cent of
the stories) and non-existent in Nepal and Palestine. In this context, women- and community-led media
The analysis also found that a woman was more than channels can play an important role in expanding
twice as likely as a man to be identified as the victim perspectives and deepening the analysis of issues
in a story, and mentions of women’s experiences were considered in societal debates. They can also be
largely reserved for stories covering women’s access instrumental in increasing access to key information
to psychological support in conflict, post-conflict or for hard to reach or marginalized constituencies.
refugee settings, or stories on sexual violence.

On the global level, the media often possess the power RISKS ASSOCIATED WITH THE MEDIA
to make one story sensational and another invisible. TODAY

Modern media technologies are not always favorable

to women’s rights. In today’s hyper-connected world,
anyone can run his or her own media campaign,
In the years following and disseminate his or her ideas through the use
of internet or mobile technologies. For example,
the adoption of messages can encourage violence against women
resolution 1325, there and a rollback in women’s rights. Extremist groups are
has been a sea change increasingly using the internet and social media—and
in women’s abilities to in constantly evolving ways—to spread their messages
represent themselves of violence and hatred, and swell their ranks with
new recruits. The expansion of access and use of the
and their causes in the internet has also enabled the rise of cyberbullying;
media. with the touch of a button, a person can threaten a
woman, and members of her family, with violence,
sexual assault or murder, oftentimes anonymously.
 295

FOCUS ON

Global agreements and the role of the media

The Beijing Platform for Action, adopted at the Fourth stereotypical portrayal of women by the media; and
World Conference on Women in 1995, recognized the need for effective measures by States Parties to
the role of the media and its potential to make a ensure that the media respect and promote respect
positive contribution to gender equality, and called for women. In conflict-affected areas, media outlets—
for an increase of women in the media, and the public or private—can influence paradigm shifts
abandoning of stereotypes. This includes balanced surrounding women’s engagement and leadership, by
and inclusive reporting on conflict-related issues.12 broadening their focus beyond sexual violence, and
The CEDAW Committee also highlighted the media’s women as victims, and portraying the work women are
role in its General Recommendations (No.19 and 23), already doing on the ground in conflict prevention and
particularly the importance of a positive and non- peacebuilding.

FOCUS ON

A cautionary tale

While the positive aspects of the media with regards to delegitimize certain voices, arouse hatred against
women, peace and security are welcome, it is important certain public figures—often strong and independent
to recognize that in certain contexts media has also women—and develop a climate of fear, that in the end
played a very negative role. Who can forget that the also suppresses press freedom.13
drumming up of hatred that led eventually to genocide
in Rwanda was by radio stations? In this era of sophisticated media campaigns, it
is impossible to maintain that the press is neutral,
Even today, many private radio and TV stations, as well objective or heroic. While their freedom should
as social media and print media, often employ what necessarily be guaranteed, there must be a recognition
verges on hate speech against people of different ethnic of the potential for malevolence and the need to guard
or religious groups, and against political adversaries. In against its consequences for women and society at
addition, facts are deliberately distorted, and inaccurate large. A code of ethics drafted by the media could go
stories cleverly planted as part of psychological some way towards providing guidance on sensitive
operations (PSYOPS) or war strategy either by state issues and on the proper treatment of such issues by
intelligence agencies or rebel groups. These aim to media actors.
296 Chapter 10. The Media

The Association of Progressive Communications’

“Take Back the Tech” campaign has launched an
online platform which crowd-sources reports of online Another deep concern
threats, harassment and hate speech against women
is the growing risk to
in Bosnia and Herzegovina, Colombia, DRC, Kenya,
Macedonia, Mexico, Pakistan and the Philippines, in
journalistic independence
order to show that these incidents are neither isolated and the physical security
nor anomalous, and to advocate for recognition and of media professionals,
redress for technology use spurring gender-based especially in crises and
violence at the local, national and international levels.14
conflict-affected settings.
Another deep concern is the growing risk to
journalistic independence and the physical security of
media professionals, especially in crises and conflict-
affected settings. Journalists, photojournalists and to 54 per cent in the case of men. The largest number
human rights observers who seek to report on conflict of female journalists killed has taken place in Iraq
put themselves in great danger and often find their (13), while the largest number of male journalists
movements tracked as they try to report the truth killed has taken place in Israel and the Occupied
about war to the greater public. Data published by Palestinian Territories (153), followed by Syria (79). A
the Committee to Protect Journalists in 2015 reveals shocking 70 per cent of the total women journalists
that since 2000, 446 journalists have been killed and 62 per cent of men journalists killed worldwide
as a result of journalistic activities in conflict and were murdered, while others were killed in crossfire
post-conflict countries.15 Although men dominate the or as a result of dangerous assignments. Even worse,
journalistic profession in conflict settings, the risks for 53 per cent of the perpetrators of murders of women
women are higher: 64 per cent of women journalists journalists in conflict settings are enjoying impunity or
killed worldwide died in conflict countries, compared partial impunity.
297 297

RECOMMENDATIONS

Moving progress beyond 2015: Proposals for action

Media outlets should: and journalists by strengthening legal frameworks,

providing security and addressing impunity of
✓ Commit to accurately portray women and men in perpetrators.
all their diverse roles in conflict and post-conflict
settings, including as agents of conflict prevention, ✓ Develop and enforce laws and mechanisms to
peacemaking and peacebuilding. prevent, investigate and punish harassment,
threats and hate speech published on internet and
✓ Increase women’s representation and voice in mobile platforms.
newsrooms, in decision-making and leadership roles.
✓ Appoint more women in state-owned media
✓ Monitor media content, including information which may structures, and allocate funding to increase
harm or stigmatize victims of sexual violence in conflict, women’s participation and leadership of media
and take into account special protection measures initiatives, including community radio, in fragile,
when covering stories on women and children. conflict and post-conflict contexts.

✓ Create a code of ethics drafted by media

personnel for media personnel as guidance with All actors should:
regard to sensitive issues.
✓ Support initiatives to increase training on gender-
sensitive reporting and how to use, produce
Member States should: and disseminate media materials, taking into
consideration that some women have limited
✓ Protect, when threatened, the reputations and access to assets and ICT, and restrictions on
lives of women and men human rights defenders mobility.
298 Chapter 10. The Media

REFERENCES
1. Courtney Radsch, “Women, Cyberactivism, & the Arab 9. For example, the high-level political and media advocacy
Spring,” Muftah, December 10, 2012, http://muftah.org/ of the SRSG on Sexual Violence in Conflict, and the UN
women-cyberactivism-the-arab-spring/. Action Against Sexual Violence in Conflict’s Stop Rape
Now campaign lent impetus to this paradigm shift by
2. Pernilla Ahlsén, “Peace Journalism: How Media Reporting
attracting the attention of policy-makers and the global
Affects Wars and Conflicts” (Kvinna till Kvinna, October
media. See, Eleanor O’Gorman, “Review of UN Action
3, 2013).
Against Sexual Violence in Conflict 2007-2012 - Final
3. For purposes of the Global Study, the term media is Report” (Cambridge, UK, January 2013).
interpreted broadly, encompassing both traditional
10. “Resolution 1820 (2008),” UN Doc. S/RES/1820 (United
mediums such as print, television and radio, which are
Nations Security Council, June 19, 2008); “Resolution
part of the industry and owned by the public or private
1960 (2010),” UN Doc. S/RES/1960 (United Nations
sector, and new and more accessible forms of media
Security Council, December 16, 2010); “Resolution 2106
such as social media platforms, online magazines,
(2013),” UN Doc. S/RES/2106 (United Nations Security
videologs and blogs.
Council, June 24, 2013).
4. Hilary Heuler, “Uganda’s Mama FM Gives Women a
11. Sarah Macharia, “Women Peace and Security
Chance to Be Heard,” VOA, June 19, 2014, http://www.
Media Monitoring” (World Association for Christian
voanews.com/content/ugandas-mama-fm-gives-women-a-
Communication, June 12, 2015).
chance-to-be-heard/1940619.html.
12. “Report of the Fourth World Conference on Women
5. “Uganda Media Women Association (UMWA) -
(Beijing, China 4-15 September 1995),” UN Doc. A/
Community Radio,” accessed June 22, 2015, http://
CONF.177/20/Rev.1 (United Nations, 1996).
interconnection.org/umwa/community_radio.html.
13. During the last years of the Sri Lankan civil war, these
6. “FemLINKPACIFIC Program Strategy,” accessed
practices were often employed. See, Charles Petrie,
September 11, 2015, http://www.femlinkpacific.org.fj/
“Report of the Secretary-General’s Internal Review Panel
index.php/en/what-we-do/program-strategy.
on United Nations Actions in Sri Lanka,” November 2012.
7. “The Noor Campaign: Shedding Light on Women’s Security
14. “Take Back The Tech! Map It. End It.,” Take Back
Concerns in Libya” (The Voice of Libyan Women, 2014).
the Tech, accessed July 8, 2015, https://www.
8. Natalie Hanman, “I Urge You to Watch The Greatest takebackthetech.net/mapit/main.
Silence,” The Guardian, March 20, 2008, http://
15. Data sourced from: https://cpj.org/killed/2015/. For the
www.theguardian.com/film/filmblog/2008/mar/20/
analysis, this includes countries or territories in which a
congoswaronwomen. Other documentaries focused on
United Nations political, peacebuilding or peacekeeping
women’s experiences of violence in the DRC followed,
mission operated during 2014, or concerning which
including Femke van Velzen, Ilse van Velzen, and If...
the Security Council was seized and which had been
Productions., Fighting the silence sexual violence
considered by the Council at a formal meeting during the
against women in Congo (Amsterdam: IF Productions,
period from 1 January 2014 to 31 December 2014, or
2007). Dearbhla Glynn, War on Women (IRIN Films,
countries or territories that received programmatic funds
Obinna Anyadike & Charlotte Cans, 2014)., and Bruno.
from the Peacebuilding Fund in 2014.
Sorrentino et al., Grace under fire (Oley, PA: Bullfrog
Films, 2011).
 299

CIVIL SOCIETY
300 Chapter 10. Civil Society

HIGHLIGHTS FROM THE RESOLUTIONS

Resolution 1888
Expresses its intention to make
better usage of periodical field
visits to conflict areas, through the
organization of interactive meetings
with the local women and women’s
organizations in the field

2009 2010

Resolution 1960
Underlines that, in order
to carry out their mandate,
missions must communicate
effectively with local
communities; and encourages
the Secretary General to
improve their capacity to do so
 301

Resolution 2106
Underlines the important roles that civil
society organizations, including women’s
organizations, and networks can play in
enhancing community-level protection
against sexual violence in armed conflict
and post-conflict situations and supporting
survivors in accessing justice and
reparations

2013

Resolution 2122
Encourages concerned Member States to
develop dedicated funding mechanisms to
support the work and enhance capacities of
organizations that support women’s leadership
development and full participation in all levels of
decision-making, regarding the implementation
of resolution 1325 (2000), inter alia through
increasing contributions to local civil society
302 Chapter 10. Civil Society

In 1915, amid the devastation of World War I, over 1,000 organizations, and to host a website platform to invite
women from 12 different countries gathered in The civil society submissions on recommendations. The
Hague, Netherlands to protest the atrocities of the support of civil society, and their feedback, inputs,
war, debate how to put an end to it and prevent future experience and expertise has been critical to the
violence and conflict.1 The gathering sowed the seed findings and recommendations of this Study—and it
for a new organization: the Women’s International is important that every opportunity be leveraged to
League for Peace and Freedom (WILPF). It also continue to advocate for these voices to be heard in
provided one of the origins of a social movement that, policy making circles—whether it be in New York, Addis
with a growing chorus of voices, would eventually push Ababa, London or Moscow.
for recognition of the role of women in peace and
security that culminated in Security Council resolution The centenary commemoration of WILPF was recently
1325 some 85 years later. convened in The Hague, bringing together men
and women peacemakers from over 80 countries
Civil society played a powerful role in lobbying for the in support of a common goal: sustainable peace.2
adoption of resolution 1325 and contributing to its Many of the discussions in The Hague focused on
drafting—and there is perhaps no other international the effective implementation of resolution 1325. In
agenda which has placed civil society so firmly at particular: the need for States to place human rights
its center. This is in no small part due to the central and equality, disarmament and peace at the center
contributions of women’s organizations to conflict of foreign policy; the need for the UN to democratize
prevention, peacemaking, and on the front lines of and fulfill obligations under the Charter, including an
post-conflict recovery, when the State and donor end to the secretive and exclusive selection of the
community have yet to assume their roles. Secretary-General; the importance of recognizing
human security as key to global security; and the need
Indeed, it is for this reason that preparations for to end the reliance on a project-based approach to the
this Study were centered on consultations with implementation of resolution 1325, which places the
women’s civil society, including dedicated meetings priorities of donors before those working to ensure real
in all regions globally. A High-Level Advisory and sustainable implementation in the field.
Group, comprised in the majority of civil society
voices, supported the work of the Global Study.
The secretariat also worked with partner NGOs THE POWER OF SOCIAL MOVEMENTS
to administer a worldwide survey of civil society FROM THE GROUND UP

All over the world, from Guatemala City, to Kathmandu,

to Kampala, civil society organizations have
demonstrated the power of social movements to effect
“We have the power real change from the ground up. From pushing for the

to stop war and turn highest body on peace and security to heed women’s
voices, to mobilizing globally for an arms trade treaty,
our upside down world or locally to end violence against women, progressive
social movements can do more to effect real progress
right.” in the lives of men, women, boys and girls than States
and multilateral institutions can alone.
Leymah Gbowee,
Nobel Laureate In part, this unique impact derives from the fact that
many civil society organizations are close to the
grassroots. One must also recognize the ability of
 303

these organizations to shape public and government

agendas and create the political will for action.
Research carried out by Womankind Worldwide
and Action Aid in five fragile and conflict-affected
Civil society,
countries showed the vital role played by women’s including women’s
rights organizations at the grassroots level in
mitigating conflict and building peace, from setting up organizations, should
underground schools and health clinics in Afghanistan,
to contributing to the reintegration of ex-combatants
play a prominent role
in Sierra Leone.3 As one report highlights, “women in the development
activists and grassroots organizers of Afghanistan,
Nepal, Liberia, or Somalia are the best navigators of all programmes
of their own cultural and political terrain. They know
which issues are most important.”4 carried out by the UN,
Yet, 15 years after the adoption of resolution 1325,
and should be taken
we still lack effective systems for regular engagement seriously as partners
and consultation with such women’s groups to ensure
that their knowledge, experience and capacities are by the different
supported and are informing national, regional and
global level policy-making.
entities.
Where progress and broader transformation had taken Respondent to the civil society survey for
place, the main factor of success was often credited the Global Study, based in the Netherlands,
to collaboration and joint action with other civil society working in Asia and the MENA region
organizations, using civil society’s role as a watchdog
and independent monitor.5 Greater collaboration
and support is essential therefore for grassroots
organizations, especially those targeting women who
experience intersectional discrimination, including on Notable results have been achieved by coalitions of
the basis of age, sexual orientation, indigeneity and organizations stretching across social movements,
disability. such as the International Campaign to Ban Landmines.
Similarly, regional coalitions have played a central role
Also key is the ability of civil society organizations to in mobilizing for peace. For example, in the Balkans,
shape public and government agendas and create organizations including the Regional Women’s Lobby
the political will for action.6 Women’s organizations and the Regional Women’s Lobby for Peace, Security
and movements play a crucial accountability role, and Justice in South East Europe have successfully
monitoring government action and holding them to used the language of resolution 1325 to link human with
account on their commitments to women, including regional security, on issues ranging from development to
on peace and security.7 Examples of this role include constitutional reform.11 Another is the work being done to
the 1325 Monitoring Project carried out by the Global tackle violence against women. In their landmark study
Network of Women Peacebuilders;8 the Mapping published in 2012, Mala Htun and S. Laurel Weldon
of Women, Peace and Security in the UN Security looked at 70 countries over four decades to examine
Council undertaken by the NGO Working Group the most effective way to reduce women’s experiences
on Women, Peace and Security;9 and Cordaid’s of violence.12 Analyzing the effect of different variables
Barometer of Local Women’s Security.10 on the scores of an Index of Government Response to
304 Chapter 10. Civil Society

Violence against Women, they found that the mobilization When reflecting upon how their work has changed
of strong, independent feminist movements was the since 2000, many civil society respondents indicated
variable that had the most consistently significant effect. that resolution 1325 had been instrumental in
galvanizing women’s efforts on a broad range
of peace and security issues. It has also served
The civil society global survey as a framing tool and a source of legitimacy to
demand action from their governments and the
In preparation for this Study, a global survey was international community, leading to the development
shared with civil society organizations working to of international standards including in areas such as
implement the WPS agenda. Its findings—based on sexual violence in conflict.
317 responses collected from organizations active
in 71 different countries; 17 focus group discussions Still, a majority of respondents rated resolution
(FGDs) held in 16 countries including over 200 1325 as only ‘moderately effective’ because its
participants; and one international 1325 expert transformative potential had not been fulfilled.15 In
conference13—provide a wealth of quantitative and field visits and consultations, numerous organizations
qualitative data illustrating both positive impacts, as expressed concern that gains made at normative
well as gaps and challenges.14 levels had not translated into desired impact on

FOCUS ON

Building coalitions – learning from the International Campaign to Ban Landmines

The influence of strong coalitions and the importance The ICBL and its founding coordinator, Jody Williams,
of working together have been demonstrated through jointly received the 1997 Nobel Peace Prize for
the work and results of the International Campaign their efforts to bring about the Mine Ban Treaty
to Ban Landmines (ICBL). Since its launch in 1992, (Ottawa Treaty). The signature of this treaty (which
the ICBL has been the voice of civil society in the bans the use, production, stockpiling and transfer
diplomatic arena, pushing for changes in government of anti-personnel mines) is seen as the campaign’s
policies and practices on addressing the suffering greatest success. Together with five women Nobel
caused by landmines. The campaign includes Peace Laureates, Williams established the Nobel
national and international NGOs, as well as dedicated Women’s Initiative in 2006 and is also active today in
individuals across many disciplines including human theCampaign to Stop Killer Robots, an international
rights, development, refugee issues, and medical and coalition that is working to preemptively ban fully
humanitarian relief. Since its launch, the campaign autonomous weapons.
has grown to become a network with active members
in some 100 countries all working to rid the world
of antipersonnel landmines, and support landmine
survivors to lead fulfilling lives.16
 305

role, including in direct service provision, at the frontlines

of conflict and disaster—often at great risk and sacrifice.
“We want the Women’s human rights defenders for example have
increasingly become targets of violence, facing particular
opportunity to make risks that must be urgently addressed by the global
community. Such risks have expanded dramatically
decisions about the across the world in 2015, yet security measures to keep

services we receive.” women’s human rights defenders safe are lagging far
behind.17 Organizations working in the context of ongoing
conflict, including from the Middle East and North Africa,
Woman ex-combatant, pointed to insecurity and militarism as some of the main
Global Study visit to Nepal challenges they faced.

While security conditions may be worsened by conflict,

these conditions are overlaid onto an already existing
global shift towards shrinking civic space. A recent
the ground. Change was not being felt in local report showed that in 2014 democracy was on the
communities, including those most affected by conflict. retreat and free assembly violations were on the rise
In some settings, key needs and priorities put forward
by women, such as income-generation and livelihood
opportunities, continued to be overlooked in projects
and programming even when strongly articulated by
the women themselves. We must
In terms of constraints more generally, the top three acknowledge
obstacles limiting the effectiveness of civil society’s
work identified by respondents to the global survey
the value of civic
were: contribution, build
• Lack of resources (explained in more detail in the capacity of
Chapter 13: Financing WPS);
marginalized voices,
• Gaps between international policies and local ensure a place at the
realities; and
table for civil society
• Lack of trust between governments and civil
society. actors, and safeguard
their activities.”
CHALLENGES FACED BY CIVIL SOCIETY
IN CRISES AND CONFLICT-AFFECTED Zeid Ra’ad Al-Hussein, United Nations High
SETTINGS Commissioner for Human Rights18

Civil society organizations are playing an ever-growing

306 Chapter 10. Civil Society

in more than 96 of the UN’s 193 member states.19 for and sustainability of peacebuilding outcomes, civil
Tactics deployed to close civic space include passing society activists have often found themselves kept
restrictive laws and targeting individual civil society outside key negotiations, and their analysis and data
organizations by raiding their offices, freezing their not considered with the same seriousness as inputs
bank accounts or deregistering them. Strategic use of from ‘official’ sources.
mechanisms such as the Universal Periodic Review
and submissions to the treaty bodies, particularly Linked to this, at the WILPF ‘Women’s Power to
CEDAW, can be used to highlight repressive actions Stop War’ conference, participants also expressed
by governments to silence civil society, providing for frustration at the nature of their engagement with the
greater scrutiny and policy response (the role of such multi-lateral system, where they often felt patronized
human rights mechanisms is described in detail in or treated in a token way.20 Despite their mistrust
Chapter 12). however, these groups consistently continued to
express their desire to collaborate with governments
Lack of trust between governments and civil society and the international community—69 per cent of those
is another challenge that has impacted negatively who participated in the CSO survey responded that
on analysis of needs and priorities; formulation they had worked with their national government and
of policies and strategies; and support for their ministries in some way21—although affirming that they
implementation. Despite recognition that more also needed to maintain an independent voice when
inclusive peace processes lead to stronger support doing so.

FOCUS ON

Civil society is not one voice

“Within civil society organizations, we have to and of itself, is almost never a singular voice. The
be careful about lumping all women into one diversity of views is crucial in representing different
category. Many women are divided across political people, interests and experiences, but it can also be
ideologies. However, in women being divided, the a challenge. In conflict and post-conflict settings, in
greater struggle for rights can sometimes be lost.” particular, civil society may be divided, fragile and
at times controlled by elites or diaspora.22 In fact, in
Participant at the Nepal civil society consultation recent years, groups holding views in opposition to
for the Global Study rights already granted in international legal frameworks
have demonstrated their effectiveness in mobilization
While coalitions or social movements may speak as well, raising the threat of a rollback of these
with one voice on specific issues, civil society, in established rights.
 307

decision-makers. However, while useful, this once-a-

year interaction is far from adequate. Instead, regular
“The CSOs play the forums should be instituted for better interaction,
feedback and consultation between senior leadership
role of the watchdogs in peace operations missions, women leaders and civil
society groups.
and [remain] the
voice of the voiceless. EMERGING AND SYSTEMIC ISSUES
By these efforts,
The civil society survey and focus group discussions
the problems of the shed light on both emerging and systemic issues

marginalized can easily affecting the work of women’s organizations and

activists worldwide, including militarization, gender
be addressed by the inequality and violence against women. A majority of
respondents recognized the threats and challenges
responsible service, the to their work posed by the rise of violent extremism,
often described in tandem with issues of terrorism and
UN and other related counter-terrorism.25 New technologies of war and their
services.” impact on women also ranked highly as an emerging
issue.

The two graphs below illustrate the range of responses

Respondent to the civil society survey for the
to the survey question: ‘What emerging global issues
Global Study, working in Cameroon
have affected your work on women, peace and
security?’26

It is noteworthy that many of the same needs around

women’s organizing for peace identified in the
Need for more inclusive spaces
Independent Experts Assessment led by Elisabeth
Rehn and Ellen Johnson Sirleaf in 2002 still ring
Given that civil society is often in the best position to
true today, namely safety, resources, political space
connect and share local issues with national leaders,
and access to decision-makers.27 This points to
bringing the perspectives of women and girls at
obstacles and gaps that are systemic in nature—
the grassroots to the national, regional and global
such as entrenched and pervasive social exclusion,
levels,23 much more should be done to create more
gender inequalities, violence against women—as
inclusive spaces for decision-making, consultation,
well as incongruity between the rhetoric of political
interaction and debate between civil society, national
commitment, necessary resource allocations and
governments and the international community.
actual impact on the ground.

Annually since 2010, United Nations peace operations

In order to achieve the transformative potential of
have held ‘Open Days on Women, Peace and
resolution 1325, a majority of civil society groups
Security,’24 which provide an opportunity for women
emphasized the urgency of reprioritizing the conflict
in the countries where these operations take place
prevention elements of the WPS agenda. They
to speak directly with high-level UN officials, to voice
repeatedly called for long-term integrated strategies
their concerns and identify needs and priorities to
308 Chapter 10. Civil Society

Proportion of respondents who selected each of the following categories in response to the survey question:
What emerging global issues have affected your work on women and peace and security the most (multiple
responses possible)?28

Violent extremism 50%

Terrorism and counter terrorism 34%

New technologies of war and their impact on women 33%

Climate change 28%

Pandemic health crises 22%

Transnational organized crime 20%

Other(s) - please specify 18%

(Did not answer) 13%

Proportion of respondents by region who selected each of the following categories in response to
the survey question: What emerging global issues have affected your work on women and peace and
security the most, (multiple responses possible)?29

74%

29% Middle East

50% 26% Latin America
52%
15% Europe/ N America
21% 36% 9%
21% Asia
30% 17% 50%
14% 15% Africa
47% 7%
26% 27% 7%
39% 16% 16%

48% 21%
45% 43% 38%
29% 19%

Violent Terrorism & New technologies Climate Pandemic health Transnational

extremism counter-terrorism of war change crises organized crime
 309

that address the root causes of armed conflict rather reconstruction processes. Importantly, this must go
than just the symptoms. beyond numbers, and instead measure participation
by impact and the existence of spaces for women
The top priority beyond 2015 identified across to organize themselves. This lies at the core of
regions is women’s full and equal participation in all resolution 1325, and yet has remained one of the
conflict prevention, peacebuilding and post-conflict areas with least traction.

“As we learn from

the past 15 years
and prepare for the
post-2015 agenda,
CSOs stand ready
to work with all
actors to achieve
the transformative
potential of this
landmark resolution.”

Report on outcomes of the civil society

survey for the Global Study30
 Civil Actors
310 Chapter 10. Key Society

RECOMMENDATIONS

Moving progress beyond 2015: Proposals for action

The UN, regional organizations and their Member for human rights violations against civil society
States should: advocates and women human rights defenders, so
they are able to operate free from hindrance and
✓ Institutionalize the participation and consultation insecurity, and exercise fully their rights to freedom
of civil society and conflict-affected women, of opinion and expression, association and peaceful
including from the grassroots, in local, national and assembly.
global decision-making processes, including the
development, implementation and monitoring of
national action plans. Women’s civil society organizations and
movements should:
✓ Ensure meaningful consultation and direct
participation of women in peace processes, and ✓ Build strategic alliances across civil society
ensure funding and security for their attendance at networks to strengthen constituencies and impact
negotiations. on emerging global, regional and national issues
regarding human rights, sustainable development,
✓ Establish, finance and support knowledge-sharing and peace and security.
mechanisms to ensure timely and transparent
sharing of information between civil society and ✓ Develop joint advocacy strategies.
government, with special efforts made to reach and
engage local communities. ✓ Broaden engagement with the multi-lateral system,
in particular the Universal Periodic Review and
✓ Create and maintain, in law and in practice, a treaty body mechanisms, to draw attention to
safe and enabling environment ensuring access implementation of the WPS agenda and the human
to justice, accountability, and end of impunity rights elements that underpin it.
 311

REFERENCES
1. “WILPF 2015 Manifesto” (Women’s International League 13. Focus group discussions were organized by GNWP,
for Peace and Freedom, March 2015). ICAN and Cordaid, in collaboration with local partners in
Afghanistan, Burundi, Colombia, Democratic Republic of
2. “Conference Summary: Women’s Power to Stop War,
Congo, Ghana, Guatemala, Israel, Nepal, the Netherlands,
27-29 April 2015” (The Hague, Netherlands: Women’s
Norway, the Philippines, Rwanda, Serbia, South Sudan,
International League for Peace and Freedom, 2015).
Sweden, Uganda and the United Kingdom. See, “Focus
3. Ivan Cardona et al., “From the Ground Up: Women’s Group Discussion Report for the Civil Society Organization
Roles in Local Peacebuilding in Afghanistan, Liberia, (CSO) Survey: Civil Society Input to the Global Study on
Nepal, Pakistan and Sierra Leone” (Action Aid Women, Peace and Security” (Global Network of Women
International, September 2012), 15. Peacebuilders, ICAN, NGO Working Group on Women,
Peace and Security, Cordaid, May 2015). The report also
4. Sanam Naraghi Anderlini, Women Building Peace : What
incorporates relevant findings from the 2015 The Netherlands
They Do, Why It Matter (Lynne Rienner Publishers, 2007).
- Civil Society input prepared by WO=MEN drafted on the
5. “Global Report: Civil Society Organization (CSO) Survey basis of civil society input during the international 1325 expert
for the Global Study on Women, Peace and Security: conference held on 16 and 17 February 2015 in Amsterdam
CSO Perspectives on UNSCR 1325 Implementation and The Netherlands Civil Society Monitoring report Global
15 Years after Adoption” (Global Network of Women Network of Women Peace Builders 2014.
Peacebuilders, Cordaid, NGO Working Group on Women,
14. “Global Report: Civil Society Organization (CSO) Survey
Peace and Security, International Civil Society Action
for the Global Study on Women, Peace and Security:
Network, July 2015), fig. 14.
CSO Perspectives on UNSCR 1325 Implementation 15
6. The crucial importance of the active involvement of Years after Adoption.”
civil society, at all levels, has been recognized by the
15. Ibid.
Human Rights Council. See “Civil Society Space,” UN
Doc. A/HRC/27/L.24 (United Nations General Assembly, 16. “International Campaign to Ban Landmines - ICBL,”
September 23, 2014). accessed September 16, 2015, http://www.icbl.org/en-
gb/about-us.aspx.
7. “Turning Promises into Progress: Gender Equality and
Rights for Women and Girls - Lessons Learnt and Actions 17. Sarah Marland, “Women Human Rights Defenders:
Needed” (Gender and Development Network, Gender Protecting Each Other,” openDemocracy, April 23, 2015,
Action for Peace and Security, UK SRHR Network, March https://www.opendemocracy.net/5050/sarah-marland/
2015), 25. women-human-rights-defenders-protecting-each-other.
8. Global Network of Women Peacebuilders, “Women 18. “Opening Statement by Zeid Ra’ad Al Hussein United
Count: Security Council Resolution 1325: Civil Society Nations High Commissioner for Human Rights at the
Monitoring Report 2012,” 2012, http://www.gnwp.org/ Human Rights Council 27th Session,” United Nations
sites/default/files/resource-field_media/Nepal_1.pdf. Office of the High Commissioner for Human Rights
(OHCHR), September 8, 2014, http://www.ohchr.org/EN/
9. NGO Working Group on Women, Peace and Security,
NewsEvents/Pages/DisplayNews.aspx?NewsID=14998.
“Mapping Women, Peace and Security in the UN Security
Council,” http://womenpeacesecurity.org/media/pdf- 19. “Civil Society Watch Report” (CIVICUS, June 2015).
NGOWGMAPReport_Full2011-12.pdf.
20. “Conference Summary: Women’s Power to Stop War,
10. “Women’s Peace and Security Barometer: Measuring 27-29 April 2015.”
Daily Security for Effective Peace Building” (Cordaid,
21. “Global Report: Civil Society Organization (CSO) Survey
March 2014).
for the Global Study on Women, Peace and Security:
11. Donjeta Murati et al., “1325 Facts & Fables: A Collection CSO Perspectives on UNSCR 1325 Implementation 15
of Stories about the Implementtion of United Nations Years after Adoption,” fig. 14.
Security Council Resolution 1325 on Women, Peace, and
22. “The Challenge of Sustaining Peace,” UN Doc.
Security in Kosovo” (Prishtina, Kosovo: Kosova Women’s
A/69/968–S/2015/490 (Advisory Group of Experts for
Network, 2011); Irvine, “Leveraging Change: Women’s
the 2015 Review of the United Nations Peacebuilding
Organizations and the Implementation of UNSCR 1325 in
Architecture, June 29, 2015), para. 46.
the Balkans,” 30.
23. This is illustrated by the panel discussion that took place at the
12. Mala Htun and S. Laurel Weldon, “The Civic Origins
Human Rights Council on 11 March 2014, on the importance
of Progressive Policy Change: Combating Violence
of the promotion and protection of civil society space, which
against Women in Global Perspective, 1975-2005,” The
presented experiences, lessons learned and good practices
American Political Science Review 106, no. 3 (August
with regard to space for civil society, and highlighted strategies
2012): 548–69.
and steps to promote a safe and enabling environment for
312 Chapter 10. Civil Society

these groups. “Summary of the Human Rights Council Panel 27. Elisabeth Rehn and Ellen Johnson Sirleaf, “Women,
Discussion on the Importance of the Promotion and Protection War, Peace: The Independent Experts’ Assessment on
of Civil Society Space: Report of the Office of the United Nations the Impact of Armed Conflict on Women and Women’s
High Commissioner for Human Rights,” UN Doc. A/HRC/27/33 Role in Peace-Building,” Progress of the World’s
(United Nations General Assembly, June 16, 2014). Women (New York, NY: United Nations Development
Fund for Women, 2002), 86–87.
24. “Women Count for Peace: The 2010 Open Days on
Women, Peace and Security” (United Nations Department of 28. “Global Report: Civil Society Organization (CSO)
Peacekeeping Operations (DPKO), United Nations Department Survey for the Global Study on Women, Peace
of Political Affairs (DPA), UNIFEM (now UN Women), United and Security: CSO Perspectives on UNSCR 1325
Nations Development Programme (UNDP), September 2010). Implementation 15 Years after Adoption.” Multiple
choices per participant possible.
25. “Global Report: Civil Society Organization (CSO)
Survey for the Global Study on Women, Peace 29. Ibid. Multiple choices per participant possible.
and Security: CSO Perspectives on UNSCR 1325
30. “Global Report: Civil Society Organization (CSO)
Implementation 15 Years after Adoption.”
Survey for the Global Study on Women, Peace
26. Given contextual differences, there was some variation in and Security: CSO Perspectives on UNSCR 1325
weight given to issues. Multiple choices per participant Implementation 15 Years after Adoption,” 9.
were possible.
 313

DATA AVAILABILITY AND

NATIONAL STATISTICS
314 Chapter 10. Data Availability and National Statistics

HIGHLIGHTS FROM THE RESOLUTIONS

Resolution 1325 Resolution 1889

Noting the need to Requests the Secretary-General
consolidate data on the to ensure that relevant UN
impact of armed conflict bodies, in cooperation with
on women and girls Member States and civil society,
collect data on, analyze and
systematically assess particular
needs of women and girls in
post-conflict situations

2000 2009

Resolution 1888
Requests that the Secretary-
General ensure more systematic
reporting on incidents of trends,
emerging patterns of attack, and
early warning indicators of the
use of sexual violence in armed
conflict in all relevant reports to
the Council
 315

Resolution 1960
Requests the Secretary General to establish
monitoring, analysis and reporting arrangements
on conflict-related sexual violence, including rape
in situations of armed conflict and post-conflict
and other situations [and] to engage with United
Nations actors, international institutions, civil society
organizations, health-care service providers, and
women’s groups to enhance data collection and
analysis of incidents, trends, and patterns of rape
and other forms of sexual violence

2010
316 Chapter 10. Data Availability and National Statistics

estimated that every day more than 3,000 children die

from diarrhoeal diseases.4
“…[W]e must be careful
Illustrative examples also exist in peace and security-
of how we measure our related fields. For example, in the early 2000s, few
attempts had been made at the global level to measure
progress. If we use the women’s participation in peace processes. Research
wrong metrics, we will studies after the ten-year anniversary of resolution
1325 drew attention to both the strikingly low levels of
strive for the wrong participation of women at peace tables and the weak
inclusion of gender-responsive language in peace
things.” agreements.5 Efforts to track women’s contributions to
peace processes exposed the paucity of women’s voices
Joseph E. Stiglitz, Nobel laureate1 and paved the way for more regular monitoring, which
has contributed to a rise in initiatives aimed at increasing
women’s participation. The evidence also sparked a
range of qualitative studies on women’s contributions to
peace processes, shedding light on structural and other
Data are among the most valuable commodities for social obstacles preventing participation and strengthening
change. When available, accessible and reliable they evidence for women’s inclusion (see Chapter 3: Women’s
can enhance accountability, trigger public action, inform Participation).
evidence-based decision-making and enable public
policies that truly tackle the needs of the population. If The need for more relevant and reliable statistics on
adequately disaggregated, they are an essential tool women, peace and security-related issues is widely
for targeting interventions that address inequalities and understood and was raised by participants in consultations
promote progress among those who are lagging behind. for this Study. For instance, participants called for further
research into the correlation between militarized societies
The contribution of effective data analysis to political, and sexual and gender-based violence, highlighted data
economic and social progress has been exemplified in gaps in this field, and emphasized the need to strengthen
many areas. For instance, as a result of monitoring efforts data collection and analysis to monitor the effects of
for Millennium Development Goal (MDG) 7, the increased climate change on women and communities in conflict-
availability of geographically disaggregated data on affected and fragile settings.6 They also demanded that
access to improved water sources helped identify which sex-disaggregated data be integrated into all national
urban and rural areas were in most need of adequate planning, including disaster risk reduction programmes
infrastructures. As a result, the United Nations Children’s and emergency response.
Fund (UNICEF) and the World Health Organization
(WHO), in coordination with national governments, were Since the passage of Security Council 1325, there have
able to better target the building of water facilities and been notable advances in the availability of gender
rehabilitation of community wells. These and similar statistics and the capacity to monitor women, peace and
efforts contributed to an increase in the proportion of the security data. Yet statistics that measure needs, gaps
population in developing regions with access to improved and progress on the ground in conflict and post-conflict
water sources from 76 per cent in 1990 to 89 per cent settings remain scarce. This limits the ability to accurately
in 2010, when the MDG target was declared achieved.2 capture the needs and challenges faced by women and
In turn, this contributed to a dramatic decrease in global girls in conflict situations and, as a result, the ability of
child mortality rates (from 99 per 1,000 live births in actors to target programming, understand needs and
developing regions in 1990 to 53 in 2012),3 as it is monitor the impact of interventions.
 317

the feasibility of conducting household surveys is

affected by safety concerns and even administrative
Efforts to track women’s record-keeping might be interrupted. In some settings,
even when statistics are calculated, confidentiality
contributions to peace concerns and statistical laws prevent security-
processes exposed the related data from being disseminated. Yet, efforts
paucity of women’s voices are in place to overcome some of these challenges
and paved the way for and demonstrate that compiling and disseminating
more regular monitoring, statistics in fragile settings is not only necessary but
possible.
contributing to a rise in
initiatives aimed at increasing Numerous international and regional initiatives are
women’s participation. driving coordinated methodology and data production
in conflict settings. For instance, the United Nations
Statistical Commission has recently endorsed the
use of an international standard for data collection
and analysis on crime drivers and factors.8 Extremely
Numerous measures exist to assess progress related relevant for fragile settings—where, as noted in other
to women, peace and security. Among them are the chapters, women continue to experience high levels of
indicators related to resolution 1325, for which data violence and insecurity post-conflict—crime statistics
compilation is annually coordinated through the UN are increasingly available in a sex-disaggregated
Standing Committee on Women, Peace and Security. manner. However, police-recorded offences and other
This information is presented to the Security Council in administrative records do not yet specify sexes of
the Secretary-General’s annual report on women, peace victims and perpetrators consistently. Strengthening
and security. Here, as with so many monitoring efforts, national registries and other administrative data
the paucity of data available impacts on outcomes.7 sources to ensure consistent recording of sex-
To date, most of the indicators with available data disaggregated data in the long-term could play a truly
concern efforts carried out by international entities for transformative role in the lives of women in conflict and
the implementation of resolution 1325, while data for post-conflict settings, where survey data collection is
numerous indicators meant to measure actual outcomes not always feasible.
at the country level remain largely unavailable.
The incidence of sexual and gender-based violence,
heavily underreported in registries, is often better
FILLING DATA GAPS TO GET THE FULL captured through surveys. However, conducting
PICTURE ON THE GROUND specialized surveys can be expensive. Due to financial
constraints, special violence modules are often
One of the key reasons why few countries produce attached to wider household surveys instead, which
and report quality women, peace and security data in some cases may be inadequate to capture actual
annually is inadequate coordination between peace incidence due to sampling issues or to skill limitations
and security institutions and statistical systems due to among the enumerators. In conflict countries, where rape
either a lack of political will or understanding of the may be used as a weapon of war and sexual violence
critical role that quality statistics can play in promoting frequently goes far beyond intimate partners, capturing
peace through targeted interventions. Additional this phenomenon is even more difficult and registry data
challenges include that statistical capacity in conflict- is less reliable.
affected contexts is often limited, resources tend to be
diverted away from statistics into emergency needs, In the absence of reliable figures for the incidence
318 Chapter 10. Data Availability and National Statistics

of violence, perception surveys are useful tools to National statistics are expected to be an important
assess feelings of safety among different population input to monitor the implementation of the 17
groups. They can also provide valuable insights on Sustainable Development Goals (SDGs) adopted by
governance, leadership and inclusiveness issues, the UN General Assembly in September 2015 and
which might be difficult to capture using other should guide interventions to promote sustainable
statistical tools.9 Perception and observation surveys development in the years to come. Sex-disaggregated
conducted within the framework of the Strategy for the governance, peace and security statistics will
Harmonization of Statistics in Africa (SHaSA) are a be necessary to monitor progress towards the
prime example of a bottom-up initiative that is making achievement of a number of SDG targets, and national
a difference in the official measurement of governance, statistics offices must therefore be guaranteed
peace and security issues across the continent. adequate financial and technical support for the
production of these figures.10

FOCUS ON

Statistics for decision-making: The Strategy for the Harmonization of Statistics in Africa

The Strategy for the Harmonization of Statistics in very or fairly worried about threats of physical violence
Africa (SHaSA)11 is a continent-wide effort put in against women by third parties. Similarly, 69 per cent
place to generate comparable statistics for decision- of people were worried about being victims of human
making. SHaSA entails the adoption of international trafficking. Physical risks associated with armed conflict
standards and methods adjusted to African realities, as worried 40 per cent of women and 38 per cent of men.
well as efforts to enhance coordination and sustained Yet, the most cited reasons of concern among both
production of harmonized statistics. In this context, a sexes were hunger and eviction, which worried almost
specialized technical group on governance, peace and 80 per cent of women and 70 per cent of men. Women
security statistics was created in 2012 and developed and men perceived the existence of tension, conflict
a harmonized set of data collection instruments for or violence among groups in their areas differently.
periodic monitoring, including two add-on survey While more men identified tensions regarding natural
modules, one on governance and one on peace and resources14 and ethnic differences,15 women were a
security.12 Implementation of data collection exercises lot more likely to mention tensions between groups
utilizing these modules has either already taken place regarding economic competition.16
or is currently ongoing in at least 13 African national
statistics offices.13 Gender analysis of national and sub-national
governance, peace and security statistics, including
Analysis of microdata compiled through this initiative in microdata of this kind, is essential for a comprehensive
Uganda in 2014 provides relevant insights into people’s understanding of the needs and priorities of
perceptions and experiences of gender-related issues communities in fragile settings. International financial
pertaining to governance, peace and security. For and technical support to national data collection efforts
instance, when asked about their main concerns, 51 is therefore critical to further the women, peace and
per cent of the population, men and women alike, were security agenda.
 319

The Minimum Set of Gender Indicators, adopted by the

UN Statistical Commission in 2013, can play a key
role in improving the availability of gender statistics “Statistics are a critical
to assess women, peace and security progress on
the ground. The Minimum Set represents a major tool when it comes
normative advance in the area of gender statistics, and
Member States have agreed to use these indicators to building policy, as
to guide the national production of gender statistics.17
Though not necessarily focused on capturing gender
well as bringing about
issues in conflict and post-conflict settings, the effective action.”
Minimum Set comprises indicators on issues such as
sexual and gender-based violence, women’s human
Marcela Eternod Arámburu,
rights, women’s employment, political representation,
Executive Secretary, National Institute
access to resources and public services, which can
for Women of Mexico
be of crucial relevance in fragile settings. Regional
organizations are setting up tailored initiatives to
support the national production of gender statistics
utilizing the Minimum Set.18
National governments must prioritize the production of
gender statistics that are relevant in fragile settings, as
WORKING TOGETHER TO MEASURE well as of specific women, peace and security statistics.
WHAT WE TREASURE: AN AGENDA FOR Involving women in data production processes and
ACTION developing clear strategies for dissemination and use
of these statistics in policy-making is key as well. In
Despite promising initiatives underway to develop many conflict and post-conflict countries, only with
indicators and track progress at global, regional additional financial and technical support from bilateral
and national levels, it is clear that a significant and multilateral actors can the production of quality
challenge for effectively monitoring progress towards outcome-level data become a reality. A partnership
commitments on women, peace and security is the of national governments beyond fragile states, with
lack of comparable, timely and reliable data. Statistics the support of international entities, needs to address
for many relevant indicators are still not produced women, peace and security-related data production
regularly in conflict and post-conflict settings. Even in a holistic manner: from assessing the relevance
where ‘snapshot’ data exist, there are often no trend of indicators, establishing internationally agreed
data to enable monitoring of changes over time. definitions and aligning efforts with existing international
In the coming years, data requirements to monitor statistical mechanisms to reviewing and reinforcing data
the achievement of the SDGs will be substantial, production, coordination and reporting mechanisms.
particularly for tracking gender equality, women’s
empowerment and the human rights of women and At the international level, peace and security actors
girls as well as measuring peaceful and inclusive must shift their monitoring focus towards more outcome-
societies. To target interventions and ensure women oriented measures, assess the impact of interventions
and girls in conflict and post-conflict settings achieve and pay increased attention to quality. Managerial
sustainable development, specific women, peace and support, statistical expertise and resources allocated to
security statistics will be needed as well. statistics are needed in international entities.
320 Chapter 10. Data Availability and National Statistics

RECOMMENDATIONS

Measuring progress beyond 2015: Proposals for action

International entities working on women, peace these systems for the production of women,
and security should: peace and security statistics;

✓ Review and revise existing women, peace and • Enhancing collaboration with existing statistical
security monitoring frameworks to eliminate coordination mechanisms at the international
overlap and enhance the measurability and level, including those within the auspices of the
relevance of indicators. UN Statistical Commission and in preparation
for SDG monitoring; and
✓ Establish, under the auspices of the UN Standing
Committee on Women, Peace and Security, a • Engaging statistical experts within relevant
partnership comprising international, regional and organizations.
national data producers for the creation of an on-
line gender, conflict and crisis database to bring
together and disseminate available data. National governments should:

✓ Utilize the gender, conflict and crisis database to ✓ Prioritize the production of national women, peace
inform programming and to facilitate sharing of and security statistics, including by allocating
knowledge and good practice. sufficient financial, technical and human resources,
integrating them into existing statistical efforts and
✓ Further disseminate data through the use of an on- ensuring their use for policy formulation.
line repository.
✓ Ensure relevant national statistics are
✓ Focus women, peace and security monitoring systematically disaggregated by sex and other key
efforts towards measuring outcomes and impact variables and timely reported to the international
on the ground by: statistical system.

• Providing technical and financial support to ✓ Include gender statistics in work programmes of
national statistical systems and civil society existing statistical coordination mechanisms working
organizations working in coordination with on issues related to governance, peace and security.
 321

REFERENCES
1. Joseph Stiglitz, “Why Inequality Matters and What statistics and to integrate gender and human rights
Can Be Done About It,” Next New Deal: The Blog statistics as one of its key thematic areas.
of the Roosevelt Institute, April 1, 2014, http://www.
11. “Strategy for the Harmonization of Statistics in Africa”
nextnewdeal.net/stiglitz-why-inequality-matters-and-what-
(African Union Commission, African Development Bank,
can-be-done-about-it.
United Nations Economic Commission for Africa, 2013).
2. “Progress on Drinking Water and Sanitation 2012
12. With an action plan and budget for a progressive
Update” (UNICEF, World Health Organization, 2012), 4.
continental roll-out of the instruments, two ‘add-on’
3. “2014 World Development Indicators” (The World Bank, household survey modules and two schedules of
2014), 5. administrative items were developed, one on Governance
and one on Peace & Security statistics.
4. “Millennium Development Goal Drinking Water Target
Met,” UNICEF East Asia and Pacific, March 6, 2012, 13. Benin, Cameroon, Cape-Verde, Congo-Brazzaville,
http://www.unicef.org/eapro/media_18369.html. Gabon, Ghana, Côte d’Ivoire, Kenya, Madagascar, Mali,
Senegal, Seychelles and Uganda.
5. Pablo Castillo Diaz and Simon Tordjman, “Women’s
Participation in Peace Negotiations: Connections between 14. 53 per cent of men vs. 36 per cent of women
Presence and Influence,” in UN Women Sourcebook on
15. 16 per cent of men vs. 8 per cent of women
Women, Peace and Security (UN Women, 2012).
16. 56 per cent of women vs. 31 per cent of men
6. “Consultation on the Women, Peace and Security
2015 High-Level Review” (The Hague, Netherlands: 17. “Statistical Commission: Report on the Forty-Fourth
PeaceWomen, April 28, 2015), 6, 9. Session (26 February-1 March 2013),” UN Doc.
E/2013/24-E/CN.3/2013/33 (United Nations Economic
7. For a full list of indicators, see “Report of the Secretary-
and Social Council, March 1, 2013). Other efforts,
General: Women and Peace and Security,” UN Doc.
such as different sector specific initiatives launched
S/2010/498 (United Nations Security Council, September
by UN entities, such as OCHA’s indicators on world
28, 2010). There are 26 indicators (and 36 data series).
humanitarian data, UNHCR’s statistics on refugees,
8. “International Classification of Crime for Statistical asylum seekers, internally displaced people and other
Purposes (ICCS)” (United Nations Office on Drugs and populations of concern, FAO’s Gender and Land Rights
Crime, 2015). Database and OHCHR’s Human Rights’ indicators,
will also be relevant in producing women, peace
9. World Value Surveys and Gallup World Polls are
and security related statistics to inform related SDG
examples of perception surveys that provide these kinds
monitoring and improving the overall analysis ofgender
of inputs periodically and are increasingly conducted
dimensions in conflict, crisis and post-conflict settings.
in fragile countries. However, run by third party entities,
Civil society is also recently emerging as an important
these often remain outside the realm of official statistics
data production actor in the context of SDG monitoring.
and are rarely used for the formulation of public policies
in countries. 18. For instance, in Asia and the Pacific, ESCAP supports
national capacity building to respond to data needs
10. Numerous initiatives are currently in place to enhance
utilizing the Set in order to promote gender equality
the production of these statistics, including the Praia
and women’s empowerment.“Regional Consultative
Group on Governance Statistics and the Inter-Agency and
Workshop to Develop a Framework and Core Set
Expert Group on Gender Statistics. The Praia group on
of Gender Statistics and Indicators in Asia and the
governance statistics was formally established in the 46th
Pacific, United Nations Conference Centre, Bangkok,
Session of the United Nations Statistical Commission,
4­6 November 2013” (UNESCAP, 2013), http://www.
and is expected to play a key role in jumpstarting the
unescap.org/sites/default/files/Report-workshop-on-
production of national governance, peace and security
gender-statistics.pdf.
322 Chapter 11. The Security Council

11
 323

WOMEN, PEACE
AND SECURITY AND
THE UN SECURITY
COUNCIL

“It is equally important that the Security

Council, as the highest UN body entrusted
with peace and security matters, leads by
example in fully implementing the WPS
agenda.”
The NGO Working Group on Women, Peace and Security, submission to the Global Study
324 Chapter 11. The Security Council

HIGHLIGHTS FROM THE RESOLUTIONS

Resolution 1325
Expresses its willingness
to ensure that Security
Council missions take
into account gender
considerations and the
rights of women, including
through consultation with
local and international
women’s groups

2000 2009

Resolution 1888
Expresses its intention to ensure
that resolutions to establish or
renew peacekeeping mandates
contain provisions, as appropriate,
on the prevention of, and
response to, sexual violence,
with corresponding reporting
requirements to the Council
 325

Resolution 2122
Expresses its intention to increase
its attention to women, peace and
security issues in all relevant thematic
areas of work on its agenda, in
particular protection of civilians
in armed conflict, post-conflict
peacebuilding, the promotion and
strengthening of the rule of law
[...], peace and security in Africa,
threats to international peace and
security caused by terrorist acts, and
Maintenance of international peace
and security

2013

Resolution 2016
Reiterates its demand for the
complete cessation with immediate
effect by all parties to armed conflict
of all acts of sexual violence and
its call for these parties to make
and implement specific time-bound
commitments to combat sexual
violence
326 Chapter 11. The Security Council

The Security Council adopted resolution 1325 climate in which resolution 1820 was adopted in 2008.
a year after it had adopted thematic resolutions This second resolution specifically addressed sexual
on the protection of civilians, and children and violence in conflict and post-conflict situations and
armed conflict. These decisions came at a time expressed the Security Council’s willingness to impose
of self-reflection in the UN following a decade of sanctions against perpetrators of sexual violence
peacekeeping failures in Rwanda, Somalia and the in armed conflict. Resolution 1820, importantly,
former Yugoslavia. Women were specifically targeted highlighted women’s capacity and legitimacy to
in Rwanda and Bosnia, including through systematic participate in conflict prevention and resolution, as well
sexual violence. The thematic resolutions also as post-conflict public life, as essential to long-term
followed mobilization by women’s groups globally, prevention and protection strategies.
including the global south, to draw attention to the
gendered nature of conflict, not least at the 1995 In the ensuing years, resolutions 1888 (2008), 1889
Fourth World Conference on Women in Beijing, and (2009), 1960 (2010), 2106 (2013), and 2122 (2013)
through the Windhoek Declaration of 2000. on women, peace and security were adopted. With the
exception of 1889 and 2122, these resolutions were
At the time, there was some doubt and indeed, largely focused on sexual violence and other protection
resistance—as reflected in the oral history project issues. They served to establish an architecture that
undertaken in support of the Global Study—by some would define how the Council would consider the
Council members about embracing the importance of protection elements of the WPS agenda in its daily work.
women’s role in peace and security.1 Two main factors
ultimately, would lead to the eventual adoption of In principle, the Council has a conflict prevention role
resolution 1325. First, the sheer effort, determination where the encouragement of women’s participation—
and personal conviction of several individuals both as a pillar and contributing factor—could
serving on the Council at the time, in particular significantly enhance conflict prevention. In practice,
the permanent representatives of elected Council however, the Council’s conflict prevention toolbox has
members Bangladesh, Namibia, Canada, Jamaica and been underutilized. The Security Council has rarely
Mali; and second, the influence of women’s NGOs acted to proactively prevent conflict, and instead has
advocating the 1995 Beijing Platform for Action within focused largely on protection concerns, as reflected
the environment of assessment of the UN’s overall
approach to peace operations. It was in this context
that the Council adopted resolution 1325, which, put
simply, determined that addressing the needs, views
and participation of half of society would provide a In practice, however, the
positive peace dividend for all of society. Council’s conflict prevention
toolbox has been
It would be eight years before the Council produced
further resolutions on the women, peace and
underutilized. The Security
security (WPS) agenda. The next catalyst was the Council has rarely acted to
jurisprudence on sexual violence crimes coming out of proactively prevent conflict,
the international criminal tribunals for Rwanda and the and instead has focused
former Yugoslavia that recognized sexual violence as
a war crime, a crime against humanity, and a possible
largely on protection
constituent act of genocide. This jurisprudence concerns, as reflected
combined with highly credible reports of mass sexual across its body of work.
violence perpetrated against the women of the eastern
DRC, all contributed to the context and political
 327

1889, adopted in 2009, requested a set of indicators

to track resolution 1325’s implementation on a global
A key area of concern is how level, and to be reported on to the Council every year
information to the Council... in the Secretary-General’s report on women, peace
and security (see Chapter 10: Key Actors - Data).
is received, discussed and
sufficiently analyzed to lead Resolution 2122, adopted in 2013, was perhaps the most
to a relevant and achievable significant outcome for the WPS agenda to date in relation
mission level response, and to the Council’s own commitments to implementation and
accountability by the UN action. The Council requested several practices to be
consolidated. These included the following:
system for implementing that
response • Improved information flow into the Council,
including regular briefings by the head of UN
Women and the Special Representative of the
Secretary-General (SRSG) on Sexual Violence in
Conflict;
across its body of work. This co-relates to a notable
lack of investment by the UN as a whole in conflict • Special Envoys, when addressing the Council,
prevention, a finding that was echoed in the recent to also report on progress made in meeting
reports of both the High-Level Independent Panel regularly with women leaders and groups, and
on United Nations Peace Operations as well as inviting women to participate in conflict-resolution
the report of the Advisory Group of Experts for the processes;
2015 Review of the United Nations Peacebuilding
Architecture.2 The translation of this in the realm of • The UN Secretariat’s Department of Political Affairs
women, peace and security, has meant a stronger and Department of Peacekeeping Operations to
focus on the protection of women and girls, in include information on women, peace and security
particular from sexual violence in conflict, and a less in all of their reports and regular briefings to the
consistent recognition and systematic inclusion of Council; and
their participation in the agenda. Indeed, protection
concerns fit more immediately into how the Council • Commissions of inquiry, investigating situations on
views its role in maintaining international peace and the Council’s agenda, to include in their briefings
security whereas participation, while recognized as information on the gender-specific elements of
an important component to a longer-term, structural conflict.
peace and security strategy, does not carry with it the
same immediate requirement for physical protection in In addition, the Council stressed the need for
the way that mass atrocities do.3 consistent implementation of resolution 1325 in its
own work, including by ensuring mission mandates
include women, peace and security provisions such
A PROGRESSIVE COMMITMENT TO as provision of gender expertise, and mainstreaming
IMPLEMENTATION AND ACTION ON THE gender into disarmament, demobilization and
WPS AGENDA reintegration (DDR), security sector reform (SSR) and
election support activities. The Council committed
Resolutions 1889 and 2122 are exceptions to the itself to integrate women, peace and security into
focus on protection, and contain elements of specific other thematic issues it regularly considers, such as
concern to the Council’s working methods. Resolution the rule of law and counter-terrorism. There is also a
328 Chapter 11. The Security Council

key instruction to leadership of peace operations to STRENGTHENING QUALITY INFORMATION

stay apprised of and take requisite action on threats FLOWS TO THE SECURITY COUNCIL
to women and women’s rights in armed conflict and
post-conflict situations. The Council additionally A key area of concern is how information to the
emphasized the importance of its own interaction Council...is received, discussed and sufficiently
with civil society both in New York and during analyzed to lead to a relevant and achievable mission
visiting missions to the field. Throughout, the Council level response, and accountability by the UN system
emphasized the need for the substantive engagement for implementing that response.
of women in peace processes, and for gender experts
to be embedded within mediation teams.
UN gender architecture and the broader UN
Resolution 2122 thus achieved a great deal in system
elucidating ways the Council could improve its
own accountability to women, peace and security The Council’s work on women, peace and security is
commitments. However, significant challenges remain reliant in many ways on the information and analysis
to transforming the spirit of the WPS agenda into it receives from the UN system itself. Strengthening
concrete and consistent implementation. Within the the gender architecture of the UN (dealt with in detail
Council, the political will to address this agenda in Chapter 10: Key Actors - The United Nations) has
across the body of the Council’s work waxes and specific implications for the quality and quantity of
wanes. Moreover, there would appear to be a general information received by the Security Council.
lack of understanding of the WPS agenda that results
in it being regularly overlooked or conflated solely with For example, and more specifically, the Council has
protection from sexual violence. created a robust architecture around sexual violence
in conflict. This includes the Office of the Special
The following sections describe how improved Council Representative on Sexual Violence in Conflict, the
working methods combined with improved flows of Team of Experts on Rule of Law and Sexual Violence
gender conflict analysis from the UN system can help in Conflict, women’s protection advisors and the inter-
shift the perspective of Council members who view agency network UN Action against Sexual Violence
women, peace and security as a ‘woman’s issue’4 in Conflict. All play a critical role in ensuring flows of
or, as some experts describe it, a tick-box obligation, information and analysis on the protection elements of
to, instead, a tool with the potential to enhance the the WPS agenda to the Council.
Council’s own peace and security objectives and its
very effectiveness in achieving these objectives. As regards the UN system as a whole, avenues to
strengthen interaction and information flows across the
entire system should be pursued, and efforts made
to limit the fragmentation and silos that can hamper
effective response.5 The Human Rights Council,
Significant challenges owing to the creation of an increased number of
remain to transforming the commissions of inquiry and fact-finding missions in
spirit of the women, peace the past decade, as well as through the work of its
and security agenda into conflict-relevant Special Mandate holders, can serve
as one important source of information for the Council
concrete and consistent on countries of concern.
implementation. There has been a trend towards regular Arria-formula
meetings6 or informal interactive dialogue meetings
with commissions of inquiry. As a result of a request
 329

in resolution 2122 that all such bodies include pillars of prevention, protection, participation, relief and
findings on gender-based crimes when briefing the recovery. Reporting emanating from the UN system and
Council, these interactions have led to significant Member States is compiled by UN Women. Despite
new flows of information on the impact of conflicts encouragement from civil society, these indicators are
on women and girls that would otherwise have not not reflected in regular country reports received by
been brought to the Council’s attention. While this the Security Council, though they are reflected in the
is a positive practice, efforts should be made to Secretary-General’s annual report on women, peace
standardize it. and security. Equally, all Secretary General’s reports to
the Council should include sex-disaggregated data as
Also, just as the Special Rapporteur on the human part of their analysis.8
rights of internally displaced persons briefed
the Council during the 2014 Open Debate on
women, peace and security, speaking in particular Interaction with civil society
to the gendered impacts of the highest levels of
displacement since World War II, such invitations Civil society, and women’s organizations in particular,
of relevant mandate holders should equally be are key actors for implementation of the WPS agenda,
considered for integration into the Council’s lexicon of often functioning during active conflict as the only
established practice. actors in conflict-affected communities delivering
services and services and sustaining dialogue, and
in the long-term, leading post-conflict recovery. They
Data collection are also critical sources of information, able to provide
missions as well as the Security Council much needed
Data collection has been a fundamental challenge for information on the local context, the impact of the
the WPS agenda, with the lack of information acting as conflict and the suitability of responses. Furthermore,
a barrier to assessments of progress in programming women’s civil society represents a core constituency
and policy, and also as a useful excuse for lack of of the Council and an important stakeholder in their
action from less-supportive stakeholders. decisions. Resolution 2122 specifically recognizes
“the importance of interactions of civil society,
The Council has supported the women, peace and including women’s organizations, with members of
security indicators and the standardized monitoring, the Council at headquarters and during Council field
analysis, and reporting arrangements (MARA) missions and commits to ensuring that its periodic
on sexual violence in conflict, both information- field visits to conflict areas include interactive meetings
gathering processes to measure and move forward with local women and women’s organizations in the
implementation of the WPS agenda. The 2015 field.”
Secretary-General’s annual report on conflict-related
sexual violence was particularly strong, in part due Over the past 15 years, the Council has regularly heard
to increased deployment of women’s protection from women civil society leaders during the annual
advisors to human rights components of missions to debate on women, peace and security; and in recent
support reporting and strengthen the overall capacity years also during the annual debate on sexual violence
of missions on conflict-related sexual violence.7 This in conflict. On occasion, Council members have taken
demonstrates how the Council’s demands for stronger the initiative to hear from women on specific country
gender staffing structures in UN missions can deliver situations, such as the Arria-formula meeting held on 17
improved reporting and analysis. January 2014 with Syrian women to discuss the peace
talks for that country. However, these initiatives remain ad
The women, peace and security indicators are intended hoc and too infrequent. More consistent engagement with
to gauge longitudinal progress across the agenda’s women’s civil society as a key source of information is
330 Chapter 11. The Security Council

Panel on United Nations Peace Operations: “Despite

annual debates on women and peace and security of
“If I can make one the Security Council, there is inconsistent application of
the agenda during the rest of the year, including during
proposal to the mandate formulation and renewal consultations, which
is exacerbated by the lack of attention to those issues in
Security Council briefings and reports to the Council by the Secretariat and

[…] it will be senior mission leaders.”9

strengthening women’s Since the Council is not an implementing arm of the UN

system, it cannot be expected to achieve the requisite
organizations working outcomes in isolation or without quality information and
analysis. Instead, implementation requires significant work
already on 1325.” by the broader UN system, Member States and civil society.
Nevertheless, the Security Council can still strengthen its
Katherine Ronderos, Director, WILPF own accountability for decisions made on women, peace
Colombia, UN Women Video Interview, 2015 and security, and hold the Secretariat accountable for its
role in consistent implementation.

Addressing the implementation gap

needed, and not only during thematic debates, but during
country-specific deliberations. In the years since resolution 1325 was adopted, the
Council has significantly expanded its engagement with
Further, these efforts should be strengthened with more the WPS agenda, particularly through the addition of
regular interaction at the field level between senior operational language in its resolutions. Steady progress
leadership of missions and women’s organizations. has been made in including gender language in its
Such interactions would strengthen the quality of outcomes—specifically, within presidential statements
information flows to the mission, with a knock-on and resolutions. For example, in 2000 only 25 per
positive impact on the information and analysis made cent of relevant resolutions included a reference to
available in briefings and reports to the Council as women, whereas that proportion increased to 94
called for in resolution 2122. per cent in 2013.10 There was also a noticeable
increase in mainstreaming gender language in Council
outcomes from 2011 onwards. This is likely due to the
IMPLEMENTATION IN THE COUNCIL establishment and operationalizing of UN Women and
the office of the SRSG on Sexual Violence—which has led
The important role the Security Council has played to a better flow of information to Council members—as
in establishing the ambitious normative framework well as more regular Secretariat interaction with Council
of women, peace and security cannot be overstated. members that has resulted in better working level
However, while the Council has helped to set the agenda, outcomes. The Secretary-General’s reports have also
implementation of that agenda has proven to be a wholly exhibited an upward trajectory of women, peace and
separate challenge, with the Council thus far being largely security reporting in country-specific reports. Only half of
inconsistent in its oversight of how its decisions on women, such reports referenced women in 2000 compared to 83
peace and security have been translated into action. per cent in 2013 and 89 per cent in 2014.

As noted by the report of the High-Level Independent Other examples of progress include briefings by the
 331

SRSG on Sexual Violence in Conflict and the Executive There was also self-reflection among Secretariat staff who
Director of UN Women on country-specific situations, and reported that their own leadership often did not prioritize
not just on the thematic issue of women, peace and or take gender-staffing needs seriously.12 One common
security. The Special Representative has also regularly complaint by staff, applicable across peace operations, is
briefed Security Council subsidiary bodies such as the that when hard-fought gender positions are approved for
Sanctions Committees for the CAR, DRC and South a mission, they are rarely made part of the mission’s core
Sudan. Furthermore, expert groups associated with budget (with the exception being the UN Mission in South
the CAR, DRC, Sudan and Somalia sanctions regimes Sudan). The result is that, during a mission’s drawdown,
regularly provide gender analysis in their reports. or if a mission is facing budget constraints, gender
expertise is usually the first to be cut from the payroll.
Despite the positive developments in Council outcomes
in New York and improved flows of information from the Certainly, many exceptions to these observations
Secretariat to Council members, what has not happened were cited as examples of strong implementation
however, is better implementation of the WPS agenda of women, peace and security in the field. However,
in the field by peace operations. There is effectively an all stakeholders agreed that consistent and reliable
implementation deficit. Although the gender-specific leadership was lacking, both in New York and in
language in Council resolutions and presidential statements the field. Ultimately, any system of accountability
provides UN actors with the opportunity to improve women, that is institutionalized in the work of the Security
peace and security implementation, without the necessary Council and that can remain effective over time
leadership and follow-up in the Council, the Secretariat requires an approach that is resilient to the Council’s
and in peace operations, there will not be a significant changing dynamics due to shifting geo-political
corresponding positive impact on the ground.11 realities, and to the annual turnover in Council
membership of five elected members. Such a system
In interviews with a wide array of stakeholders, a common will need to recognize that although individual
theme emerged regarding what is necessary to address actors will always matter in taking important strides
this deficit. In particular, Council members pointed to the toward implementation, a reliance on individual
function of the Secretariat to provide timely and relevant personalities or particularly strong Council members is
information firmly rooted in the peace and security context. unsustainable in the long-term.
They expressed that when such information was included
in a Secretary-General’s report or in a briefing by the head In sum, the following are recommended as focus areas
of a peace operation, it tended to be descriptive rather for how the Security Council can help to address the
than analytical. Council members also seemed frustrated implementation deficit:
by civil society’s expectations of what could reasonably be
achieved by the Council. • Improving quality information and analysis flowing
into the Council;
Members of the Secretariat expressed a need for Security
Council members to exhibit high-level commitment, and • Consistent and high-level leadership on women,
in particular, to ask follow-up questions when heads of peace and security, in addition to the sexual
mission brief the Security Council; noting that it was hard violence in conflict leadership, within the UN
to convince Special Representatives in the field to give the system (see Chapter 10: Key Actors - The United
issue thoughtful consideration in their already limited time Nations); and
with Council members when the Council did not do so itself.
The Secretariat also noted that the proliferation of mandate • Concrete, specific guidance on how to advance
tasks required by the Council did not match the human and the WPS agenda in the daily work of the Council
financial resources made available to a mission. that will in turn create higher standards of
accountability for implementation in the field.
332 Chapter 11. The Security Council

THE SECURITY COUNCIL’S USE OF Resolution 1325 signaled the Council’s willingness
SANCTIONS: EVOLVING CONSIDERATION to consider sanctions’ potential impact on the civilian
OF WOMEN, PEACE AND SECURITY population, bearing in mind the special needs of women
and girls, in order to consider appropriate humanitarian
Sanctions are an important tool available to the exemptions. This guidance came at a time when
Council to enforce peace and security.13 The concept the Council was shifting away from comprehensive
of sanctions was sharpened in the 1990s to move sanctions toward ‘targeted sanctions’ or ‘smart
from sanctions affecting entire populations, to include sanctions.’ Considering women, peace and security
targeted measures aimed at changing behavior or when using targeted sanctions—focusing on specific
to constrain certain activities of specific individuals entities or individuals who hold decision-making powers
responsible for actions that the Council wanted to or are personally suspected of bearing the greatest
minimize.14 Many of these early sanctions regimes responsibility for serious violations of international law—
were established prior to or shortly after the adoption only emerged in the late-2000s.
of resolution 1325. Given the way in which the
Council used sanctions at the time, combined with Overall, there has been a general trend to more
the lack of any well-established framework to provide systematically refer to gender issues in Council
guidance, it is not surprising that the Council did not resolutions related to sanctions regimes. In 2010,
take into account the devastating impact that conflict looking at the Council sanction resolutions adopted over
has on women’s lives when it established the early a 10-year period, PeaceWomen noted that 15.8 per
sanctions regimes; in particular, that disruptions cent (12) contained women and/or gender references.15
caused by economic sanctions fall more intensively on This proportion has further increased in recent years:
groups and individuals affected by preexisting social, as of April 2015, among the 75 resolutions linked to
economic and political discrimination. 16 sanctions regimes currently active, 22 include some
references to gender/women’s rights (29.3 per cent).16

Key gender considerations for sanctions regimes

There are four key areas in which gender Referral process - The second most frequent way in
considerations could be better operationalized in which gender considerations are taken into account
sanctions regimes: designation criteria, referral relates to the referral process. In four situations18 the
processes, delisting and humanitarian exemptions. Special Representative of the Secretary General on
Sexual Violence in Conflict and/or the UN mission
Designation criteria - The main dimension in are explicitly invited to refer individuals and/or
which the Council considers gender issues in entities to be included in the sanctions list for cases
sanctions regimes relates to the designation of sexual violence and/or gender-based crimes.
criteria. Despite systematic sexual and gender- However, it is unclear if any submission of names by
based crimes or violations of women’s rights the SRSG has resulted in a listing.
being included as designation criteria, very few
individuals have thus far been sanctioned for such Delisting process - Delisting procedures have
violations.17 constituted a prominent issue for sanctions related
 333

to counter-terrorism. However, only one such process that may eventually need to be part of a political
includes gender considerations, the 1988 Taliban solution.
Sanctions Committee. Both resolutions 1988 (2011)
and 2082 (2012) require this sanctions committee to Humanitarian exemptions - While exemptions on
ensure that the delisting process takes into account humanitarian assistance have been incorporated
the respect of women’s rights by individuals and/or into Security Council sanctions resolutions related
entities, by specifically citing respect for the Afghan to Somalia, they have not included gender-specific
constitution, including its provisions on human rights considerations. These considerations could be
and the rights of women, as part of the delisting incorporated in other sanctions regimes where
criteria. Such a delisting criterion could be applied in there are sanctions on commodities such as timber
other sanctions regimes that target political spoilers in Liberia and diamonds in Côte d’Ivoire.

ADDRESSING CONFLICT-RELATED in armed conflict in four instances. It added sexual

SEXUAL VIOLENCE THROUGH violence as a criterion for targeted sanctions in the
SANCTIONS Democratic Republic of the Congo through resolution
1807 (2008); Somalia in resolution 2002 (2011); the
Following the adoption of resolution 1820 in 2008, Central African Republic in resolution 2127 (2013)
references to the Council’s concern regarding and South Sudan in resolution 2206 (2015). However,
sexual violence increased in resolutions renewing only the 1533 DRC Sanctions Committee and the
sanctions regimes, and similarly, increased in 2206 South Sudan Sanctions Committee have actually
expert groups’ reports submitted to the relevant listed individuals for such violations. The other two
sanctions committees. Resolution 1888 (2009) sanctions committees have not, despite the ability to
further developed such language and called for all do so.
relevant UN missions and bodies to share information
with sanctions committees and their expert groups. The designation criteria of sanctions regimes are
More recently, resolution 1960 (2010) asked the evolving to include these violations. Of the currently
Secretary-General to include in his annual reports 16 United Nations sanctions regimes, five have
on conflict-related sexual violence an annex listing human rights and sexual violence related designation
parties credibly suspected of committing or being criteria.19 Out of more than 1,000 listings in these
responsible for patterns of rape and other forms of sanctions regimes, 16 individuals and four entities
sexual violence in situations of armed conflict, and have been designated based on these criteria.20
placing this on the agenda of the Council “as a basis For example, in May 2014, the Council’s Al-Qaida
for more focused United Nations engagement with Sanctions Committee added Boko Haram to the
those parties, including, as appropriate, measures sanctions list following a series of terrorist attacks,
in accordance with the procedures of the relevant including the mass kidnapping of schoolgirls.21 In
sanctions committees.” addition, a growing number of monitoring teams,
groups or panels include an expert on human rights
The Council is increasing the application of targeted and gender-based violence—of the currently 12 panels
sanctions and has used individual sanctions to and monitoring groups, six have such expertise, which
explicitly address sexual and gender-based violence represents significant progress.
334 Chapter 11. The Security Council

Gender-sensitive designation criteria: Sanctions regime on South Sudan

Perhaps the strongest gender and human rights sexual violence), abduction, enforced disappearance,
language to be found in designation criteria is the forced displacement, or attacks on schools,
recent decision on South Sudan. On 3 March 2015, hospitals, religious sites, or locations where civilians
through resolution 2206 (2015), the Security Council are seeking refuge, or through conduct that would
decided to create a sanctions regime that could constitute a serious abuse or violation of human
impose targeted sanctions “in order to support the rights or a violation of international humanitarian law.”
search for an inclusive and sustainable peace in
South Sudan.” Given the disproportionate and differential impact,
recognized in resolution 2122, of violations such
The designation criteria would allow the 2206 South as enforced disappearances, forced displacement
Sudan Sanctions Committee to target individuals and deliberate destruction of civilian infrastructure
and entities directly or indirectly responsible for on women and girls, comprehensive designation
“the targeting of civilians, including women and criteria can go far to ensuring sanctions regimes
children, through the commission of acts of violence are in line with women, peace and security
(including killing, maiming, torture, or rape or other commitments.

Most recently, in 2014, the Compendium of the High- access to information and substantive support from
Level Review on Sanctions noted that more concerted within the UN system on specific issues, and noted
attention was needed to include in sanctions regimes that numerous rosters, including the Justice Rapid
issues related to sexual violence and other forms of Response/UN Women dedicated roster of sexual and
gender-based crimes and targeted attacks against gender crimes investigators, had been made available
women. It noted that expert groups should have greater to sanctions expert groups.
 335

RECOMMENDATIONS TO IMPROVE THE MARA in relation to two missions despite calling

SECURITY COUNCIL’S APPROACH TO for advisors in five missions. Further, it would be
WOMEN, PEACE AND SECURITY useful to recall the initial concept behind appointing
women protection advisors, that is, as an
While acknowledging that there are various operational security role that includes working with
circumstances beyond the Council’s control that create military and police counterparts to advise on how
obstacles to implementation, there are two clear factors the mission could protect women from the wide
related to the work of the Council that could however, array of violations they face in conflict. While the
be improved. First is the Council’s uneven approach reporting role such posts have taken on in relation
to applying a coherent gender strategy to country to the MARA is important, the operational security
situations. Second is the continued culture of viewing advisory function is still not a part of the mission
women, peace and security as an “add-on” component response. There should be more direct interaction
to a mandate versus being one of the central tenets by such advisors not only with the head of mission
that support conflict prevention and underpin long-term but also with force commanders of peacekeeping
stability. This is compounded by the detrimental culture in operations.
parts of the Secretariat and in the field that view women,
peace and security solely as a ‘women’s agenda.’ • Similar emphasis on the important role that gender
advisors play is needed. Although the Council has
There are a number of relatively straightforward steps repeatedly requested for gender advisors in both
that the Council and the UN system can immediately mission mandates and in its women, peace and
take to address these factors, and in so doing, begin to security resolutions (notably resolutions 1889 and
close a large part of the current implementation gap. 2122), the Secretariat has fallen short on deployment
in numbers, in recruitment of advisors with sufficient
seniority in the mission structure, and in maintaining
Women’s protection advisors and gender advisors existing posts (see Chapter 10: Key Actors - The
United Nations). A number of operations meant
• The Secretariat could improve its deployment of to have such advisors are therefore lacking them.
women’s protection advisors and gender advisors, Reports from both DPA and DPKO vary in their
ensuring such posts are part of a mission’s core inclusion of analysis and recommendations on
budget and structured in line with recommendations women, peace and security issues. Strengthening
on gender architecture (in Chapter 10: Key Actors - both content and consistency of this material is a core
The United Nations). Leadership in peacekeeping, role for gender advisors, and critical to improving the
peacebuilding and political missions could better flow of key information to the Council.
integrate such advisors’ work in the operational
framework of the mission. The Council could also
improve its understanding of the distinction between Reports and briefings
women’s protection advisors and gender advisors (a
problem expressed by Council experts)22 and be more • The Council can significantly underscore the
consistent with following up on their deployment. importance of the WPS agenda simply by asking
mission leadership follow-up questions when
• The Council could consistently underscore the they come to New York to brief, in line with
importance of women’s protection advisors’ role resolution 2122. If Council members exhibit
in coordinating and convening the Monitoring, greater commitment then it will likely result in the
Analysis and Reporting Arrangements (MARA). In Secretariat and mission leadership approaching the
2014, the Council only specifically referenced the task with more attention.23
336 Chapter 11. The Security Council

• While research revealed a continued positive trend the Council should extend such interactions also to
in reporting by the Secretary-General on women, the Executive Director of UN Women through more
peace and security issues in his country-specific frequent invitations—in particular when the Council
reports, there remains room for improvement. In is considering a mandate to support post-conflict
particular, the Council could request analytical, structures in a country-specific situation—which
versus descriptive, reporting on gender issues will contribute to ensuring broad participation and
throughout the report as well as the inclusion of decision-making by women.
a separate, more analytical section dedicated to
capturing the country’s and the mission’s progress,
challenges and recommendations towards better Security Council visiting missions
implementation of women, peace and security.
Employing such analytical sections should be • The Council has committed in past Presidential
achievable with appropriate gender expertise within Statements “to integrate gender perspectives into
UN missions. Where reports include a separate the terms of reference of its visits and Missions
section on sexual violence, they should also to countries and regions in conflict. To that end,
include a broader section on women, peace and the Council requests the Secretary-General to
security in order to capture challenges of women’s establish a database of gender specialists as well
participation and empowerment, and reinforce the as women’s groups and networks in countries and
linkages between sexual violence and systemic regions in conflict, and to include gender specialists
gender-based discrimination. in the teams where relevant.”25 Whenever the WPS
agenda has been incorporated into the terms of
• The women, peace and security indicators are reference of the visit, the Council has engaged
intended to gauge longitudinal progress across with stakeholders on the ground, albeit to varying
the agenda’s pillars of prevention, protection, degrees. However, when women, peace and
participation, relief and recovery. Reporting security issues were not included in the terms of
emanating from the UN system and Member States reference then gender-related concerns tended to
is compiled by UN Women. Despite encouragement be subsequently overlooked by Council members
from civil society, these indicators are not reflected during the visiting mission.26 The Council could
in regular country reports received by the Security make a more concerted effort to consistently
Council, though they are reflected in the Secretary- incorporate a gender perspective into its terms of
General’s annual report on women, peace and reference for visiting missions, including by fulfilling
security (for more on the 1325 indicators, see its stated intention of a specific women, peace and
Chapter 10: Key Actors - Data). Equally, all Secretary security-focused mission before the Global Review
General’s reports to the Council should include sex- of resolution 1325 in 2015.27 While that mission
disaggregated data as part of their analysis.24 has not happened within the proposed time frame,
there is continued value in having it take place,
• The interaction by the Special Representative since it could then also establish good practice for
on Sexual Violence in Conflict with the Council future visiting missions.
continues to be notable. The Special Representative
has briefed not only on her broader mandate but • There are positive examples of Council members
also on country-specific situations such as the hearing the views of women’s civil society: in
CAR, Darfur, South Sudan and Syria. The Council Sierra Leone in May 2012 on parliamentary
could continue to consolidate into practice briefings quotas for women, in the DRC in October 2013
by the Special Representative prior to mandate on accountability for sexual violence, in Mali in
renewals, or on unfolding situations of conflict February 2014 on women’s difficulty in being
where sexual violence is a concern. Importantly, included in the national dialogue and in South
 337

delivered more forcefully to national leadership and

mission leadership.
More consistent
engagement with women’s
Sexual exploitation and abuse
civil society as a key
source of information • Referencing of the UN’s zero-tolerance policy
is needed, and not only on sexual exploitation and abuse by its own
during thematic debates, personnel is not included systematically in relation
to mandates. This is something that could be
but during country-specific undertaken as an immediate measure by the
deliberations. Council in all resolutions renewing or establishing
peace operations mandates. The Council could also
consistently request troop-contributing countries
to undertake pre-deployment training, preventive
Sudan in August 2014 on women’s representation measures and disciplinary action if necessary (for
in South Sudan’s peace talks. However, because further recommendations on this issue, see Chapter
these interactions with civil society are often 6: Keeping the Peace).
held towards the end of visiting missions, the
opportunity to convey gender concerns to national
leadership during the Council’s high-level political Women’s participation
dialogue while in-country is usually missed. If such
stakeholder feedback was sought at the outset • There continues to be worrying indications that the
of a visiting mission, there would be a greater Council’s focus is less sharp when it comes to the
chance for Council members to incorporate such women’s participation aspect of the WPS agenda.
feedback in their subsequent interactions with Despite the robust language on the participation
political leaders and mission leadership. Follow- elements of women, peace and security, of the nine
up questions could then also be posed to Special resolutions adopted in 2013 that included new,
Representatives on progress towards addressing substantial and operational references to women,
these challenges when they come to New York to the language therein was almost exclusively
brief the Council. protection related.28 More concerning than the
metrics, however, is that references to women’s
participation remain extremely general whereas
Improving engagement with local actors protection language is specific in enumerating the
violations and articulating what peace operations
• Better engagement could be defined as discussion and the UN system should do in response.
with actors on the ground about how the UN system The challenge in moving the agenda forward
could contribute to women’s economic and political lies in going beyond general calls to specific
empowerment, whether and how UN peacekeeping accountability measures to ensure field missions
could stabilize areas so that IDPs can return home, implement their women, peace and security
addressing the structural obstacles to including obligations more concretely.
more female police in UN operations and in national
security structures, and offering concrete options for • The Council’s architecture on sexual violence
perpetrators of sexual violence to be held to account. in conflict—such as the Office of the Special
In addition, there could be specific discussion Representative, the Team of Experts on Rule of
of what messages civil society actors would like Law and Sexual Violence in Conflict, women’s
338 Chapter 11. The Security Council

protection advisors and the inter-agency network leverage their political capital are not always aligned
UN Action against Sexual Violence in Conflict—plays with women, peace and security objectives. It is more
an important role in ensuring flows of information often an elected member of the Council who is vocal
and analysis on the protection elements of the WPS in keeping women, peace and security issues alive in
agenda to the Council. A similar specific focus Council discussions.29
and systems are required with regards to women’s
participation in conflict prevention, peacemaking In this context, it could be useful to reduce the ad-hoc
and peacebuilding. nature of this practice by having elected members take
on an informal co-leadership role during their two-year
term, alongside the relevant permanent member, to
RECOMMENDATIONS FOR take better advantage of the energy and resources
STRENGTHENING SECURITY COUNCIL these elected members bring to the Council. The role
IMPLEMENTATION OF THE WOMEN, of this elected member could be to lead a broader
PEACE AND SECURITY AGENDA accountability system within the Council in order to
leverage relevant and security-specific women, peace
and security objectives into the Council’s outcomes.
Co-leadership role by elected members

Consistent and coherent leadership is sorely needed Working group

to accelerate implementation of resolution 1325 and
subsequent resolutions. Political will and consistent Two ideas that have been continuously floated to support
oversight by the Security Council are central to improving the Council’s implementation of its women, peace and
the Council’s own follow-up on the implementation of the security commitments have been the establishment
WPS agenda, and it is important that Council members of a Council working group, and high-level leadership
address their own lack of leadership on the issue. Given on women, peace and security. Neither idea has been
that the gaps in implementation are exacerbated by fully developed but both have elements that are worth
the absence of key issues being raised in the closed exploring. The discussion on high-level leadership is
consultations of Council members, an accountability covered in Chapter 10: Key Actors - The United Nations.
process requires concerted leadership by Council
members in cooperation with the UN system. To more fully realize its women, peace and security
commitments, the Council would benefit from a mechanism
At present, the Council considers the WPS agenda that is not only focused on protection, and punitive
on two tracks, with a permanent member assuming decisions in the sanctions committees, but also engaged
leadership on each: the US leads on sexual violence
in conflict, and the UK leads on the broader women,
peace and security issues. In theory, having a
permanent member explicitly minding each of the two
tracks results in a stronger institutional memory of how An effective group focused
the agenda has evolved in the Council’s work, and on women, peace and
provides the ‘muscle’ when other permanent members security should be an
are reluctant to incorporate strong gender concerns into
Council outcomes. In practice, however, the turnover
informal expert group with
of diplomatic personnel is a major obstacle to building a clearly defined set of
such institutional memory. In addition, and perhaps issues to track.
an even greater barrier, is the fact that the political
priorities of the P5 members and their willingness to
 339

with the more thorny participation aspects of the women, While the informal expert group on the protection of
peace and security agenda. It is with regards to the latter civilians does not have status as a subsidiary body of
that the Council needs to play a greater supportive role. the Security Council, its informal nature has given it a
certain degree of nimbleness in setting up processes
The Council already has a working group on children that enable the Council to mainstream protection issues
and armed conflict, and an informal expert group in its work. For example, Council members receive
on protection of civilians. Both offer possibilities and regular briefings from OCHA on country situations prior
drawbacks when determining how a similar women, to mandate renewals. Representatives of other parts
peace and security working group may be effective. of the UN system—such as DPKO, DPA, UN Women,
There are two key considerations. First, it is important to UNHCR, the offices of the Special Representatives
ensure that any such system recognizes and incorporates on Children and Armed Conflict and Sexual Violence
the unique elements of the issue, not least the ‘agency in Conflict, UNMAS and UNICEF—attend depending
and empowerment’ aspects, which provide a particular on the issue being discussed. This group has also
challenge to the Council’s scope of work. Second, while developed an aide memoire to guide the Council’s work
there are successes in both the children, and protection on protection issues in mission mandates. An important
of civilian structures (respectively formal and informal drawback to the effectiveness of this group lies in the
models), it is vital to also include an assessment of the fact that because it is not a formal body, attendance
challenges both models face. and input by all Council members is not required. This
group also only meets for mandate renewals and does
The working group on children and armed conflict not work to track protection of civilian implementation
has the benefit of being formal—this allows it to adopt more broadly.
formal conclusions and have continuity in its work. It is
effective because it is narrowly focused on an agreed Drawing on these experiences, it would appear that
and finite range of violations, and because it keys an effective group focused on women, peace and
in Council members to the challenges to children’s security should be an informal expert group (like the
security in country-specific situations. The chair of protection of civilians model) with a clearly defined
this working group has the ability to mainstream child set of issues to track (like the children and armed
protection concerns throughout the work of the Council, conflict model). A necessary part of this group’s work
including by asking questions in briefings and supporting would be similar to that of both models: mainstreaming
the inclusion of children’s concerns in products of gender concerns in all Council outcomes, and connecting
the Council. The working group also has the ability the Council more concretely to the security challenges
to conduct field visits, and has made such trips to and participation barriers women face in country-specific
Afghanistan, DRC and Myanmar. There are nevertheless situations. It would need to include information sharing
also drawbacks to the working group’s formal status. with UN Women, the Special Representative on Sexual
Marginalization is a significant issue as the children’s Violence in Conflict, and UN Action—especially information
agenda can become buried in a Council subsidiary body, from DPA and DPKO country desk officers to convey
and not be pulled back up into the public work of the gender analysis from the gender advisors and women’s
Council. Furthermore, the workload of the working group protection advisors in field missions and OCHA—in order
has been described by Council experts as crushing, to strengthen the Council’s response to gender in its
leaving little room for flexibility or creativity. In fact, humanitarian outcomes.31
partly due to the group’s success, and not least due to
its highlighting of state and non-state perpetrators, the More specifically, this group’s work could include:
group’s work has become progressively rote and rigid,
primarily adopting conclusions rather than being able • Tracking briefings and reports on country situations
to drive forward the more substantive and controversial for gender content. This information can serve as
elements of the agenda.30 the basis to ensure that critical, gender-specific
340 Chapter 11. The Security Council

security issues are raised in consultations with briefers the group to be effective in achieving the latter it will
that are more free-flowing due to the closed and need to clearly define what the Council can reasonably
informal nature of the meetings. It would also enable be expected to be accountable for.
the Council to tailor a mission’s mandate, and women,
peace and security language to the specific and In order to be targeted in its efforts, an incremental
prioritized gender concerns of that particular situation. approach is suggested in the start-up phase. The
working group could initially limit the number of country
• Undertaking field visits to identify key interlocutors situations in which it will track implementation for any
and issues in a country-specific situation, in given year to test how it can improve the Council’s
particular, ahead of Council visiting missions. performance on women, peace and security. The
Such advance work could help to ensure Council goal would be to progressively include all country
visiting missions use their limited time in the field situations for the working group’s consideration. While
to engage with truly key stakeholders on women, it would be up to Council members to determine their
peace and security challenges. This can, in approach, initial cases could be representative of the
turn, improve Council members’ gender-specific types of situations the Council regularly considers: e.g.,
messaging to government and mission leadership a UN mission in a crisis situation (like Mali or CAR), a
during their visit. post-conflict situation (such as in Côte d’Ivoire), and a
situation without a Security Council mandated-mission
• Making sure elements of the WPS agenda are but subject to intense Council scrutiny, UN mediation
reflected in the Council’s work in all thematic or UN agency and programme presence on the ground
areas, as per resolution 2122. These include: (such as the conflict in Syria). Specific analytical focus
protection of civilians in armed conflict; post- on these situations would not preclude the group from
conflict peacebuilding; the promotion and its other mainstreaming tasks. The group could then
strengthening of the rule of law in the maintenance use the mandate or relevant resolutions for the selected
of international peace and security; peace and country situations to further narrow its scope of study
security in Africa; and threats to international so that tasks a UN peace operation or mediation
peace and security caused by terrorist acts. process have been directly mandated to carry out—such
as electoral support, security sector reform, DDR, rule
• Tracking how the Council is including other of law, monitoring ceasefires, support in legislative or
important aspects of resolution 2122 when constitution drafting, meaningful interaction with civil
establishing or renewing peace operations, such society, etc.—can be implemented with a gender lens
as deployment of gender advisors and women’s (irrespective of the mandate’s women, peace and
protection advisors, and providing guidance on security language).
prototype language for gender components in
peace operations.

• Linking women, peace and security elements to

mandate tasks such as election preparation and Such an exercise in tracking
political processes; disarmament, demobilization implementation, would require
and reintegration programmes; security sector and
judicial reforms; and wider post-conflict processes.
open lines of communication
between Council members,
It should be noted that the mainstreaming task is UN Headquarters and field
far easier than the more challenging one of tracking missions.
implementation on the ground and engendering
Council accountability and leadership in New York. For
 341

This exercise will test how well gender is being

mainstreamed in the field and quickly identify gaps that
require prioritization not only by Council members but also This exercise will test how well
by Special Representatives leading field missions. The
gender is being mainstreamed
information gleaned from a narrow study on implementation
could be used to inform serious, analytical and probing
in the field and quickly identify
questions of Special Representatives when they brief on a gaps that require prioritization.
country situation. This in turn could lead to a cascade effect
of mission leadership and the Secretariat taking their own
gender commitments, including appropriate gender staffing
structures and reporting lines, more seriously.
member of the Council, with UN Women providing the
Secretariat function for the new group.
Additionally, such an exercise in tracking implementation,
which would require open lines of communication between
Council members, UN Headquarters and field missions, UN system’s implementation of the WPS agenda
could build an informal network of information sharing that
could enable the Council to provide better guidance in As mentioned earlier in this chapter, the Council needs
mandate renewals and better convey to the field what its improved information and analysis from the UN system.
gender priorities should be. In that regard, relevant Council This was highlighted by the Council’s request to DPKO
members should work to ensure, in their other role as a and DPA in resolution 2122. As the UN entities primarily
member state in the General Assembly’s Fifth Committee responsible for executing the Council’s mandates for
for administration and budgetary matters, that missions peace operations, both entities have a central role in
have the resources required to implement the gender implementing the WPS agenda within the UN system
components of Council mandates. and the field, and in ensuring that all reports and
briefings to the Council include information on women’s
Other areas a potential informal expert group could participation.
explore include:
At present this information is provided in an ad hoc
• Whether relevant sanctions committees that already manner, often focused on only one aspect of the
have gross violations of international human rights and women, peace and security agenda (usually protection).
humanitarian law as designation criteria could include It is often lacking in astute analysis, or totally absent
gender-specific violations as a further listing criteria. from both briefings by heads of peace operations, and
the Secretary-General’s country reports. Improving this
• How to strategically deploy the option to raise information and analysis, and ensuring that pathways
women, peace and security concerns with other are available to bring this information to the Council
Council members during briefings or when issues in a timely manner, will require additional resources
are brought up under ‘other matters’ in consultations. and leadership from within key UN entities. Therefore,
it is vital that DPKO, DPA, as key peace and security
• How the Council can fully utilize its Arria-formula actors, and UN Women, as the lead on women, peace
meetings, open debates and briefings to raise women, and security, improve their regular resourcing of the
peace and security concerns and solicit concrete women, peace and security capacity, devote political
recommendations to take the agenda forward. capital to ensuring these matters are taken seriously
in their daily work, and that country work on the issues
Finally, in line with the recommendation above on is consistently brought into both country reports and
co-leadership in the Council, it is recommended that urgent and regular briefings to Council members.
there be co-chairs by a Permanent and non-Permanent
342 Chapter 11. The Security Council

RECOMMENDATIONS

Moving progress beyond 2015: Proposals for action

The Security Council should: ✓ Ensure that senior mission leadership consistently
includes women, peace and security analysis in all
✓ Establish an informal expert group to maximize reports and regular briefings, in line with resolution
information, monitoring and support capacity 2122.
from the UN system as a whole. Initially the group
should be focused on 3-4 countries. This would ✓ Consistently incorporate a gender perspective in
allow for a comprehensive and targeted approach terms of reference for visiting missions, and give it
to monitoring consistent implementation by the priority at the outset of the visit.
Council of resolution 2122, including ensuring that
women, peace and security information is part of ✓ Expand ownership of the women, peace and
all briefings and reports to the Council and that security agenda within the Council beyond one
questions are asked consistently of senior leaders ‘penholder’ or lead, to include a co-lead role with
on these issues. an elected member.

✓ Increase the channels for flow of information from ✓ Ensure that Council members who are also
the Human Rights Council and related bodies, members of the General Assembly’s Fifth
including from mandate holders with conflict- Committee facilitate approval of resources required
relevant mandates, Commissions of Inquiry and to implement gender components of Council
other fact finding bodies, to provide important mandates.
sources of information for Council deliberations
and outcomes. More consistent approaches,
✓ Periodically request SRSGs to present on an ad
including regular Arria-formula meetings between
hoc basis country reports on implementation of the
the Security Council and the Human Rights
women, peace and security mandate. This could
Council-established Commissions of Inquiry on
provide opportunities for collective review, focus
countries of concern should be established.
and action at the country level while providing
the Council with more in depth and substantive
✓ Invite regular civil society briefings, including information on specific context.
women’s organizations in particular, not only on
thematic but on country-specific deliberations.
✓ Strengthen its work in the sanctions committees
by:
✓ Ensure greater and more effective capacity for
gender analysis in conflict-affected countries (see
• Using existing sanction regimes more
Chapter 10: Key Actors - United Nations).
effectively to enforce thematic priorities—in
line with the high-level sanctions review—
✓ Increase the reporting of dedicated high-level including women, peace and security, and
leadership within the UN system on women, peace consider adopting thematic sanctions regimes
and security from specific country contexts (see in addition to country-specific sanctions to
Chapter 10: Key Actors - United Nations).
 343

address global threats such as sexual violence such expert groups, and in line with the
in conflict, human trafficking, and gross recommendations of the High Level Review on
violations of women’s rights. Sanctions, requesting the General Assembly
to make additional resources available to
• Expanding the designation criteria in other provide the requisite technical, language
relevant sanctions regimes where sexual and and substantive skills needed to strengthen
gender-based crimes and specific attacks capacity of sanctions bodies and their expert
against women are persistently perpetrated. groups.

• Calling for information-sharing between the • Including respect for the rights of women as
Special Representative on Sexual Violence in delisting criteria in sanctions regimes that
Conflict, UN Women as appropriate, and all target political spoilers that may eventually
relevant sanctions committees and associated need to be part of a political solution.
expert groups.
• Ensuring that specific information about the
• Formally requiring expert groups assisting gendered effects of sanctions is systematically
sanctions committees to include gender included in all reporting on the implementation
experts as part of the composition of of relevant sanctions regimes.
344 Chapter 11. The Security Council

REFERENCES
This chapter is based on background research prepared by Nations Peacebuilding Architecture. See, “Report of the
Amanda Roberts and Sarah Taylor. Much of the analysis is Advisory Group of Experts for the 2015 Review of the
based on interviews conducted by the co-authors over the United Nations Peacebuilding Architecture (2015),” para.
course of 2011-2015 with diplomats serving on the UN Security 61–67.
Council from Argentina, Australia, Chile, France, Germany,
6. Arria-formula meetings are informal, confidential
Guatemala, India, Luxembourg, Malaysia, Morocco, Norway,
gatherings which enable Security Council members to
Pakistan, Portugal, South Africa, Spain, the United Kingdom
have a frank and private exchange of views with persons
and the United States. Interviews over the same period of
whom the inviting member or members of the Council
time were regularly conducted with UN Secretariat staff from
believe it would be beneficial to hear. These meetings do
the Department of Political Affairs and the Department of
not constitute an activity of the Council, and participation
Peacekeeping Operations, and with UN Women. The research
is for individual members to decide. Arria-formula
draws from observations of peace operations in the DRC, South
meetings are a relatively recent practice of the Security
Sudan, Somalia, Liberia, Mali and Sierra Leone, and relies on
Council, initiated by Ambassador Diego Arria of Venezula
the co-authors’ rigorous review of Security Council outcomes
in 1992.
from 2000-2014, and data gathered by the NGO Working
Group on Women, Peace and Security on the UN Secretariat’s 7. “Report of the Secretary-General: Conflict-Related Sexual
oral and written reporting to the Security Council for gender Violence,” UN Doc. S/2015/203 (United Nations Security
content during the same time period. The analysis also draws Council, March 23, 2015), para. 4.
on the research and publications produced under Roberts’
8. DPA reports that the integration of sex-disaggregated
professional affiliation with Security Council Report, in addition
data into reports of Special Political Missions has
to Taylor’s former affiliation with the NGO Working Group on
increased significantly since 2010 when it took on 15
Women, Peace and Security.
WPS related commitments.
1. Including, at the time, among the five permanent
9. “Report of the High-Level Independent Panel on United
members (or P5), two of which, the UK and US, now lead
Nations Peace Operations (2015),” para. 239(viii).
on the issue in the Council.
10. In relation to the statistical analysis in the chapter,
2. For the Council, this is in part perhaps owing to an
technical resolutions, like rollover extensions, were
increased workload which has the Council reacting to
excluded from the pool as were peacekeeping missions
proliferating and existing crises, as well as fragmentation
not charged with supporting post-conflict processes in
in the approach to peace and security within the system.
host countries, such as the UN Interim Force in Lebanon
See, “The Challenge of Sustaining Peace,” UN Doc.
(UNIFIL) or the UN Disengagement Observer Force
A/69/968–S/2015/490 (Advisory Group of Experts for
in the Golan Heights (UNDOF). Also excluded were
the 2015 Review of the United Nations Peacebuilding
the extensions of expert groups assisting sanctions
Architecture, June 29, 2015), para. 67.
committees dealing with matters where women, peace
3. It should be noted that the distinction between and security issues were not reasonably expected to be
participation and protection, particularly within the WPS part of the scope of work (for example, non-proliferation).
agenda, is a largely arbitrary one, given that sexual
11. The case of Timor-Leste (detailed further in Chapter
violence and the threat of sexual violence also impedes
10: Key Actors - The United Nations) and Somalia
women’s political, economic and social participation,
demonstrate that while consistent women, peace and
and that efforts at protection will be weakened without
security language in Council outcomes is important,
an emphasis on women’s participation to inform these
it is possible to have a robust interpretation and
efforts.
implementation in the absence of such language (Timor-
4. The High-Level Independent Panel on United Nations Leste), as well as to have robust language with little
Peace Operations noted that, in general, “There is a implementation on the ground (Somalia). The full thrust
prevailing erroneous notion that women, peace and of political will, expertise, and leadership both within
security is “a woman’s issue” that can be addressed only the Security Council and throughout the UN system is
by women, instead of being understood as a peace and needed to push forward implementation.
security issue for men and women and for society as a
12. For example, when the Security Council adopted
whole.” See, “Uniting Our Strengths for Peace - Politics,
resolution 2100 in April 2013 to establish MINUSMA in
Partnership and People,” UN Doc. A/70/95–S/2015/446
Mali, the Council specifically called for the deployment
(High-Level Independent Panel on United Nations Peace
of gender expertise. Nevertheless, there was serious
Operations, June 16, 2015), para. 239(i).
resistance at that time by leadership in both DPKO and at
5. Fragmentation of the UN system and its impact on mission level to actually put in place a staffing structure
peacebuilding, and peace and security more generally, that provided for such a deployment.
was one of the key findings of the Report of the Advisory
13. For further information on this topic, see “Women, Peace
Group of Experts for the 2015 Review of the United
 345

and Security,” Cross-Cutting Report (Security Council that if one is mentioned in a mandate, this sufficiently
Report, April 2014); “Women, Peace and Security: addresses the need.
Sexual Violence in Conflict and Sanctions,” cross-
23. DPA provided anecdotal evidence supporting how such
Cutting Report (Security Council Report, April 10, 2013);
follow-up can have a positive cascade effect. During
Simon Tordjman and Anthony Amicelle, “The Gendered
closed consultations, a Council member asked a gender-
Dimensions of International Sanctions: Normative
specific question to the head of mission who was not
Evolution and Operational Dilemmas” (UN Women,
able to respond with relevant information. It seems the
Forthcoming).
head of mission paid increased attention to the gender
14. In the 1990s and the 2000s the Council also began unit upon return to the field.
to include sanctions on commodities such as timber,
24. DPA reports that the integration of sex-disaggregated
diamonds and charcoal to staunch natural resource
data into reports from Special Political Missions has
extraction that was funding conflict.
increased significantly since 2010 when it took on 15
15. Maria Butler, Kristina Mader, and Rachel Kean, “Women, WPS related commitments.
Peace and Security Handbook: Compilation and Analysis of
25. “Resolution 2122 (2013),” UN Doc. S/RES/2122 (2013)
United Nations Security Council Resolution Language (2000-
(United Nations Security Council, October 18, 2013),
2010)” (PeaceWomen Project of the Women’s International
para. 17.
League for Peace and Freedom, October 2010), 10.
26. Reports of Security Council Missions available at: http://
16. Data sourced from: http://www.un.org/sc/committees/
www.un.org/en/sc/documents/missions/
list_compend.shtml.
27. “Resolution 2122 (2013),” UN Doc. S/RES/2122 (2013)
17. Out of six regimes with implicit or explicit mention
(United Nations Security Council, October 18, 2013),
of gender based crimes as listing criteria, only 16
para. 17.
individuals and four entities have been designated
based on such criteria: 12 individuals and four entities 28. Only one resolution on Mali included comparable
by the DRC Sanctions Committee, one individual by the references to both protection and participation elements—
South Sudan Sanctions Committee and another three however as noted above strong gender language in a
individuals by the Côte d’Ivoire Sanctions Committee Council outcome did not translate into implementation
Côte d’Ivoire, DRC, Sudan and South Sudan. on the ground and was in fact resisted by senior mission
leadership. In 2014, the Council did a better job reflecting
18. Côte d’Ivoire, DRC, Sudan and South Sudan.
women’s participation in operative paragraphs of Council
19. Data sourced from: http://www.un.org/sc/committees/ resolutions (48 per cent).
list_compend.shtml.
29. Spain’s leadership during 2015, including in relation to
20. Data sourced from: http://www.un.org/sc/committees/ the 15-year review of women, peace and security, is one
list_compend.shtml. such example.
21. United Nations News Service, “Boko Haram, Nigerian 30. See, e.g., “Children and Armed Conflict,” Cross-Cutting
Group That Kidnapped Schoolgirls, Put on UN Terror Report (Security Council Report, February 21, 2014);
Sanctions List,” UN News Centre, May 23, 2014, http:// “Children and Armed Conflict,” Cross-Cutting Report
www.un.org/apps/news/story.asp?NewsID=47874#. (Security Council Report, August 27, 2012).
VfHQGBFVhHx.
31. The informal Expert Group on the protection of civilians
22. This is a frequently asked question by both Security has an aide memoire with specific gender provisions that
Council members as well as UN leadership at a new women, peace and security group could utilize
headquarters and in the field. Gender advisors are and expand upon for its own work. “Aide Memoire for
responsible for integrating a gender perspective into the Consideration of Issues Pertaining to the Protection
all aspects of a peace operation. Women’s protection of Civilians in Armed Conflict,” Policy and Studies
advisors have a specific mandate to monitor and advise Series (United Nations Office for the Coordination of
on conflict-related violations against women. This Humanitarian Affairs (OCHA), Policy Development and
confusion has led to a conflation of the two and a belief Studies Branch, 2014).
346 Chapter 12. Human Rights Mechanisms

12
 347

LINKAGES BETWEEN HUMAN

RIGHTS MECHANISMS
AND THE SECURITY
COUNCIL RESOLUTIONS
ON WOMEN, PEACE AND
SECURITY: OPPORTUNITIES
FOR ENHANCED
ACCOUNTABILITY FOR
IMPLEMENTATION

“I don’t think any other Security Council

resolution has been translated into so
many languages and is being used in so
many kind of organic, indigenous ways by
people.”
Sanam Naraghi-Anderlini, Co-Founder, International Civil Society Action Network,
UN Women Video Interview, 2015
348 Chapter 12. Human Rights Mechanisms

HIGHLIGHTS FROM THE RESOLUTIONS

Resolution 1325
Reaffirming also the need to implement fully
international humanitarian and human rights
law that protects the rights of women and girls
during and after conflicts
Calls upon all parties to armed conflict to
respect fully international law applicable
to the rights and protection of women and
girls, especially as civilians, in particular
the obligations applicable to them under
the Geneva Conventions of 1949 and the
Additional Protocols thereto of 1977, the
Refugee Convention of 1951 and the Protocol
thereto of 1967, the Convention on the
Elimination of All Forms of Discrimination
against Women of 1979 and the Optional
Protocol thereto of 1999 and the United
Nations Convention on the Rights of the Child
of 1989 and the two Optional Protocols thereto
of 25 May 2000, and to bear in mind the
relevant provisions of the Rome Statute of the
International Criminal Court

2000
 349

Resolution 2106
Notes that the fight against impunity
for the most serious crimes of
international concern committed
against women and girls has been
strengthened through the work of
the ICC, ad hoc and mixed tribunals,
as well as specialized chambers
in national tribunals; reiterates its
intention to continue forcefully to fight
impunity and uphold accountability
with appropriate means

Resolution 2122
Recalls in this regard applicable
provisions of international law on the
right to reparations for violations of
individual rights

2013
350 Chapter 12. Human Rights Mechanisms

The Security Council, with its adoption of resolution 1325

and the six subsequent resolutions on women, peace
and security, has made clear that women’s human rights “…[S]ustainable peace
and gender equality are central to the maintenance of
international peace and security. To fully realize the human requires an integrated
rights obligations of the women, peace and security (WPS)
agenda, all intergovernmental bodies and human rights approach based on
mechanisms must act in synergy to protect and promote
women’s and girls’ rights at all times, including in conflict
coherence between
and post-conflict situations. political and security
The range of human rights mechanisms include the measures, development
human rights treaty bodies—including the Committee on
the Elimination of Discrimination against Women—the
and human rights
Human Rights Council and its Universal Periodic Review agendas, including
and special procedures, regional human rights courts and
commissions, and national human rights mechanisms. gender equality and the
These mechanisms have long addressed elements of
the WPS agenda, including the obligation of States to rule of law.”
uphold women’s and girls’ rights to education, health,
participation in governance, and to live lives free of Committee on the Elimination
violence and discrimination. In consultations for the Global of Discrimination against Women,
Study around the world, women reaffirmed the centrality submission to the Global Study
of human rights and gender equality to the WPS agenda,
and reinforced that the agenda is not only relevant for the
Security Council, but is the responsibility of a full range of
actors, including in particular Member States.
in the world. In resolution 2122, the Security Council
This chapter describes how the effective use of these recognized the importance of CEDAW and its Optional
mechanisms, and increased information-sharing with the Protocol to the WPS agenda, and urged Member States
Security Council, can build the capacity of the international to ratify both documents.1 On the same day that the
community, including civil society, to hold Member Security Council adopted resolution 2122 (2013), the
States to account for their implementation of global Committee on the Elimination of Discrimination against
commitments on women, peace and security, and offer Women, the body which oversees the implementation of
new opportunities for deeper analysis, preventive action the Convention, adopted General Recommendation 30
and durable solutions to conflict. on women in conflict prevention, conflict and post-conflict
situations.2 This general recommendation clarifies State
and non-State obligations to implement the Convention
THE CONVENTION ON THE ELIMINATION before, during and after conflict and political crises, and
OF ALL FORMS OF DISCRIMINATION through contributions to international peacekeeping forces,
AGAINST WOMEN and as donors providing assistance—reaffirming CEDAW’s
role as one of the most important accountability tools for
The Convention on the Elimination of All Forms of the WPS agenda.
Discrimination against Women (CEDAW) is often
described as an international bill of rights for women. With CEDAW General Recommendation 30 clarifies the
189 States parties, it is one of the most-ratified treaties Convention’s linkages with the Security Council, calling for
 351

implementation of the resolutions on women, peace and play an important role in tracking what is happening to
security to be premised on a model of gender equality, women during a conflict, highlight their agency, draw
as enshrined in the Convention. The development attention to areas where support is needed, track levels
of the general recommendation was informed by a of consultation and participation in possible peace
wide and deep process of consultation with conflict- processes, and raise the level of scrutiny as to State
affected women and civil society actors in different conduct and responsibility.
regions of the world. The general recommendation
is notable also for its inclusion of non-State actors— CEDAW reporting, whether regular or exceptional,
although CEDAW cannot place obligations on non- offers an important—and yet to be fully utilized—
State actors,3 the Committee urges them to respect accountability mechanism also for the implementation of
women’s rights in conflict and post-conflict situations, commitments on women, peace and security. General
and to prohibit all forms of gender-based violence.4 It Recommendation 30 makes the following specific
also affirms the responsibility of States for non-State recommendations to States parties in their reporting to
violations of women’s rights—including for the actions the Committee:
of corporations, armed groups, and other individuals,
entities and organizations operating extraterritorially • States parties should report on the legal framework,
but under the control of the State.5 States should policies and programmes they have implemented
engage with non-State actors to prevent human rights to ensure the human rights of women in conflict
abuses relating to their activities in conflict-affected prevention, conflict and post-conflict.
areas, in particular all forms of gender-based violence.
They should adequately assist national corporations • States parties should collect, analyze and make
in assessing and addressing the heightened risks of available sex-disaggregated statistics, in addition
abuses of women’s rights; and establish an effective to trends over time, concerning women, peace and
accountability mechanism.6 security.

In addition to its substantive rights guarantees, CEDAW • States parties’ reports should address actions
contains a periodic reporting and review process inside and outside their territory in areas under
under its Article 18, which requires all States parties to their jurisdictions, in addition to their actions taken
report on measures they have adopted to give effect individually and as members of international
to the provisions of the Convention including in conflict organizations as they concern women and conflict
prevention, conflict and post-conflict situations.7 Under prevention, conflict and post-conflict situations.
Article 18 (1), States parties undertake to submit a report
within one year of ratification, and thereafter at least • States parties are to provide information on the
every four years “and further whenever the Committee so implementation of the UN Security Council agenda on
requests.” women, peace and security, in particular resolutions
1325 (2000), 1820 (2008), 1888 (2009), 1960
Article 18(1)(b) of the Convention further mandates (2010), 2106 (2013) and 2122 (2013).
the Committee to request ‘exceptional reports’ where
there is special cause for concern about a violation of • States parties should specifically report on
women’s human rights. The Committee has already compliance with any agreed benchmarks or indicators
used exceptional reporting since the 1990s to address developed as part of that agenda.
women’s human rights in conflict and post-conflict
situations. The Committee should consider expanding A new Guidebook on CEDAW General Recommendation
its use of exceptional reporting and calling for special 30 and the UN Security Council Resolutions on Women,
sessions specifically to examine implementation of Peace and Security offers States parties further guidance
General Recommendation 30. These measures would on reporting, including a checklist of questions.
352 Chapter 12. Human Rights Mechanisms

FOCUS ON

Checklist of questions for States Parties reporting to CEDAW8

Conflict Prevention available to victims of conflict-related violence? What

measures have been taken to ensure effective
• What early warning systems are in place for the access to these services by all women and girls?
prevention of conflict? Do early warning systems
promote the inclusion of women? Are early warning • Detail procedures for ensuring that all humanitarian,
indicators gender sensitive and specific to gender- military and police personnel contributing to
based violations impacting women? international responses to conflict are appropriately
trained in the prevention of sexual violence and
• Detail the extent to which women’s formal and codes of conduct on sexual exploitation and
informal conflict prevention efforts are supported. abuse. Detail measures through foreign policy,
membership of international financial institutional
and intergovernmental organizations, to strengthen
• What measures have been taken by arms-exporting
judicial, health and civil society responses to
States parties to ensure that these arms are not
conflict-related sexual violence.
being used to commit or facilitate violations of
women’s human rights including Gender-Based
violence? Has the State ratified the Arms Trade • Detail the contribution of States parties to UN
Treaty and what measures have been taken to efforts to prevent sexual violence in conflict, for
implement the Treaty? example, through funding, personnel and political
leadership.

• Detail efforts by States parties, through domestic

and foreign policy, for the effective regulation over
Trafficking
conventional and illicit arms, including small arms.

• What measures have been taken by the by States

parties to ensure that migration and asylum policies
Gender-Based Violence
do not operate to deter or limit opportunities for
women and girls fleeing conflict zones to lawfully
• What measures have been taken to prohibit, prevent access asylum, and thereby decrease vulnerability
and punish all forms of conflict-related violence to trafficking and exploitation?
against women and girls perpetrated by State and
non-State actors?
• What bilateral and multilateral measures have been
taken by States to protect the rights of trafficked
• What measures have been taken to protect civilians women and girls and to facilitate the prosecution of
from conflict-related sexual violence? perpetrators of trafficking and sexual exploitation and
abuse (SEA)?
• Detail processes for standardized data collection on
conflict-related violence against women and girls. • What measures have been taken to adopt a policy of
zero tolerance on trafficking and sexual exploitation
• What legal, medical and psychosocial services are and abuse, which also addresses national troops,
 353

peace-keeping forces, border police, immigration Access to Education, Employment and Health, and
officials and humanitarian actors? Rural Women

• What measures have been taken to ensure women’s

Participation and girls’ access to education at all levels in post-
conflict contexts?
• What obstacles, including legal, social, political
or institutional, exist to women’s participation in • How do post-conflict economic recovery strategies
conflict prevention, management and resolution? promote women’s participation and equality? Do
these policies address women’s roles and needs
• What measures, including temporary special within both the formal and informal sectors? Do
measures, have been taken to ensure women’s they recognize the particular situation of rural
equal participation in conflict prevention, and other disadvantaged groups of women, as
management and resolution? disproportionately affected by the lack of adequate
health and social services and inequitable access to
land and natural resources?
• To what extent are women’s civil society
organizations included in peace negotiations
and post-conflict rebuilding and reconstructions? • Detail provision for sexual and reproductive
Detail the measures, including temporary special healthcare, including access to information,
measures, taken to ensure the inclusion of psychosocial support, family planning services,
women’s civil society in peace negotiations and maternal health services, safe abortion services, post-
post-conflict rebuilding and reconstructions. abortion care and HIV/AIDS prevention, treatment and
support. What measures have been taken to ensure
• What training has been provided and to whom to equal access of women and girls to such services?
support women’s civil society participation and
leadership in such processes? • What foreign policy and practice, through bilateral
and multilateral activity, has been undertaken to
• What numbers of States parties’ negotiation and ensure women’s participation in economic recovery
mediation personnel are female, including at and related decision-making?
senior levels?

• What technical assistance have States parties Displacement, Refugees and Asylum Seekers
offered through their foreign policy and
membership in intergovernmental and regional • What preventative measures have been taken to
organizations to promote women’s effective protect against forced displacement and violence
participation in conflict prevention, mediation and against internally and externally displaced women
peacebuilding? and girls?
354 Chapter 12. Human Rights Mechanisms

• Do policy and legal responses to displaced • Detail protection measures for women and girls in
populations recognize the gender-specific needs and near cantonment sites.
of displaced women and girls? Do these laws
and policies recognize the different needs of • What measures have been taken to ensure
displaced women and girls at different stages of that female combatants are included in DDR
the displacement cycle, during flight, settlement programmes and that the specific needs of
and return? Do these laws and policies respond to victimized girls within demobilized armed groups
multiple and intersecting forms of discrimination have been addressed?
faced by different groups of displaced women and
girls, including women with disabilities, older women,
women with HIV/AIDS, women belonging to ethnic, Constitutional & Electoral Reform
national, sexual or religious minorities?

• Detail measures taken to ensure registration and

• Detail efforts to ensure the protection of civilians, the voting of women voters. Detail measures, including
prevention of sexual and gender-based violence, and temporary special measures, for the equal
equal access to supplies and services in camps, participation of women in all official processes of
located within the State party’s territory, bordering constitutional and electoral reform.
States, and through foreign policy and membership
of intergovernmental agencies and organizations.
• What measures are being taken to ensure that
reformed constitutions and electoral systems
respect women’s human rights, prohibit direct
Security Sector Reform and Disarmament,
and indirect discrimination, and will guarantee the
Demobilization and Reintegration (DDR)
participation of women?

• What efforts have been taken to ensure that DDR

• Detail actions taken, through domestic and foreign
processes are gender sensitive and have been
policy, to ensure women’s safety prior to, and
developed in coordination with security sector reform
during, elections.
initiatives?

• Detail measures to ensure that perpetrators of Access to Justice (Accountability, Amnesty, Rule
conflictrelated gender-based violence have been of Law Reform, Transitional Justice)
excluded from reformed security sector forces.

• Do amnesty laws permit impunity for gender-based

• What measures have been taken to ensure that violence? To what extent have sexual and other
security sector reform results in security sector forms of gender-based violence been prosecuted
institutions that are inclusive of women, liaise with as elements of genocide, war crimes and crimes
women’s organizations and respond to women’s and against humanity?
girls’ gender-specific post-conflict security needs?

• What measures are in place to ensure women’s

• Detail provision for gender-sensitive investigation equal participation in post-conflict constitutional
of sexual and gender-based violence and the and legal reform processes?
prevention of sexual violence within reformed
security sector institutions.
 355

• How have transitional justice mechanisms Nationality & Statelessness

ensured the inclusion of women and addressed
gender-based violations in their design and • What measures have been taken to prevent
implementation? Statelessness of women and girls affected by
conflict, including the recognition of the equal right
• Detail procedures for gender-sensitive investigation of women and men to nationality on the basis of
of conflict-related violence against women. What marriage and other family relationships, and the
measures have been taken by the security and recognition of the particular disadvantages faced
justice sectors to end impunity for such violations? by women in accessing consular assistance and
What reforms to the legal and judicial sectors have necessary documentation to establish citizenship?
been undertaken to ensure access to justice and
redress for sexual violence?
Marriage and Family Relations
• Detail remedies available to women and girls who
are victims of conflict-related sexual violence, as • What measures have been taken to prevent,
well as measures to ensure women’s effective investigate and punish gender-based violations
access to such remedies. such as forced marriage, forced pregnancies,
abortions or sterilization in conflict-affected areas?
• How has accountability for sexual violence in
conflict been advanced through States parties’ • Detail gender-sensitive legislation and policies
foreign policy and membership in intergovernmental to guarantee women’s inheritance and effective
organizations? access to land in post-conflict contexts.
356 Chapter 12. Human Rights Mechanisms

Some States parties have been asked by the CEDAW implementation. Further efforts should be taken to
Committee during constructive dialogues to provide remove such reservations.
information on the implementation of the resolutions
on women, peace and security. Twelve conflict and
post-conflict countries had their reports considered by OTHER HUMAN RIGHTS TREATY BODIES
the CEDAW Committee during 2013 and 2014. This
questioning applies periodically to all States parties, In addition to the CEDAW Committee, there are
and also presents an important opportunity for civil nine other treaty bodies charged with monitoring
society, through parallel reporting, to complement the implementation of the major human rights treaties.10
information contained in States parties’ reports. All treaty bodies play an integral role in monitoring
violations of women’s rights in conflict and post-
The constructive dialogues and the concluding conflict settings, and their engagement can inform
observations of the CEDAW Committee can help policy of other Member States, assist in documentation
to bring much needed attention to issues of critical relevant to other parts of the UN system (for example,
importance. In its concluding observations of July a Universal Periodic Review or a commission
2013 on the situation in the Democratic Republic of inquiry) and ultimately be of use in a criminal
of the Congo (DRC), for example, the Committee investigation. The Convention on the Rights of the
expressed concern about the failure of the authorities Child (CRC) and its treaty body, the Committee on
to prioritize the protection of civilians, and the the Rights of the Child, are particularly important
denial by key State officials of the extent of violence tools in this regard. The CRC and an optional protocol
committed against women in conflict-affected areas.9 to the Convention on the involvement of children in
The Committee also expressed concern about the armed conflict, address States Parties’ obligations
limited regulation of small arms and light weapons and with regards to the specific rights and needs of
their impact on the security of women. The case of adolescent girls living in conflict-affected countries.11
Syria provides another illustrative example. For example, in its concluding observations on
Rwanda under the optional protocol on armed conflict
Article 8 of the CEDAW Optional Protocol also offers in 2013, the Committee recommended that Rwanda
an important accountability mechanism for the women, give particular attention to girls, including teenage
peace and security agenda: individuals or groups mothers and their children, in the development of
of individuals may submit reliable information to the demobilization, disarmament and reintegration policies
Committee indicating grave or systematic violations and programmes.12
by a State Party of rights set forth in the Convention,
which would include conflict-related violations as The human rights conventions and treaty bodies serve
defined in CEDAW General Recommendation 30. If as important mechanisms for engaging in long-term,
a State party to the Optional Protocol has not opted structural prevention of conflict. For example, the
out from the inquiry procedure, at its discretion, the International Convention on Economic, Social and
Committee may then designate one or more of its Cultural Rights requires States parties to provide
members to conduct an inquiry and to report urgently equitable access to education, health care, and
to the Committee. employment. The Committee has raised concern over
budgetary allocations for the progressive realization of
While almost all countries in the world have ratified each of these rights in relation to military and defense
CEDAW, many have made reservations that limit its expenditure.13 By examining inequality and political
 357

Reservations to CEDAW as of March 201514

Number of
countries with 26 22 17 17 7 6 6
reservations

Equal rights in Compatibility Equality of Elimination of Equal rights to Social Equality in

marriage and the with religious, nationality discrimination choose residence protection employment
family customary or
traditional laws and
practices

FOCUS ON

Concluding observations regarding gender-based human rights violations in Syria15

Syria ratified CEDAW in April 2003, and has presented based violence; to provide necessary medical and
two reports to the CEDAW Committee—its initial report mental health treatment to survivors; and to ensure
in 2007, and its second periodic report in 2014. that a reparations program is carried out which
Following the reporting by the Syrian Government in addresses the needs of women and girls, and
2014, and supported by a parallel report submitted addresses structural inequalities. The Committee
by Syrian women’s human rights organizations and also addressed humanitarian concerns, urging Syria
international allies, the Committee issued strong to revive its peace process and to include women
and comprehensive concluding observations. These meaningfully at all stages of peace negotiations and in
concluding observations could serve as a model for transitional justice processes.
the engagement of civil society with human rights
mechanisms on the WPS agenda. The Committee’s concluding observations illustrate
how the Convention and its reporting mechanism can
The Committee’s concluding observations and be used to expose human rights violations in conflict,
recommendations picked up on the issues raised and address structural and institutional obstacles
in the parallel civil society report. The Committee to gender justice and equality. Syria’s consideration
responded to civil society demands to address by the CEDAW Committee also demonstrates the
violence against women and discriminatory cultural importance of a strong and unified civil society voice
practices and stereotypes, calling for Syria to hold in ensuring the Committee hears and responds to the
State and non-State actors accountable for gender- concerns of women living in conflict-affected countries.
358 Chapter 12. Human Rights Mechanisms

economy as drivers of conflict, the Committee on related sexual violence.17 These recommendations
Economic, Social and Cultural Rights has an important send a clear and important message: Member
role in holding all States parties accountable for the States of the international community value gender
‘prevention’ pillar of the WPS agenda. equality and women’s rights, particularly in conflict-
affected contexts, and are willing to hold their peers to
account on obligations and commitments made in this
THE HUMAN RIGHTS COUNCIL regard.18

Universal Periodic Review Civil society and other stakeholders also play
an important role in strengthening UPR as an
The Universal Periodic Review (UPR) is the main accountability process, first through submissions
mechanism of the United Nations Human Rights to the HRC which describe progress and gaps in
Council (HRC) to assess on a regular basis the implementing States’ obligations regarding women’s
human rights situation of each Member State. It human rights and gender equality, and second using
provides an opportunity for States to examine each the outcomes of UPR to advocate for change in their
other’s activities to implement all human rights home countries. As one important form of information-
obligations, including the provisions of CEDAW and sharing across human rights bodies, regional human
the other human rights treaties. Unlike the expert rights bodies—the Council of Europe, the Inter-
reviews conducted by the CEDAW Committee, UPR American Commission of Human Rights, and the
takes place through an interactive dialogue between African Commission on Human and Peoples’ Rights—
the State under review and other Member States— also submit reports to the HRC on their Member States
any Member State can pose a question or make a undergoing review.19
recommendation to the State under review. As a peer
review mechanism, UPR thus plays a special role in
ensuring that women’s rights in conflict and post- Special Procedures and Other Mechanisms
conflict contexts are discussed on an international
stage among Member States. The Special Procedures of the HRC are independent
experts entrusted with the mandate to examine,
Recent periodic reviews of conflict and post-conflict monitor, advise and publicly report on human rights
countries have addressed issues relating to the
implementation of resolution 1325, and they have
been particularly strong in their recommendations
regarding accountability for conflict-related sexual
violence. In 2014, Ireland recommended that the Recent periodic
DRC work to ensure full implementation of resolutions
1325 and 2122, including by increasing women’s
reviews [...] have been
participation in peacebuilding.16 More than two dozen particularly strong in
States made recommendations to the DRC regarding their recommendations
conflict-related sexual violence. Estonia, Luxembourg regarding accountability
and France each made recommendations to the
for conflict-related sexual
Central African Republic to implement resolution
1325, including through increased women’s
violence.
participation in the transitional process, while nine
States made recommendations regarding conflict-
 359

situations in specific countries or on human rights

related themes worldwide.20
The thematic and
Mandates, whether country-specific or thematic, are
implemented in a range of ways, including through
country-specific findings
reports, country visits, communications on alleged and recommendations
violations of human rights to the Governments put forward by these
concerned and press releases on specific matters of experts form an
concern. Spearheaded by the mandate of the Special
Rapporteur on violence against women, its causes
additional accountability
and consequences, these mechanisms have over tool which could be
the past 17 years increasingly focused attention on better utilized for the
women’s human rights in conflict and post-conflict implementation of the
situations through their thematic and country visit WPS agenda.
reports. The thematic and country-specific findings and
recommendations put forward by these experts form
an additional accountability tool which could be better
utilized for the implementation of the WPS agenda, in
particular by informing the work of the Security Council contemporary forms of racism, racial discrimination,
and other international and regional bodies concerned xenophobia and related intolerance; extreme poverty
with the maintenance of peace and security. and human rights; the situation of human rights
defenders; trafficking in persons, especially women
Already, the HRC’s Special Procedures have played and children; and the promotion of truth, justice,
an important role in advancing the WPS agenda. For reparation and guarantees of non-recurrence. Many
example, the Special Rapporteur on Violence Against of the fourteen country-specific special procedures
Women issued a seminal report on reparations, which also regularly include analysis of women, peace and
has furthered acceptance of the need for justice to security-related themes in their reporting to the Human
transform underlying social inequalities that affect Rights Council.
women and girls (see Chapter 5: Transformative
Justice). The Working Group on Discrimination against While special procedures have a strong track record
Women in Law and in Practice issued its first thematic of drawing international attention to issues within the
report on discrimination against women in public WPS agenda, the UN can do more to ensure that
and political life including in times of transition,21 this information and analysis reaches global peace
and the Working Group on Enforced Disappearances and security decision-making bodies, including the
adopted a General Comment on gender and enforced Security Council. For example, the Special Rapporteur
disappearances.22 on the Human Rights of Internally Displaced Persons
briefed the Security Council in October 2014 in
Issues related to women, peace and security have also connection to the open debate on women, peace and
been raised by the Working Group on discrimination security.23 Equally, States engaging with the special
against women in law and practice, the 14 Special procedures mechanisms should provide information to
Rapporteurs with country-specific mandates, and these mechanisms on progress made in implementing
the Special Rapporteurs on: the human rights of the WPS agenda, including the seven Security Council
internally displaced persons; extrajudicial, summary or resolutions, and CEDAW General Recommendation
arbitrary executions; the right to food; minority issues; 30.
360 Chapter 12. Human Rights Mechanisms

FOCUS ON

Special Rapporteur on the Promotion of Truth, Justice, Reparation and Guarantees of Non-Recurrence:
Integrating gender into conflict-related justice efforts24

The mandate of the UN Special Rapporteur on the Rapporteur consistently reflect the issue of protection
Promotion of Truth, Justice, Reparation and Guarantees of women and girls from gender-based violence,
of Non-Recurrence was created by Human Rights and emphasize the fight against impunity for crimes
Council resolution 18/7, adopted in September relating to sexual and other violence against women
2011. The mandate holder is tasked with dealing with and girls. The Special Rapporteur has established a
situations in which there have been gross violations close cooperation with UN Women, the AU Special
of human rights and serious violations of international Envoy on Women, Peace and Security and others to
humanitarian law. Resolution 18/7 specifically notes inform technical elements of work and support women’s
that the Special Rapporteur will “integrate a gender participation in consultations.
perspective throughout the work of the mandate”—a
request which consistently appears in HRC resolutions In addition, the Special Rapporteur has continuously
regarding special rapporteurs. emphasized that an overly narrow focus on sexual
violence must be avoided. Instead, equal focus must be
As the first Special Rapporteur holding this mandate, given to the full range of gender-related violations. He
Pablo de Greiff has used Security Council resolution has advocated for Member States to adopt policies to
1325 as the key framework to inform the gendered subvert pre-existing patterns of structural gender-based
elements of his mandate in thematic and policy level discrimination and inequalities, highlighting the positive
work as well as in country-specific engagement. In ‘spill-over effect’ of such a transformative approach in
particular, reports and recommendations of the Special relation to domestic legislation and policies.

A review of cases of gender-related human rights adultery and apostasy with risk of corporal punishment;
violations in conflict and post-conflict settings brought discriminatory legislation, including regarding nationality;
to the attention of UN special procedures mandate arbitrary closure of women’s rights organizations;
holders since 201125 provides a troubling picture disproportionate use of force during the dispersal
of the broad nature of such violations. It includes of demonstrations; forced and early marriage; and
communications concerning incidents of rape, other attacks against and killings of residents of a refugee
forms of sexual violence and violations against survivors camp. These communications affirm the importance of
and those working to assist them; police beating of using special procedures to advance accountability for
rape victims; harassment, enforced disappearances, the WPS agenda outside and alongside the Security
and killings of women’s human rights defenders; Council, which has tended to focus on conflict-related
conflict-related killings; extrajudicial executions; sexual violence as a civilian protection concern, often to
arbitrary detention, intimidation, and harassment of the exclusion of the full range of human rights violations
LGBT persons; trafficking; sentencing on grounds of women experience in conflict settings.
 361

In addition to special procedures, the HRC also

has the power to create expert fact-finding bodies to
investigate, legally analyze and report on situations “The participation
of armed conflict or mass atrocity, in the form of
commissions of inquiry and fact-finding missions. and leadership of
This adds another important tool for accountability
under the WPS agenda, and the HRC must continue to IDP women in finding
strengthen these bodies’ abilities to report on sexual
and gender-based violence and violations of women’s
durable solutions that
and girls’ human rights (discussed in greater detail in address their very
Chapter 5: Transformative Justice), and expand the
flow of information between these commissions, UN specific concerns is
entities and the Security Council (discussed in Chapter
11: The Security Council).
critical.”
Chaloka Beyani, Special Rapporteur on the
REGIONAL HUMAN RIGHTS Human Rights of Internally Displaced Persons
MECHANISMS briefing the Security Council during the 2014
debate on Women, Peace and Security
Regional and sub-regional human rights mechanisms
also play a key role in advancing implementation of
the WPS agenda, and holding States accountable to
commitments for gender equality in conflict-affected
contexts. The Inter-American system—the Inter- Peoples’ Rights, and African Court on Human and
American Commission of Human Rights and the Peoples’ Rights—has some of the strongest normative
Inter-American Court of Human Rights—provides a frameworks for women’s rights. This includes the
strong example of accountability for State violations Protocol on the Rights of Women in Africa, the first
through regional mechanisms, particularly by international or regional human rights instrument
reinforcing norms of women’s human rights and to include provisions on abortion. Unfortunately,
advancing innovative ideas for gender justice. Europe the African system sorely lacks in enforcement,
has also developed jurisprudence on women’s rights however, painting a dim picture of justice for women’s
through the European Court of Human Rights. The rights violations on the regional level. The African
Istanbul Convention, a European treaty on violence Commission, which receives individual complaints
against women, which entered into force in 2014 of human rights violations, has received only one
and is applicable during times of armed conflict, complaint in its history (of 550 such complaints)
includes a promising new accountability mechanism: requesting a remedy for a violation of women’s rights.27
an expert monitoring group, which will become
operational in 2015. Sub-regional courts, such as the Even the most robust regional human rights
East African Court of Justice and Caribbean Court of mechanisms have been criticized for inefficiency, and
Justice, also afford opportunities to address gender for failing to alter the behaviour of Member States with
inequality and violations of women and girls’ human their judgments. For example, the European Court of
rights in conflict. Human Rights in recent years has made considerable
effort to reduce the number of cases pending before
The African regional human rights system—which it. In 2014 however, there still remained nearly 70,000
includes the African Commission on Human and such cases.28
362 Chapter 12. Human Rights Mechanisms

FOCUS ON

Gender justice in the Inter-American system

The Inter-American system, comprised of the Inter- found that the Mexican state had failed to act with due
American Court of Human Rights and the Inter- diligence to prevent, investigate and prosecute the
American Commission of Human Rights, has adopted disappearance, rape and murder of women in Ciudad
a comprehensive approach to gender justice, which Juaréz by non-State actors—a violation of international
recognizes the importance of addressing structural human rights law. Although the Cotton Fields judgment
and intersectional discrimination as a root cause of does not concern conflict-related gender-based
human rights violations. The Inter-American approach violence, per se, it has important implications for
should serve as a model for all regional accountability redress for such violations in other contexts. The Court
mechanisms in implementing the WPS agenda. found that the victims and their families were entitled
to gender-sensitive and transformative reparations, and
In 2006, the Inter-American Commission of that such reparations must seek to accomplish more
Human Rights released a report on Violence and than a simple return to the status quo, they must also
Discrimination against Women in the Armed Conflict address the underlying structural inequalities that led
in Colombia.29 The report, based on a visit of the to the violation.
Special Rapporteur on the Rights of Women to the
country, recognized the heterogeneity of Colombian Reports and judgments such as these represent
women and their experiences of armed conflict, and important advances in the regional and global
the need for responses to gender-based violations, understanding of what it means to do justice for
which recognized diversity and intersectionality. women victims of gender-based violence, and to
The report shed particular light on the experiences provide them with a modicum of accountability against
of indigenous and Afro-Colombian women, who States, particularly vis-à-vis violations by non-State
are the victims of religious, ethnic and gender- actors. These documents are also evidence of the
based discrimination, aggravated by conflict-related importance of enhancing synergies and information
violence and displacement. The report made detailed flows between the international and regional human
recommendations, mapping a route to justice rights systems, and civil society. Both documents
for conflict-related gender-based violence for all mentioned above make frequent reference to CEDAW
Colombian women and girls. reports on Colombia and Mexico, reports by UN
special rapporteurs, statements from the High
In its 2009 judgment in the Cotton Field v. Mexico Commissioner for Human Rights and numerous NGO
case,30 the Inter-American Court of Human Rights reports documenting violations against women.
 363

NATIONAL HUMAN RIGHTS INSTITUTIONS and have adequate powers of investigation.36 Some
AND MECHANISMS countries such as the Central African Republic and the
Democratic Republic of the Congo are in the process
The UN General Assembly has recognized the of establishing NHRIs. As of 2014, almost half of these
role of independent national institutions in working institutions (11) had specific units, departments or
together with Governments to ensure full respect for committees dealing with women’s rights and gender
human rights at the national level, and in supporting issues, while 13 have released special reports, sections
cooperation between Governments and the United of reports or programmes on women’s rights.
Nations in the promotion and protection of human
rights.31 The Secretary-General has also highlighted The substance and quality of NHRI engagement on
their role in reports to the Security Council. In addition women, peace and security varies widely. Afghanistan’s
to their responsibility for ensuring general compliance Independent Human Rights Commission offers one
of the State with human rights obligations, national good practice example of active engagement in
human rights institutions (NHRI) are uniquely placed monitoring and reporting on women’s rights violations.
alongside other national-level mechanisms to lead It has a separate Women’s Rights Unit tasked with
on implementation of recommendations from all promoting and protecting women’s rights, and
international and regional human rights mechanisms. addressing the underlying causes of violations of
This includes setting timelines, benchmarks and women’s rights.37 The unit has produced thematic
indicators for success, including those on women’s reports on the situation of women in Afghanistan and
human rights issues related to the WPS agenda. has called on the Government to address the increase
Building the capacity of NHRIs to monitor gender- in the level of violence against women. A number of
specific human rights violations in conflict and post- press releases condemning violence and killings of
conflict settings remains a priority. This includes women in the country have also been issued.
investing in expertise and staff capacity to monitor and
report on key aspects of the WPS agenda and CEDAW
General Recommendation 30.

Progress monitoring on the gender-balance and

architecture of NHRIs active in conflict and post- Building the capacity
conflict settings since 201132 shows that the degree of NHRIs to monitor
of women’s participation in the leadership of such
bodies remains uneven, as does the availability of
gender-specific human
gender expertise to support investigations. Out of rights violations in
33 countries and territories reviewed in 2014,33 24 conflict and post-conflict
had NHRIs of which 13 had been accredited with settings remains a
either A or B status by the International Coordinating priority. This includes
Committee for National Human Rights Institutions.34
This means that they comply either fully or partially
investing in expertise
with internationally-accepted principles relating to the and staff capacity to
status of national institutions (the ‘Paris Principles’),35 monitor and report on
requiring that they: have a broad mandate based on key aspects of the WPS
universal human rights standards; are autonomous from
agenda.
Government; have their independence guaranteed by
statute or constitution; are pluralistic, including through
membership or cooperation; are adequately resourced;
364 Chapter 12. Human Rights Mechanisms

RECOMMENDATIONS

Moving progress beyond 2015: Proposals for action

Member States should: ✓ Work with women and girls affected by conflict
who wish to submit complaints of individual rights
✓ Ratify, remove reservations to, and fully implement violations to treaty bodies and regional, sub-
CEDAW, and report on the implementation of regional and national human rights mechanisms.
obligations relating to women, peace and security in
regular reporting to the CEDAW Committee and other
treaty bodies. The CEDAW Committee (and, where relevant,
other human rights treaty bodies) should:
✓ Report on the implementation of obligations relating
to women, peace and security in the UPR; participate ✓ Question countries under review on the
in the review of other States undergoing review implementation of their obligations under the
by asking about their implementation of these Convention relating to women, peace and security.
obligations; and establish national mechanisms
of reporting and follow-up of recommendations ✓ Encourage and support civil society to submit
emanating from the UPR and other human rights country-specific information for State party
mechanisms. reporting, including State obligations relating to
women, peace and security.
✓ Encourage civil society to submit independent
parallel reports, and provide financial support to ✓ Consider expanding the extraordinary reporting
enable their participation in the UPR process and function, and holding special sessions to
other human rights treaty body reviews. specifically examine conflict countries and their
implementation of General Recommendation 30.
✓ Provide multilateral and bilateral assistance, and
ensure the political support and independence of
regional and national human rights mechanisms Human Rights Council Special Procedures,
to address violations of women’s rights in conflict- commissions of inquiry and fact-finding missions
affected contexts, and fully implement the judgments should:
and recommendations of these institutions.
✓ Include conflict and gender analysis in their work
in conflict-affected countries, including in the
Civil Society should: mandates of commissions of inquiry and fact-
finding missions.
✓ Submit parallel reports to treaty bodies and the UPR
highlighting State obligations relating to women,
peace and security.
 365

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(United Nations Security Council, October 18, 2013). TreatyBodies.aspx.
2. “General Recommendation No. 30 on Women in Conflict 11. Article 38 of the Convention on the Rights of the
Prevention, Conflict and Post-Conflict Situations,” UN Child obligates States Parties to respect international
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by armed conflict. Article 39 obligates States Parties to
3. The Committee noted, however, that under certain
take all feasible measures to ensure protection and care
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an identifiable political structure exercises significant
protocol to the convention focuses specifically on the
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actors should respect women’s rights in conflict and 12. See, e.g., “Concluding Observations on the Initial Report
post-conflict situations and should commit themselves of Rwanda Submitted under Article 8 of the Optional
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para. 16. (Committee on the Rights of the Child, July 8, 2013).
4. Ibid., para. 15. As an example of such self-policing, in 13. See, e.g., “Concluding Observations of the Committee
the Concluding Observations of the Committee to Syria, on Economic, Social and Cultural Rights on the Second
the Committee calls upon non-State armed groups Periodic Report of the Democratic People’s Republic
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Compliance with International Humanitarian Law and Economic and Social Council, December 12, 2003).
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Transforming Economies, Realizing Rights” (UN Women,
civilian population, in particular women and children.
2015), annex 6.
“Concluding Observations on the Second Periodic Report
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the Elimination of Discrimination against Women, July 18, Periodic Report of Syria (2014).”
2014), para. 11.
16. “Report of the Working Group on the Universal Periodic
5. “CEDAW General Recommendation No. 30 (2013),” Review: Democratic Republic of the Congo,” UN Doc. A/
para. 14–15, 17. HRC/27/5 (United Nations Human Rights Council, July 7,
2014), para. 134.98.
6. Ibid., para. 14–15 and 17.
17. “Report of the Working Group on the Universal
7. The Committee has requested and examined exceptional
Periodic Review: Central African Republic,” UN Doc. A/
reports from the States of the territory of the former
HRC/28/17 (United Nations Human Rights Council,
Yugoslavia- Serbia and Montenegro; Bosnia and
January 6, 2014), para. 105.12–105.15.
Herzegovina; Rwanda; the Democratic Republic of
Congo; and more recently to address communal violence 18. Charlesworth and Larking point to “the power and
in Gujarat, India and its impact on women, as well as potential of [UPR as a] human rights mechanism,”
Guinea to address the massacre in the stadium in arguing that there have been “significant implementation
Conakry. rates within states in the years following their review.
This applies even to recommendations rejected by
8. This checklist is excerpted from, Catherine O’Rourke
states under review.” Hilary Charlesworth and Emma
and Aisling Swaine, “Guidebook on CEDAW General
Larking, Human Rights and the Universal Periodic Review
Recommendation No. 30 and the UN Security Council
(Cambridge University Press, 2015), 14.
Resolutions on Women, Peace and Security” (UN-
Women, 2015). 19. The Council of Europe and the Inter-American
Commission submit these reports regularly, when a
9. “Concluding Observations on the Combined Sixth and
Member State is under review. The African Commission
Seventh Periodic Reports of the Democratic Republic
does so less frequently. “Workshop on Regional
of the Congo,” UN Doc. CEDAW/C/COD/CO/6-7
Arrangements for the Promotion and Protection of Human
(Committee on the Elimination of Discrimination against
Rights: Report of the United Nations High Commissioner
Women, July 30, 2013).
for Human Rights” (United Nations Human Rights
10. “Monitoring the Core International Human Rights Treaties: Council, April 8, 2013), para. 24.
What Are the Treaty Bodies,” United Nations Office of the
20. The system of Special Procedures is a central element
High Commissioner for Human Rights, accessed July
of the UN human rights machinery and covers all human
366 Chapter 12. Human Rights Mechanisms

rights: civil, cultural, economic, political, and social. Eng (Organization of American States, Inter-American
Special procedures are either an individual (called Commission on Human Rights, October 18, 2006).
“Special Rapporteur” or “Independent Expert”) or a
30. Ruth Rubio-Marín and Clara Sandoval, “Engendering
working group composed of five members, one from
the Reparations Jurisprudence of the Inter-American
each of the five UN regional groupings. All serve in their
Court of Human Rights: The Promise of the Cotton Field
personal capacity; they are not UN staff members and do
Judgment,” Human Rights Quarterly 33, no. 4 (2011):
not receive financial remuneration.
1062–91.
21. Human Rights Council, “Report of the Working Group
31. See, e.g,. “Resolution Adopted on National Institutions for
on the Issue of Discrimination against Women in Law
the Promotion and Protection of Human Rights,” UN Doc.
and in Practice,” UN Doc. A/HRC/23/50 (United Nations
A/RES/66/169 (United Nations General Assembly, April
General Assembly, April 19, 2013).
11, 2012); “Resolution Adopted on Effective Promotion
22. Human Rights Council Working Group on Enforced or of the Declaration on the Rights of Persons Belonging to
Involuntary Disappearances, “General Comment on National or Ethnic, Religious and Linguistic Minorities,”
Women Affected by Enforced Disappearances,” UN Doc. UN Doc. A/RES/68/172 (United Nations General
A/HRC/WGEID/98/2 (United Nations General Assembly, Assembly, January 23, 2014); “Resolution Adopted
February 14, 2013). on The Role of the Ombudsman, Mediator and Other
National Human Rights Institutions in the Promotion and
23. “Security Council Open Debate on Women, Peace and
Protection of Human Rights,” UN Doc. A/RES/69/168
Security Meeting Records,” UN Doc. S/PV.7289 (United
(United Nations General Assembly, February 12, 2015),
Nations Security Council, October 28, 2014).
168.
24. “Special Rapporteur on the Promotion of Truth, Justice,
32. Information for NHRIs has been systematically monitored
Reparation and Guarantees of Non-Recurrence,” United
and reported on since 2011 through the UN indicators to
Nations Office of the High Commissioner for Human
track the implementation of resolution 1325 (2000).
Rights, accessed September 28, 2015, http://www.ohchr.
org/EN/Issues/TruthJusticeReparation/Pages/Index.aspx. 33. Countries or territories in which a political, peacebuilding
or peacekeeping mission operated during 2014, or
25. The number and nature of communications has been
concerning which the Security Council was seized and
systematically monitored and reported since 2011
which had been considered by the Council at a formal
through the UN indicators to track the implementation of
meeting during the period from 1 January 2014 to 31
resolution 1325 (2000). From 1 January to 30 November
December 2014, or countries or territories that received
2014, acting in response to reported allegations
programmatic funds from the Peacebuilding Fund in
of human rights violations, United Nations special
2014.
procedures mandate holders sent 29 communications
to 19 of the countries and territories reviewed, which 34. “Report of the Secretary-General: Women and Peace and
marked and increase from previous years. Security,” UN Doc. S/2014/693 (United Nations Security
Council, September 23, 2014), fig. 7.
26. “Report of the Special Rapporteur on Violence against
Women, Its Causes and Consequences, Rashida Manjoo” 35. “Resolution Adopted on the Role of the Ombudsman,
(United Nations Human Rights Council, June 10, 2015), Mediator and Other National Human Rights Institutions
para.17. in the Promotion and Protection of Human Rights,” UN
Doc. A/RES/48/134 (United Nations General Assembly,
27. Ibid., para. 24. The case, Egyptian Initiative for Personal
December 20, 1993), 134.
Rights and INTERIGHTS v. Egypt, was decided in 2011.
36. For information on the accreditation procedure, see
28. “European Court of Human Rights: Annual Report
“International Coordinating Committee for National
2014” (Strasbourg, France: Registry of the European
Human Rights Institutions (ICC),” United Nations Office
Court of Human Rights, 2015), 63; Christian M. De Vos,
of the High Commissioner for Human Rights, accessed
“From Rights to Remedies: Structures and Strategies
September 28, 2015, http://nhri.ohchr.org/EN/Pages/
for Implementing International Human Rights Decisions”
default.aspx.
(Open Society Foundations, June 2013).
37. “Women’s Rights Unit,” Afghanistan Independent Human
29. “Violence and Discrimination against Women in the
Rights Commission, December 5, 2011, http://www.aihrc.
Armed Conflict in Colombia,” OEA/Ser.L/V/II. Doc.67
org.af/home/women/486.
367
368 Chapter 13. Financing WPS

13
 369

FINANCING OF
THE WOMEN,
PEACE AND
SECURITY
AGENDA

“We need long-term financial support—not

driven by donor priorities for projects—in
order to build our capacity to participate
and address the structural inequalities
which drive conflict in our region.”
Participant at the Asia-Pacific regional civil society consultation for the Global Study
370 Chapter 13. Financing WPS

HIGHLIGHTS FROM THE RESOLUTIONS

Resolution 1325 Resolution 1888

Urges Member States to Requests that the Secretary-
increase their voluntary General continue to direct all
financial, technical and relevant United Nations entities
logistical support for gender- to take specific measures to
sensitive training efforts, ensure systematic mainstreaming
including those undertaken of gender issues within their
by relevant funds and respective institutions, including
programmes by ensuring allocation of
adequate financial and human
resources within all relevant
offices and departments and on
the ground

2000 2009

Resolution 1889
Urges Member States, United
Nations bodies, donors and civil
society to ensure that women’s
empowerment is taken into
account during post-conflict
needs assessments and planning,
and factored into subsequent
funding disbursements and
programme activities
 371

Resolution 2106
Recognizing the importance international programs that
of providing timely assistance assist victims of sexual
to survivors of sexual violence such as the Trust
violence, urges United Fund for Victims […]; and
Nations entities and donors requests the relevant United
to provide non-discriminatory Nations entities to increase
and comprehensive health allocation of resources for
services, […] encourages the coordination of gender-
Member States and donors based violence response and
to support national and service provision

2013

Resolution 2122
Encourages concerned Member States to
develop dedicated funding mechanisms to
support the work and enhance capacities
of organizations that support women’s
leadership development and full participation
in all levels of decision-making, regarding the
implementation of resolution 1325 (2000),
inter alia through increasing contributions to
local civil society
372 Chapter 13. Financing WPS

Despite the wealth of evidence highlighting the benefits assess performance and improve accountability for
that investing in women can bring in terms of conflict financing gender equality; and
prevention, crisis response and peace, the failure to allocate
sufficient resources and funds has been perhaps the most • allocating more resources to support and build the
serious and persistent obstacle to the implementation of capacity of women’s organizations operating in conflict
the women, peace and security agenda over the past 15 and post-conflict settings.
years.1 The scarcity of funds for the WPS agenda is in line
with the enormous global funding gap for gender equality None of these recommendations are particularly new, and
more generally. Research shows a consistent, striking many have been echoed in Security Council outcomes.
disparity between policy commitments to gender equality However, as this chapter shows, their implementation has
and women’s empowerment, and the financial allocations to been patchy and incomplete.
achieve them.

The lack of prioritization, and failure to effectively use this TRENDS IN DONOR SPENDING
tool for change is demonstrated no more clearly than
by looking at global spending patterns. As described in Recent reports by the OECD3 and the UN Secretary-General
Chapter 8: Preventing Conflict, 15 years on, the world on women, peace and security4 find that fragile states and
continues to pour resources into short-term militarized economies, including conflict-affected countries, lag far
responses rather than investing in conflict prevention, social behind other developing countries in achieving the MDGs
justice and inclusion. As the data in this chapter reveals, and their gender-related targets.5 Data shows that fragile
of the aid that is being channeled to fragile and conflict- countries and economies are currently home to 43 per
affected states, it is still negligible amounts that are being cent of the world’s population living in absolute poverty.6 In
routed towards furthering gender equality and women’s 2012, an estimated 50 per cent of out-of-school children
participation, or meeting women’s needs. of primary school age lived in conflict-affected areas,7 and
according to 2013 estimates, maternal mortality ratios were
The High-Level Review provides a unique opportunity 2.5 times higher in conflict and post-conflict countries than
for ensuring robust and predictable financing for the in the same set of developing countries.8
implementation of the full WPS agenda beyond 2015—a
priority recommendation emphasized in regional and In conflict and post-conflict settings, domestic finance is
country consultations and in other contributions to the often either completely depleted or vastly insufficient to
Global Study. A number of recommendations related to address the risks to sustainable development resulting
financing this agenda have been put forward, including from fragile situations. Alternative sources of development
within the framework of the New Deal for building peaceful finance, such as private finance or technology and
societies, established at the High-level Forum on Aid innovation investments are equally scarce. As a result,
Effectiveness held in Busan in December 2011.2 donor funds make up the bulk of financing. These are,
however, generally focused on emergency response, such
These include: as humanitarian assistance, during the crisis itself, leaving
little left over for rebuilding the state and establishing peace
• emphasizing the application of gender analysis in dividends for society until stability is secured. Beyond official
needs assessments, planning and monitoring of development assistance (ODA), other types of interventions,
budgets; such as sustainable debt financing, also facilitate the
mobilization of resources for public and private investment,
• attaching dedicated budgets to national implementation which in turn affect domestic resource allocation and impact
frameworks such as national action plans; food, health, education, energy, infrastructure and other
areas of importance for sustainable development, many of
• consistently using tools such as gender markers to which affect women disproportionately.9
 373

While it can be argued that the picture is not entirely bleak— significantly increased its share of aid targeting gender
data shows that ODA to gender equality in fragile states and equality in conflict-affected and fragile states to about
economies is on an upward trajectory—in reality, this growth USD 1.47 billion in 2014—five times higher than in 2000.14
rate originates from a near negligible starting point; meaning Canada reports the largest share of aid to fragile states and
that despite growth, only a tiny proportion of aid to fragile economies targeting gender equality as a principal objective
states and economies addresses women’s specific needs. (43 per cent in 2012-13). In addition, Portugal, Korea
and Japan reported the largest increases in aid to gender
Data analysis of bilateral sector-allocable ODA from OECD- equality in fragile states and economies since 2008.
DAC members shows that support for gender equality and
women’s rights in fragile states has grown by 10 per cent
on average per year since 2008.10 Since the adoption of
the MDGs, aid11 to gender equality in fragile states and
economies has quadrupled, from USD 2.6 billion per year
in 2002-03 to USD 10.3 billion in 2012-13.12 Nevertheless, Nevertheless, in 2012-
in 2012-13, just 6 per cent of all aid to fragile states and 13, just 6 per cent of
economies targeted gender equality as the principal all aid to fragile states
objective. In the case of peace and security specific aid, and economies targeted
this figure was only 2 per cent.13 This suggests that while
OECD-DAC members are making efforts to integrate gender
gender equality as the
equality into their interventions in fragile contexts, few are principal objective. In the
investing substantially in dedicated programmes to advance case of peace and security
gender equality and women’s rights. specific aid, this figure was
only 2 per cent.
The few that are, represent strong examples of progress
within these overall figures. For example, Sweden has

FOCUS ON

Making funding decisions using gender equality criteria

Canada’s Global Peace and Security Fund contributes to on women, peace and security by asking applicants to
projects in fragile and conflict-affected states in support specifically address the question: “How will this project
of international peace and security. The Fund’s efforts address the different needs of women, men, boys
to promote gender equality and the empowerment of and girls?” The impact of these measures has been
women and girls were notably enhanced through the significant. Evaluating projects’ support for women,
adoption of Canada’s National Action Plan on Women, peace and security is now a standard procedure. Over
Peace and Security in 2010, which sets out a specific the three-year period for which reports have been
requirement for project funding to be assessed against published, the proportion of projects with a gender focus
their contribution to gender equality. The Fund’s Project increased from approximately 12 to 85 per cent.15
Assessment Team evaluates whether or not proposals
further the implementation of Canada’s commitments
374 Chapter 13. Financing WPS

Unpredictability of gender equality focused aid alongside limited resources has an aggravating effect on
efforts to meet women’s needs.19 Besides increasing aid
The priority given to gender equality varies enormously predictability, other ways to enhance the effectiveness of
across fragile contexts. OECD-DAC data shows that aid allocated to gender issues in conflict and post-conflict
67 per cent of aid to Nepal targeted gender equality settings include ensuring its timeliness, untying aid,
in 2012-13 compared with just 14 per cent of aid to aligning it to national priorities and targeting aid orphans
Iraq.16 Additionally, more than 50 per cent of aid to and underfinanced sectors. Although the global share
gender equality in fragile states and economies was of aid that is untied has risen from 68 per cent in 2006
concentrated in just 8 countries in 2012-2013, although to 79 per cent in 2012, national governments and civil
the list of main aid recipients has shifted significantly in society organizations still run into significant obstacles
the past six years.17 This highlights the fact that long- to access aid. Innovative approaches to financing and
term support to women, peace and security interventions other types of interventions in fragile countries aim at
continues to be limited. addressing some of these issues.

Part of this volatility relates to the overall context of fragile

state aid. According to the World Bank, on average, aid Which sectors are prioritized?
flows to post-conflict countries and fragile states are
more volatile than flows to countries that are neither OECD-DAC data shows that most bilateral aid in support
fragile nor post-conflict, although large variations do of gender equality in fragile states and economies
exist between countries.18 Unpredictable aid flows make goes to social sectors such as education20 and health,
it difficult for countries to plan development strategies while significant financing gaps remain in the economic
effectively, with particular impacts on women, peace and productive sectors, and the peace and security
and security. Here the double bind of unstable aid sector.21 Peacebuilding and state building processes

Sectorial distribution of aid targeting gender equality in fragile states and economies
(2012-13 average commitments, 2012 prices)22

General environment protection 2% Multisector 2%

Industry, mining, construction, trade & tourism 2%

Education 15%

Agriculture & rural development 13%

Banking & business 2%

Health, general 14%
Energy 6%
USD 10.3 bn
Other economic infrastructure & services 3%

Other social infrastructure & services 4% Population Pol./Progr. & Reproductive Health 8%

Peace & security 5%

Water supply & sanitation 7%

Government and civil society, general 17%

 375

“It is a continuing
frustration that the level of
rhetoric for gender equality,
and the level of ambition
expressed, is not evidenced
in financing. We must not
miss the chance to achieve
radical change – moving
from treating women’s
issues as side issues or
peripheral to the business
of the UN, to making
women and girls the
missing answer to creating
a peaceful and just world.”

Phumzile Mlambo-Ngcuka, UN Under-Secretary-

General and Executive Director, UN Women
376 Chapter 13. Financing WPS

offer a critical window of opportunity to address gender

inequalities and rebuild states that are responsive,
inclusive and accountable to all members of society, Only 28 per cent of
including women and girls. Despite this, only 28 per OECD-DAC members’
cent of OECD-DAC members’ aid to peace and security aid to peace and security
in fragile states and economies had a gender equality
focus in 2012-13, and only 2 per cent targeted gender
in fragile states and
equality as a principal objective.23 Within the peace and economies had a gender
security category, the top receiving areas of gender equality focus in 2012-
equality focused aid were civilian peacebuilding, conflict 13, and only 2 per cent
prevention and resolution, followed by security system targeted gender equality as
management reform. However, only 4 per cent and 1
per cent (respectively) targeted gender as a principal
a principal objective.
objective.24

Percentage and total aid to peace and security targeting gender equality as a principal or significant
objective, by sub-category, 2012-201325

% OF AID TARGETING USD MILLION,

GENDER EQUALITY AVERAGE 2012-13
KEY PEACE AND SECURITY
ISSUES
significant principal significant principal

Security system management and reform 26% 1% 90.6 5.2

Civilian peace-building, conflict preven-

41% 4% 359.3 32.3
tion and resolution

Reintegration and Small Arms and Light

14% 0% 6.2 0
Weapons control

Removal of land mines and explosive

19% 0% 16.2 0
remnants of war

To date, no international norms exist for tracking global Non-DAC countries

peace and security spending and its gender focus.
Agreeing on such global norms and targets would greatly The overall context of donor spending has shifted in
enhance the quality of international efforts to prevent and the past decade and a half, with emerging donors
reduce crises.26 playing an increasingly important role in aid delivery to
 377

conflict countries.27 The United Arab Emirates, Turkey country leadership, local ownership and multi-stakeholder
and the People’s Republic of China are estimated to be collaboration, and the opportunity it offers to drive
among the largest non-DAC providers in absolute terms. forward a more inclusive agenda, make it imperative that
Moreover, Turkey and the United Arab Emirates are women are included and their voices are heard. While
among the most generous non-DAC providers to fragile implementation of this initiative has not had as much
situations in terms of percentage of their gross national support as initially expected, civil society has managed
income (GNI).28 Four out of the top 10 recipients of gross to mobilize and integrate gender in some cases, such as
bilateral ODA provided by the United Arab Emirates in Afghanistan and South Sudan.32
2012-13 are currently considered fragile states, and
together received USD 239 million.29 In the case of
Turkey, 5 out of its top 10 recipients are fragile states and The role of development banks
received USD 1,645 million.30 Data was, however, not
available on whether or not this funding promoted gender Evidence shows that 20 fragile and conflict-affected states
equality. It is important that all aid providers, including met at least one of the 18 MDG targets ahead of 2015.33
non-DAC providers, record the gender focus of all aid Financial assistance has played an important role in these
contributions. achievements. Besides bilateral official development
assistance, multilateral donors such as development
banks are key enablers of development. For instance, the
INCREASING THE EFFECTIVENESS OF AID International Development Association (IDA)―the World
Bank’s fund for the poorest countries―has provided over
More inclusive, innovative interventions driven by USD 28.5 billion to fragile and conflict-affected states
developing countries’ priorities are necessary to speed since 2000 and committed to raise the share of IDA
up transition to stability and inclusive development financing to these states by 50 per cent.34 The proportion
in fragile contexts. Furthermore, as the number of of the World Bank’s allocations that are ‘gender informed’
emergencies, protracted conflict and countries who move has grown substantially since fiscal year 2010.35 The
in and out of conflict increases, there is a need to bridge Bank’s strategic targets of “60 per cent of all IDA lending
the gap between humanitarian and development aid, operations, and 55 per cent of all Bank lending operations
with increased investment in resilience, conflict resolution being gender-informed” were met in 2014.36
and peacebuilding that more firmly targets long-term
development outcomes. In the case of fragile states, the gender focus of the
Bank’s allocations has increased substantially. In 2010,
One model for more effective aid support is the New Deal 57 per cent of allocations were gender informed, and
for Peace and Engagement in Fragile States.31 Established the figure rose to 97 per cent in 2014.37 This shift is
at the High-Level Forum on Aid Effectiveness held in comparable to that of allocations to non-fragile states,
Busan in December 2011, the New Deal is a country-led which increased from 54 to 94 per cent over the same
approach to aid designed to provide support in transitions period. However, total allocations to fragile states are still
from instability to development, and to serve as a platform much lower than those to non-fragile countries. In fiscal
for strengthened relations between donors and affected year 2014, for instance, USD 3.38 million was allocated
countries. It aims to identify each country’s peacebuilding to gender informed interventions in fragile states,
and state-building priorities, and then build a country- compared to USD 34.15 million in non-fragile states.
led context-specific plan. To implement this, donors are
expected to partner and contribute to a financing compact. The largest gender informed allocation to a single
post-conflict or fragile country in fiscal year 2014 was
Gender equality and the participation of women are received by Iraq (USD 355 million), followed by Myanmar
critical to the realization of the New Deal. Its emphasis on (USD 281.5 million) and Mali (USD 280 million).
378 Chapter 13. Financing WPS

The World Bank’s gender and non-gender informed allocations (Total USD million) to fragile
and non-fragile states (Financial years 2010 - 2014)38

40000

35000

30000
Gender Informed, Fragile
25000
Gender Informed, Non-fragile
20000 Non Gender Informed, Fragile
Non Gender Informed, Non-
15000
fragile
10000

5000

0
2010 2011 2012 2013 2014

Under its Policy on Gender and Development, the to adequately assess the gender focus of their
Asian Development Bank (ADB) committed to support a interventions. The African Development Bank (AfDB),
larger number of projects that address gender equality. for instance, is planning to introduce a gender marking
Efforts focus on both mainstreaming gender in all ABD- system in the course of 2015 to tag operations
financed projects and programmes, and increasing on the basis of their potential impact on gender
the number of loans that directly address gender equality.41 Three markings are envisaged: “potentially
disparities.39 An analysis of project, loans and grants high, medium and low gender impact,” depending
records approved by the ADB in 2014 for interventions on whether or not gender equality is a distinct
in fragile states in Asia and the Pacific shows that the development outcome of each operation.42
majority of the rated allocations, 54 per cent, (USD
2.49 million) were tagged as interventions with effective
gender mainstreaming.40 However, only 14 per cent of Donor conferences: Translating assessment of
rated funds (USD 638,000) were allocated to projects needs into financial commitments
focused specifically on promoting gender equality, while
almost 30 per cent (USD 1.32 million) had no gender Donor conferences are critical for focusing global
elements. attention on a country’s post-conflict priorities.
However, despite the repeated acknowledgement of
While the largest USD amount approved for allocation women’s central importance to reconstruction, women
by the ADB in 2014 to a single fragile state in Asia civil society leaders and organizations have often
and the Pacific was USD 1.56 million to Sri Lanka, been marginalized by the donor assistance pledging
countries receiving the largest gender-focused process.43 In his 2010 report on women’s participation
allocations were Bangladesh and Nepal. in peacebuilding, the Secretary-General called on UN
entities, regional organizations, international financial
Other development banks are not yet applying gender institutions and Member States involved in organizing
markers consistently and therefore it is not possible donor conferences to provide meaningful opportunities
 379

Rated allocations to project, loans and grants in fragile Asia-Pacific states approved by the ADB in 2014,
by gender focus44

Gender equity as a theme

Effective gender mainstreaming
Some gender elements
No gender elements

for women’s representatives to participate in such RESOURCE TRACKING OF THE UN

crucial events, including access to all conference SYSTEM’S IMPLEMENTATION OF WOMEN,
documentation, space on the agenda to present issues PEACE AND SECURITY COMMITMENTS
of concern and assistance in convening preparatory
meetings and developing policy papers.45 Reporting on the UN System-Wide Action Plan on
Gender Equality and the Empowerment of Women
A sample review of 22 major donor or engagement (UN-SWAP) shows that UN entities have made limited
conferences that have taken place since 2010, covering progress in resource tracking and allocation for
11 conflict or post-conflict situations, show mixed results gender-focused interventions. Only 15 (24 per cent)
in living up to this call.46 For example, with regard to out of 62 entities reporting data in 2015 currently have
conferences addressing priorities for peacebuilding systems to track resources for gender equality and
in Afghanistan, women civil society representatives women’s empowerment.48 Among those, departments
were formally invited to convey their priorities at some, of the UN Secretariat, making up about 40 per cent
while at others they were left out of formal proceedings
even though they were prepared and present at the
location of the conference.47 While data availability is
uneven, initial findings of this sample review suggest a
Only 15 (24 per cent) out
strong correlation between conferences that have clear
channels for participation for women’s civil society
of 62 entities reporting
representatives, the backing of gender expertise, and data in 2015 currently have
outcomes of donor pledges targeting gender equality systems to track resources
interventions. This demonstrates the important role that for gender equality and
women’s organizations and the use of gender analysis
in preparatory planning can play in fundraising for such
women’s empowerment
interventions and for women’s needs in particular.
380 Chapter 13. Financing WPS

of all UN entities, lag behind significantly, with very methodology, however, limit full comparability across
few entities tracking their resources spent on gender. UN entities, and over time.51
As such, it has remained the weakest performing
indicator of the UN-SWAP for three consecutive years Although available figures on the proportion of
of reporting. Efforts are underway to support the allocations focusing on gender show a generally
establishment and roll-out of gender marker systems upward trend since 2011, it is clear that much stronger
across more UN entities, although much more intense efforts are needed. In particular, the goal of allocating
action is necessary if the UN system expects to a minimum of 15 per cent of UN-managed funds in
achieve most UN-SWAP targets by the 2017 deadline support of peacebuilding to projects whose principal
set by the UN Chief Executives Board. objective is to address women’s specific needs
and advance gender equality—as set out in the UN
Secretary-General’s Seven-Point Action Plan on Gender
Gender markers Responsive Peacebuilding52—remains largely unmet.
For instance, in interventions by the Peacebuilding
Notably, a growing number of entities working in Fund (PBF), this proportion has fluctuated significantly
conflict-affected and crisis settings are using gender from the 2011 figure of 2.1 per cent, to more positive
markers. At present, conflict and post-conflict specific results recorded in 2012 and 2014—the years the Fund
gender-marked data is annually reported by five was running its Gender Promotion Initiative (GPI) and
different UN entities. UNDP, the UN Peacebuilding emphasizing the funding of projects targeting women’s
Fund (PBF) and UNICEF have reported data since empowerment and gender equality. In 2014, the figure
the adoption of the UN indicators and monitoring was 9.3 per cent or a total of USD 8.22 million.53 While
frameworks on women, peace and security in 2010.49 special measures such as the GPI are important, there
Data from the Inter-Agency Standing Committee is also a risk that they isolate or pigeon-hole gender
(IASC)50 has been available since 2012 and UNFPA programmes and funds, making them the subject of
initiated marking and reporting in 2014. Differences in separate, stand-alone actions, rather than dedicated

Percentage of funds allocated by UN entities to interventions having gender equality as a principal objective
(Percentage of total USD screened)54

50

40
UN Peace Building Fund
UNDP
30
UNICEF
UNFPA
20

10

2011 2012 2013 2014

 381

programmes that are effectively mainstreamed into the

full range of programming undertaken by all entities in
post-conflict contexts. For instance, Syria, South
Sudan and the Philippines
The UN’s 15 per cent financing target for peacebuilding received the greatest
interventions, although far from being reached by all
proportion of humanitarian
entities responsible, has been instrumental in driving
more determined action, and more systematic monitoring
assistance targeting
of progress. As recognized by the Advisory Group of gender principally in 2014,
Experts for the 2015 review of the UN Peacebuilding and it still only amounted
Architecture, a major additional push is now needed to one per cent of total
not only to meet, but preferably surpass the Secretary-
General’s financing targets related to gender equality
humanitarian aid to each of
and the implementation of the WPS agenda.55 The report these countries.
highlights the 15 per cent gender marker as one of the
core measures which will help the UN to redefine and
reorient its work toward the UN Charter’s vision of saving
“succeeding generations from the scourge of war.”56 Also gender equality. Some interventions might thus have
necessary will be much stronger leadership for gender- a much larger gender impact than others, with funds
responsive planning and budgeting; monitoring and concentrated on certain types of sectors. There are
evaluation; and an investment in technical expertise. currently no tools available to monitor actual spending,
and staff capacity to track and analyze this type of
data is limited in most entities. Moreover, while some
Challenges in methodology and reporting systems UN entities such as UNFPA screen the totality of their
allocations to fragile countries for gender focus utilizing
“To ensure women and girls, boys and men have markers, others—especially emergency response and
equal access to and benefit from humanitarian humanitarian interventions—encounter challenges in
assistance—we must ‘follow the money.’ We need to gender marking, which results in an unreliable picture of
know how we spend money and who benefits.” whether commitments to gender equality are being met.

Valerie Amos, Under-Secretary-General for Since 2012, the proportion of unmarked humanitarian aid
Humanitarian Affairs and Emergency Relief channeled through UN entities has remained at around
Coordinator 60 per cent and, where markers were used, a significant
proportion of aid was coded as “unspecified” (23 per
Much larger sums are allocated to interventions that cent in 2014).57 It is therefore not only challenging
target gender equality as a ‘significant objective.’ to identify which humanitarian and emergency areas
This means that such interventions advance gender received more attention, but the data also indicates that
equality and women’s empowerment, although this is the gender focus was, in general, extremely low. For
not the intervention’s principal objective. It also means instance, Syria, South Sudan and the Philippines received
that gender equality considerations are considered the greatest proportion of humanitarian assistance
mainstreamed across the interventions. targeting gender principally in 2014, and it still only
amounted to one per cent of total humanitarian aid to
The current gender marking systems in use are not each of these countries.58
sophisticated enough to identify the proportion of funds
within those marked as ‘significant,’ that actually further Other UN entities working in conflict and post-conflict
382 Chapter 13. Financing WPS

settings, such as the UN Secretariat’s Department of at the local level. Some initiatives are now underway. For
Peacekeeping Operations and Department of Political example, the United States has begun providing small
Affairs, do not use gender markers as their operations grants as a mechanism to channel support and resources
are not project-based, and slightly more sophisticated directly to women-led civil society organizations at critical
marker systems would be required to capture the times in their countries’ recovery as a core crisis response.61
gender focus of their interventions. Available data
indicates that the total peacekeeping funding for the However, much stronger efforts are needed in this area.
fiscal year 2014/15 amounted to USD 8.47 billion,59 OECD-DAC data shows that in 2012-13, only USD 130
while the annual budget for special political missions million of aid went to women’s equality organizations and
was approximately USD 590 million.60 These large institutions—a tiny amount of the USD 31.8 billion of total aid
volumes remain unmarked for gender-focus and therefore to fragile states and economies over the same period, and
unaccounted for in gender-focused aid monitoring representing just one per cent of gender equality focused
systems. The establishment of adequate methodology aid to fragile states and economies.62
and reporting systems to track the gender focus of non-
project based allocations, including in field missions, A 2011 cross-regional survey supported by the Association
is key to hold all UN entities accountable for gender of Women’s Rights in Development (AWID) of over
commitments. 1,000 women’s organizations and close to 50 women’s
funds revealed that the median annual income of these
organizations doubled between 2005 and 2010.63 However
FUNDING ALLOCATED TO CIVIL SOCIETY the average budget of these organizations was only USD
ORGANIZATIONS WORKING IN CONFLICT 20,000 and only 7 per cent of respondents reported
AND POST-CONFLICT SETTINGS 2010 budgets over USD 500,000.64 The majority reported
challenges to mobilizing resources and having to cut
This Study has detailed the body of evidence on the activities or staff due to funding limitations. Furthermore,
relationship between women’s participation and the women’s organizations rely primarily on project support
effectiveness of peace and security efforts. In the immediate rather than on long-term flexible funding. In fact, 48 per
aftermath of conflict, there is a brief moment of opportunity cent of respondents reported never having received core
to strengthen women’s rights and leadership, and through funding, and 52 per cent never having received multi-year
this, accelerate post-conflict recovery and stability. Yet, this funding.65 The implications of this are that many of these
is precisely the period when countries experience funding
shortfalls, with women’s organizations and the critical work
they do the most adversely affected. The dearth of funds is
aggravated by the fact that when funds are made available,
they are often released late in the day, after their immediate
Furthermore, women’s
need and when other ODA flows are re-established. organizations rely primarily
Bridging this gap, in resources and time, would unleash a on project support rather
powerful tool for furthering women’s leadership and as a than on long-term flexible
result, the gains to peace and security the evidence tells us
funding. In fact, 48 per
will follow.
cent of respondents
The crucial contribution of women’s organizations—including reported never having
those working at the grassroots level—to conflict resolution received core funding, and
and peacebuilding has been explicitly recognized in 52 per cent never having
Security Council resolution 2122 (2013), which calls on
Member States to develop dedicated funding mechanisms
received multi-year funding.
and increase their contributions to women’s organizations
 383

small organizations spend a disproportionate amount of organizations becoming donor-driven rather than
their time on donor-related activities—such as writing community-driven, which at times fuels competition
funding proposals in tight timeframes for small amounts between organizations.
of money, and donor reporting—which takes valuable
time away from their actual programming. “We have small annual budget and most of the
actions and our work on WPS is voluntary. We need
Similar findings emerged from the global civil society core support also, and that is the situation with
survey undertaken as a contribution to this Global Study many women organizations in Serbia. Funding in
and the 2015 High-Level Review of the implementation most cases is for [a] limited time, 6 months or year,
of resolution 1325 (2000).66 Lack of resources ranked so [we] can’t plan actions on [a] long-term basis.”
highest among the barriers encountered by civil society
organizations (39 per cent), followed by lack of trust Respondent to the civil society survey for the Global
and cooperation with governments, and gaps between Study, working in Serbia
international policies and local level realities (each
29 per cent). Most organizations reported receiving In terms of sources of support from the UN system,
the largest amount of funding for work on advocacy, the survey revealed that almost two thirds (63 per
followed by technical capacity building (43 per cent). In cent) of civil society organizations receive support
contrast, only 11 per cent of organizations indicated that from UN Women for their work on women, peace and
the majority of their funding supports core-functioning/ security, showing the importance of the entity’s role
institutional capacity building. Other funding-related in providing direct resources and technical support
challenges identified by respondents included ineffective despite its limited resources.67 Approximately one in
funding allocations; donors’ focus on numerical targets four organizations received support from UNDP (26 per
and ‘quantity rather than quality;’ money given to large cent), followed by the Office of the High Commissioner
organizations rather than grassroots ones; uncoordinated for Human Rights (18 per cent), UNFPA (16 per cent)
and erratic funding; shifting donor interests interfering and UNICEF (16 per cent). Ten per cent had not
with long-term planning; conditions set by donors on received support from any UN entity for their women,
funding; and problems associated with civil society peace and security work.

Proportion of respondents who selected each of the following categories in response to survey question: “Which
of the UN agencies have been most supportive of your work on WPS initiatives?” (Multiple choices possible)68

UN Women 63%
UN Development Programme / UN Country Team 26%
Office of the High Commissioner for Human Rights 18%
United Nation Population Fund 16%
UNICEF 16%
Other 14%
None 10%
UN Department of Peacekeeping Operations 9%
Office of the UN High Commisioner for Refugees 8%
Did not answer 7%
UN Department of Political Affairs 5%
UN Office for Disarmament Affairs 4%
Office for the Coordination of Humanitarian Affairs 4%
World Food Programme 3%

0% 20% 40% 60% 80% 100%

384 Chapter 13. Financing WPS

Barriers to accessing resources and we have to promise them that we will pay
them next week… Sometimes we are taking loans
In addition to limited funding, new challenges in from other people just to cover our expenses. The
accessing resources have emerged as a result of banks should have a special system for dealing
evolving global trends and threats. In early 2015 the with NGOs, especially when they also provide
Women Peacemakers Program (WPP), together with humanitarian services.”72
Human Security Collective (HSC) contacted partners
in ten countries to gain insight into the multiple ways Other challenges to access funding have to do with
the counter-terrorism agenda is affecting their work for donors increasingly preferring to channel funds via large
peace and women’s rights.69 Responses show that post organizations capable of producing grant proposals
9/11 counter-terrorism measures have impacted civil according to their demanding guidelines, as well as able
society’s operational and political space in several ways. to absorb rigorous reporting and auditing requirements.73
Several respondents reported that their governments are
trying to control, limit, or stop critical civil society work
through the development of new NGO legislation, as Multilateral sources of funding
recommended by the Financial Action Task Force (FATF)
in its Anti-Money Laundering/Countering Financing Special Funds such as the UN Trust Fund to End
of Terrorism standard.70 This new legislation, in some Violence against Women, the UN Fund for Gender
cases, puts restrictions on receiving funding support. For Equality,74 and the UN Fund for Action Against Sexual
example, a 2013 study by the Office for the Coordination Violence in Conflict,75 have been important multilateral
of Humanitarian Affairs and the Norwegian Refugee sources of support for work on gender equality,
Council showed that counter-terrorism measures adopted women’s rights and empowerment. While these funds
or expanded by donor States over the past decade have are supporting a growing number of projects in conflict
had negative impacts including halts and decreases in and post-conflict settings, a sizable gap exists between
funding; blockage or suspension of programmes; and available funds and demand, funding to address the
limitations on financial transactions.71 However, it is gap for women’s organizations in particular before ODA
too infrequently acknowledged that such anti-terrorism flows resume, and funding which specifically addresses
financing rules have a particular—and in many cases— the challenges associated with the specific application
additional adverse impact on women and women’s to the women, peace and security agenda as a whole,
organizations. As noted by one respondent from the in particular women’s leadership and participation
Middle East and North Africa region: elements, and a focus on civil society.

“Sometimes we are facing difficulties during the In response, the Global Acceleration Instrument on
money transfer process, it takes a long time for Women, Peace and Security and Humanitarian Action
us to receive the funds, and some correspondent has been established—a new multi-stakeholder initiative
banks reject the amount. Recently a new system by Member States, UN entities and civil society that
has been introduced: there is a limit on the amount holds a promise for dedicated and scaled-up financing
we can withdraw on a weekly basis from the bank. for the implementation of the women, peace and security
This means we cannot pay all our organizational agenda. Beyond financing, the instrument will act as
expenses on time, such as staff salary, rent, activity a collective platform for coordination, knowledge and
expenses… Everyone is calling us for their money, experience exchange.
 385

FOCUS ON

Global Acceleration Instrument on Women, Peace and Security and Humanitarian Action

To address the stark financing gaps long recognized financing mechanism that supports quality interventions
as a major obstacle to the implementation of the that respond to shifting contexts and the sudden onset
women, peace and security agenda as well as women’s of both crises and emergencies. It will also strengthen
engagement in humanitarian action, a Women, Peace the capacity of civil society to seize key peacebuilding
and Security Financing Discussion Group (FDG) was opportunities. The fund aims to bridge the funding gaps
established in June 2014. Composed of representatives that occur between the signing of a peace agreement
from donors, conflict-affected Member States, UN entities and the resumption of ODA flows—a critical period
and civil society, this unique multi-stakeholder body when a country is rebuilding for the future, but lacking
met over the course of a year to consider strategies for the necessary financial resources to do it. Investing in
dedicated and scaled-up financing support. women’s organizations and civil society in this crucial
period has been shown to support inclusivity and nation-
After exploring a number of options and mapping building and increase the peace dividends across a
existing financing instruments, the FDG agreed to broader constituency of society.
support the establishment of a Global Acceleration
Instrument (GAI) on Women, Peace and Security and The GAI will feature a multi-stakeholder governance
Humanitarian Action, a pooled funding mechanism that structure that allows Member States, civil society and
aims to re-energize action and stimulate a significant shift the UN to participate in decision-making on an equal
in the financing for women’s participation, leadership and footing, to demonstrate transparency and effectiveness
empowerment in crisis response, and peace and security of collective and consultative strategic planning and
settings.76 The new fund will be a flexible and rapid resource utilization.
386 Chapter 13. Financing WPS

RECOMMENDATIONS

Moving progress beyond 2015: Proposals for action

Member States, the UN and civil society should: the design, costing and implementation of all
interventions in conflict-affected contexts.
✓ Set specific numerical targets such as the UN
target of allocating 15 per cent of peacebuilding
funds to projects whose principal objective is to Donor States and groups should:
address women’s specific needs and advance
gender equality. ✓ Adopt the UN’s 15 per cent gender-funding target
for peacebuilding interventions within their own
✓ Establish systems across all financing actors to aid flows to conflict-affected contexts, with this
promote transparency and accountability, by tracking percentage being the first, not final, target.
whether financial allocations further gender equality
in a fully comparable manner, including in peace,
security and emergency contexts. To achieve this, Civil society should:
build the capacity of all actors to monitor and
evaluate the impact of funding. ✓ Improve coordination of donors’ aid activities
to ensure a more even distribution of gender
✓ Increase predictable, accessible and flexible equality-focused aid across all fragile states and
funding for women’s civil society organizations economies.
working on peace and security at all levels,
including through dedicated financing instruments ✓ Significantly increase allocations to dedicated
such as the new Global Acceleration Instrument financial mechanisms that promote gender
on Women, Peace and Security and Humanitarian equality, women’s human rights and
Action. empowerment, such as the UN Fund for Gender
Equality, the UN Trust Fund to End Violence
✓ Support women’s participation in donor Against Women, the UN Fund for Action Against
conferences to ensure interventions appropriately Sexual Violence in Conflict (UN Action) and
target the needs of women on the ground. the new Global Acceleration Instrument on
Women, Peace and Security and Humanitarian
Engagement.
✓ Build the capacity of national governments in
fragile and conflict-affected settings to undertake
gender-responsive budgeting and ensure ✓ Revise the structure of budgeting from being
coherence of national planning with gender ‘project’ based to be aimed at long-term capacity
equality objectives. building, not only of State entities but also of non-
State entities.
✓ Undertake participatory gender and conflict risk
analysis (including vulnerability analysis) to inform
 387

The UN should: ✓ Allocate US 100 million or a symbolic 1 per cent of

the value (whichever is higher) of the total budget for
✓ Accelerate efforts to attain and then surpass the peace operations to the Peace Building Fund;78 and
Secretary-General’s 15 per cent ‘gender marker’ further ensure that, of this contribution, a minimum of
for financing of peacebuilding approaches that 15 per cent is allocated to peacebuilding approaches
promote gender equality. Its achievement should that promote gender equality.
be written into the Secretary-General’s performance
compacts with senior UN leaders on the ground, in
mission and non-mission settings, and backed up
with an enhanced system for monitoring and tracking
achievement.77
388 Chapter 13. Financing WPS

REFERENCES
1. This was echoed in the Secretary General’s 2014 report Contexts,” 1.
on the issue. “Report of the Secretary-General: Women
13. Ibid. Guidelines for marking as principal or significant
and Peace and Security,” UN Doc. S/2014/693 (United
objective available at: http://www.oecd.org/investment/
Nations Security Council, September 23, 2014), para. 78.
stats/37461060.pdf.
2. “A New Deal for Engagement in Fragile States: 4th
14. Ibid.
High-Level Forum on Aid Effectiveness” (Busan, Korea:
International Dialogue on Peacebuilding and Statebuilding, 15. Data provided by Canada to the Global Study.
December 29, 2011). A strong call for accelerating
16. “Financing UN Security Council Resolution 1325: Aid in
investments in support of gender equality was also made
Support of Gender Equality and Women’s Rights in Fragile
in the lead up to the Third International Conference on
Contexts,” 5.
Financing for Development held in Addis Ababa in July
2015. 17. Afghanistan, Ethiopia, Bangladesh, Pakistan, Kenya, Nepal,
Democratic Republic of the Congo, South Sudan. See,
3. “States of Fragility 2015: Meeting Post-2015 Ambitions”
Ibid.
(OECD, June 2015).
18. “World Development Report 2011: Conflict, Security and
4. See, e.g., “Secretary-General’s Report on Women and
Development” (World Bank, 2011), 25, 194.
Peace and Security (2014).”
19. “Making Development Co-Operation More Effective: 2014
5. See, e.g., “Report of the Secretary-General: Review and
Progress Report” (Organisation for Economic Co-operation
Appraisal of the Implementation of the Beijing Declaration
and Development (OECD), United Nations Development
and Platform for Action and the Outcomes of the Twenty-
Programme (UNDP), April 3, 2014), 24.
Third Special Session of the United Nations General
Assembly,” UN Doc. E/CN.6/2015/3 (United Nations 20. However, education still remains one of the least financed
Economic and Social Council, December 15, 2014); sectors when it comes to humanitarian aid appeals. In
“In-Depth Study on All Forms of Violence against Women: 2013, only 2 per cent of funds from humanitarian appeals
Report of the Secretary-General,” UN Doc. A/61/122/ went to education and only 40 per cent of education-
Add.1 (United Nations General Assembly, November 17, related funding requests were met, compared with 86 per
2006). cent for the food sector and 57 per cent for the health
sector. See, “Education for All 2000-2015: Achievements
6. “States of Fragility 2015: Meeting Post-2015 Ambitions,”
and Challenges” (United Nations Educational, Scientific
18.
and Cultural Organization (UNESCO), 2015), 275.
7. “Secretary-General’s Report on Women and Peace and
21. Notably, in May 2015 the DAC introduced a new purpose
Security (2014),” box 19.
code in its statistical system to track aid in support of
8. Ibid., box 20. ending violence against women and girls. This will be
essential for monitoring bilateral donors’ efforts in support
9. See, “Preparatory Process for the 3rd International
of the elimination of violence against women, including in
Conference on Financing for Development: Elements”
fragile settings.
(United Nations, January 21, 2015), 5. Aid for trade is
another financing tool that could help promote relief, 22. “Financing UN Security Council Resolution 1325: Aid in
recovery, stability and support women’s economic Support of Gender Equality and Women’s Rights in Fragile
empowerment in fragile settings. Contexts,” 7.
10. “Financing UN Security Council Resolution 1325: Aid in 23. “Financing UN Security Council Resolution 1325: Aid in
Support of Gender Equality and Women’s Rights in Fragile Support of Gender Equality and Women’s Rights in Fragile
Contexts,” Submission to the Global Study (Organisation Contexts.” According to the DAC definition, the category
for Economic Co-operation and Development (OECD), “conflict prevention and resolution, peace and security”
Development Assistance Committee Network on Gender includes: security system management and reform;
Equality (GENDERNET), March 2015), 1. List of OECD- civilian peace-building, conflict prevention and resolution;
DAC members available at: http://www.oecd.org/about/ participation in international peacekeeping operations;
membersandpartners/. When quoting OECD-DAC figures, reintegration and small arms and light weapons control;
the word “aid” refers to bilateral sector-allocable official removal of land mines and explosive remnants of war; and
development assistance allocated by DAC members only. child soldiers (prevention and demobilization).Sucharita
S.K. Varanasi, “Using Technology to End Impunity for Mass
11. In analysis of OECD-DAC data “aid” refers to bilateral
Atrocities, Including Rape,” International Justice Monitor,
sector-allocable ODA.
May 26, 2015, http://www.ijmonitor.org/2015/05/using-
12. “Financing UN Security Council Resolution 1325: Aid in technology-to-end-impunity-for-mass-atrocities-including-
Support of Gender Equality and Women’s Rights in Fragile rape/.
 389

24. Ibid., 7. interventions. The four categories, as defined by ADB,

are: I) “gender equity as a theme”, II) “effective gender
25. Data for OECD-DAC aggregates provided the DAC
mainstreaming”, III) “some gender elements” and IV) “no
Network on Gender Equality (GENDERNET).
gender elements.”
26. “States of Fragility 2015: Meeting Post-2015 Ambitions,”
41. “Operationalising Gender Mainstreaming at the African
14. 25, 74.
Development Bank Group” (African Development Bank,
27. See, “States of Fragility 2015: Meeting Post-2015 November 24, 2014).
Ambitions.” A number of non-DAC providers have
42. Ibid., fig. 4.
increased development co-operation and investment in
fragile situations. 43. See, e.g., Carla Koppell and Jacqueline O’Neill, “Gender
Symposia during Donor Conferences: A Model to
28. “Trends and Profiles of Other Providers’ Development
Guarantee Women Leaders a Voice in Setting Priorities for
Co-Operation,” in Development Co-Operation Report
Reconstruction” (Institute for Inclusive Security, November
(Organisation for Economic Co-operation and Development
2009); Tobie Whitman, “Increasing Women’s Participation
(OECD), 2014), 381–96.
and Engagement in Planning for Peace: The 2011 Gender
29. Data sourced from: http://www.oecd.org/dac/stats/ Symposium and International Engagement Conference
turkeys-official-development-assistanceoda.htm. (IEC) for South Sudan,” in UN Women Sourcebook on
Women, Peace and Security (UN-Women, 2012).
30. Data sourced from: http://www.oecd.org/dac/dac-global-
relations/uae-official-development-assistance.htm. 44. Data sourced from: http://adb.org/projects/
search/48419,21303?keyword=.
31. “A New Deal for Engagement in Fragile States: 4th High-
Level Forum on Aid Effectiveness.” 45. “Report of the Secretary-General: Women’s Participation
in Peacebuilding,” UN Doc. A/65/354-S/2010/466
32. For more information on civil society mobilizing in
(United Nations General Assembly, United Nations Security
Afghanistan and South Sudan, see “Integrating Gender
Council, September 7, 2010), para. 33.
into the New Deal for Engagement in Fragile States,” Policy
Paper (Cordaid, December 2012), 21–27. 46. Afghanistan, Sudan/Darfur, Libya, South Sudan, Yemen,
Burundi, Syria, Somalia, Mali, Central African Republic,
33. “Fragility, Conflict and Violence Overview,” The World
and Palestine. Data gathered by UN Women for the Global
Bank, accessed September 10, 2015, http://www.
Study.
worldbank.org/en/topic/fragilityconflictviolence/overview.
47. Koppell and O’Neill, “Gender Symposia during Donor
34. Ibid.
Conferences: A Model to Guarantee Women Leaders a
35. “Update on the Implementation of the Gender Equality Voice in Setting Priorities for Reconstruction,” 1–2.
Agenda at the World Bank Group,” Submission to the
48. “UN-SWAP: An Accountability Framework to Mainstream
Global Study (The World Bank, August 14, 2014), para.
Gender Equality and the Empowerment of Women across
18. These allocations are calculated as International Bank
the UN System” (UN Women, 2015), 8.
for Reconstruction and Development (IBRD) + IDA.
49. Data is reported annually in the report of the Secretary-
36. Ibid., para. 8. Gender informed operations, according to
General on women and peace and security.
the World Bank definition, are those that address gender in
the analysis, actions or monitoring of the projects with sex 50. The Inter-Agency Standing Committee (IASC) is the
disaggregated and other indicators. primary mechanism for inter-agency coordination of
humanitarian assistance.
37. Data in this paragraph sourced from: https://finances.
worldbank.org/dataset/Monitoring-Gender-Mainstreaming- 51. UNDP’s proportion of allocations targeting gender
In-World-Bank-Lend/cfwt-ypej. equality as a principal objective in conflict and post-
conflict countries has largely remained constant since
38. Data sourced from: https://finances.worldbank.org/
2011, standing at 4.2 per cent of funds in 2014. In the
dataset/Monitoring-Gender-Mainstreaming-In-World-Bank-
case of UNICEF, the proportion of interventions reached
Lend/cfwt-ypej.
19 per cent in 2014, a substantial increase from 11 per
39. “Gender and Development Projects and Initiatives,” Asian cent in 2011, although their marking methodology is
Development Bank, accessed September 10, 2015, http:// substantially different and comparisons with other actors
www.adb.org/themes/gender/projects. are discouraged. UNFPA’s first gender marker analysis
indicates that 11.6 per cent of their interventions have
40. Data in this paragraph sourced from: http://adb. gender equality as a principal objective. In absolute terms,
org/projects/search/48419,21303?keyword=. For UNDP is the entity that reports having funded the largest
accountability purposes, ADB follows a 4-tier gender volume of interventions targeting gender equality in conflict
categorization system to assess the gender focus of and post-conflict settings as a principal objective, a total
390 Chapter 13. Financing WPS

of USD 71.7 million. Of this amount, USD 13.6 million 64. Ibid.
were allocated towards improving women’s livelihoods
65. Ibid.
and jobs, including interventions to promote women’s
access to credit and assets, and facilitating vocational 66. Findings based on 317 completed surveys from 72
training, mentoring and networking activities. Other areas countries and 16 focus group discussions collected
receiving significant attention included access to justice, between February and March 2015. DataData in this
redress and citizen security (USD 7.2 million) and legal paragraph sourced from: “Global Report: Civil Society
assistance to women victims of sexual violence, including Organization (CSO) Survey for the Global Study on
related awareness building activities (USD 5.6 million). In Women, Peace and Security: CSO Perspectives on UNSCR
comparison, UN Women’s field level programme expenses 1325 Implementation 15 Years after Adoption” (Global
in the areas of peace, security and humanitarian action Network of Women Peacebuilders, Cordaid, NGO Working
totalled just USD 17.75 million in 2014, of which the Group on Women, Peace and Security, International
largest amounts were received by the African and Asia Civil Society Action Network, July 2015); “Focus Group
Pacific regions with USD 6.88 million and USD 5.18 million Discussion Report for the Civil Society Organization
respectively. “Report of the Secretary-General: Women (CSO) Survey: Civil Society Input to the Global Study on
and Peace and Security,” UN Doc. S/2015/716 (United Women, Peace and Security” (Global Network of Women
Nations Security Council, September 17, 2015), para. 133. Peacebuilders, ICAN, NGO Working Group on Women,
Peace and Security, Cordaid, May 2015).
52. “Secretary-General’s Report on Women’s Participation in
Peacebuilding (2010),” para. 34–36. 67. This includes other forms of support beyond funding.
Data in this paragraph sourced from: “Global Report: Civil
53. The Peacebuilding Fund provides this data to UN Women
Society Organization (CSO) Survey for the Global Study
annually for inclusion in the report of the Secretary-General
on Women, Peace and Security: CSO Perspectives on
on Women and Peace and Security. See, “Secretary-
UNSCR 1325 Implementation 15 Years after Adoption.”
General’s Report on Women and Peace and Security
(2015),” para. 134. 68. Ibid.
54. UN entities provide this data to UN Women annually for 69. Isabelle Gueskens et al., “Counterterrorism Measures and
inclusion in the report of the Secretary-General on Women Their Effects on the Implementation of the Women, Peace
and Peace and Security. See, “Secretary-General’s Report and Security Agenda,” Submission to the Global Study
on Women and Peace and Security (2015),” para. 133. (Women Peacemakers Program, March 12, 2015).
55. “The Challenge of Sustaining Peace,” UN Doc. 70. The Financial Action Task Force on Money Laundering
A/69/968–S/2015/490 (Advisory Group of Experts for (FATF) is an intergovernmental body that was established
the 2015 Review of the United Nations Peacebuilding during the 1989 G7 Summit. Its objectives are to set
Architecture, June 29, 2015), para. 81–82, 182. standards and promote effective implementation of legal,
regulatory and operational measures for combating money
56. Ibid., 9–10.
laundering, terrorist financing and other related threats
57. Data provided by the UN Inter-Agency Standing to the integrity of the international financial system. The
Committee. FATF currently consists of thirty-four member jurisdictions
and two regional organizations (the EU and the Gulf
58. “Funding Gender in Emergencies: What Are the Trends?,” Co-operation Council). Its Secretariat is housed at the
Briefing Paper (Global Humanitarian Assistance, headquarters of the OECD in Paris.
September 2014).
71. Kate Mackintosh and Patrick Duplat, “Study of the Impact
59. Based on approved resources for the period from 1 July of Donor Counter-Terrorism Measures on Principled
2014 to 30 June 2015. Humanitarian Action” (United Nations Office for the
60. “States of Fragility 2015: Meeting Post-2015 Ambitions,” Coordination of Humanitarian Affairs (OCHA), Norwegian
76. Refugee Council, July 2013); “Activities of the United
Nations System in Implementing the United Nations Global
61. “Implementation of the United States National Action Plan Counter-Terrorism Strategy,” UN Doc. A/68/841 (United
on Women, Peace, and Security” (USAID, August 2012), Nations General Assembly, April 14, 2014), para. 96.
12.
72. Gueskens et al., 5.
62. “Financing UN Security Council Resolution 1325: Aid in
Support of Gender Equality and Women’s Rights in Fragile 73. “Global Report: Civil Society Organization (CSO) Survey
Contexts,” 8. for the Global Study on Women, Peace and Security: CSO
Perspectives on UNSCR 1325 Implementation 15 Years
63. Angelika Arutyunova and Cindy Clark, “Watering the Leaves, after Adoption,” 81.
Starving the Roots: The Status of Financing Women’s Rights
Organizing and Gender Equality” (Association for Women’s 74. Both managed by UN Women.
Rights in Development, 2013), 17. 75. Managed by the Secretariat of UN Action to End Sexual
 391

Violence in Conflict with the Multi-Partner Trust Fund Office have worked with UN Women on the establishment of the
of the United Nations Development Programme (UNDP) WPS Financing Discussion Group and the GAI.
serving as the Administrative Agent.
77. “Report of the Advisory Group of Experts for the 2015
76. Cordaid and the Global Network of Women Peacebuilders Review of the United Nations Peacebuilding Architecture
have conducted research and advocated for dedicated (2015),” para. 182.
funding for the implementation of UNSCR 1325 and the
78. Ibid., para. 171.
supporting resolutions on WPS since 2010. Together, they
392 Chapter 14. Guidelines and Recommendations

14
 393

GENERAL
GUIDELINES AND
RECOMMENDATIONS
394 Chapter 14. Guidelines and Recommendations

These general guidelines and recommendations MUST BE PROACTIVE WITH REGARD TO

are meant to guide policy direction and be used for WOMEN’S PARTICIPATION: THE PRESENCE
advocacy by Member States, international organizations OF WOMEN MAKES PEACE SUSTAINABLE
and civil society. Detailed technical recommendations
are included at the end of each chapter with particular Research confirms that women’s participation has a
relevance to the specific themes covered. direct and positive impact on negotiations and the
sustainability of peace processes. International mediators
and leadership at the field level must make every effort to
1. NO TO MILITARIZATION: YES TO ensure the participation of women in every process and
PREVENTION sector, as outlined in Chapter 3: Women’s Participation.
What is ‘political’ in any given context must be interpreted
The emphatic conclusions of women in consultation in an inclusive manner involving extensive consultations
for the Global Study from all over the world were with women’s groups participating in ‘track 2’ activities
that there must be an end to the present cycle as well as civil society as a whole.
of militarization, with its unprecedented levels of
military spending, and that armed intervention by
the international community and Member States 4. PERPETRATORS MUST BE PUNISHED
must only be the last resort. Instead, the focus of all AND JUSTICE MUST BE TRANSFORMATIVE
stakeholders should be on the prevention of conflict
through the short-term and long-term measures The struggle against impunity for crimes against women
outlined in Chapter 8: Prevention of Conflict. Strategic must continue with a greater emphasis on national
planning with regard to prevention should be a priority prosecutions. And yet, these incidents do not take place
at the international, regional and national level, and in a vacuum and a strategy of transformative justice that
adequate resources should be channelled so that recognizes the importance of reparations, truth seeking,
these strategies are realized in the field. memorialization and reconciliation must also be present to
allow communities to heal after a period of intense warfare.

2. WOMEN, PEACE AND SECURITY MUST

BE RESPECTED AS A HUMAN RIGHTS 5. LOCALIZATION OF PEACEBUILDING
MANDATE PROGRAMMES MUST INVOLVE THE
PARTICIPATION OF WOMEN AT EVERY
When civil society moved the Security Council to take LEVEL AND BE SUPPLEMENTED BY A
action on women, peace and security in 2000, it was COMPREHENSIVE SECURITY PLAN TO
understood that the concerns expressed would always PROTECT WOMEN AND GIRLS IN THE
be interpreted within the framework of international AFTERMATH OF CONFLICT
human rights. Therefore, the agenda of 1325 should
not be ‘securitized’ and women should never be used Peacebuilding after conflict must respect the specificities
as instruments in any military strategy. Their agency of the local context, and ‘localization’ should be a major
must be respected and their autonomy and concerns policy directive of international actors going to the field.
should be the priority. Women peacebuilders in the To be truly sustainable, any strategy for peacebuilding
field should be empowered to choose their priorities must be inclusive and women must participate in the
and determine their own strategies. design, formulation and implementation of relevant
programmes. At the same time, without a proper
rule of law system in place in post-conflict situations,
3. MEDIATORS OF PEACE PROCESSES violence against women intensifies while both drug and
AND LEADERSHIP OF UN FIELD MISSIONS human trafficking become major concerns. A security
 395

plan, assisted by the international community, must be has been done in Africa and Europe—regional envoys
implemented in the immediate aftermath of conflict to should be appointed who will advocate for and promote
protect women and girls. strategies on women, peace and security.

6. FUNDING WOMEN PEACEBUILDERS c. Media:

AND RESPECTING THEIR AGENCY IS
ONE IMPORTANT WAY OF COUNTERING Media organizations, both public and private, should be
EXTREMISM encouraged to advocate for and give visibility to issues
relating to women, peace and security. In addition,
The rise in specific forms of violent extremism remains they should respect a code of ethics that proscribes
a cause of concern for everyone who believes in hate speech and the stereotyping of women and their
human rights, women’s rights, and democracy. The communities.
need to counter this extremism cannot be underscored
enough. However, military responses alone will
not succeed and may force women into difficult or d. Civil society:
ambivalent positions. Since there is a correlation
between women’s rights and a lack of extremism in Civil society was the prime mover behind the original
any given society, women should mobilize nationally, women, peace and security agenda and remains the
regionally and internationally, but the leadership and main driver of this issue at the national, regional and
agency must rest with the affected women themselves. international level. It is important that these organizations
Significantly more funding and resources should be receive adequate funding and support. Their voices must
given to these women peacebuilders, with their better be heard by the international community through setting
understanding of local realities and expectations, up advisory boards both at headquarters and in the field
so that they can fight for their rights and their to ensure that the WPS agenda retains its dynamism and
communities. Only networks of women peacebuilders impact.
and mediators at the local, national, regional and
international level will help stem the tide of violence.
e. Youth:

7. ALL KEY ACTORS MUST PLAY THEIR ROLE Young people must be more involved in women, peace
and security issues at the national, regional and global
level. They are our future, and we must listen to their
a. Member States: voices and involve them in stopping war and healing
communities.
All Member States should be encouraged to prepare
national plans on women, peace and security. The
new architecture at UN Women proposed in this 8. TOWARD A WELL-INFORMED SECURITY
Study should create a mechanism for monitoring and COUNCIL THAT APPLIES A GENDER LENS
reporting on national action plans. TO ALL ISSUES THAT COME BEFORE IT

The Security Council, in a historic moment, adopted

b. Regional organizations: resolution 1325 on women, peace and security and,
thereafter, agreed further resolutions on this issue.
All regional organizations should have strategic planning Chapter 11: The Security Council in this Study
on women, peace and security and, where possible—as outlines in detail some specific recommendations with
396 Chapter 14. Guidelines and Recommendations

regard to the way forward, in particular the creation of iii. There should be a senior gender advisor at a
an ‘informal expert group’ of the Council that would be D1 level in the office of every SRSG, with hybrid
briefed on a regular basis by the Secretariat and other technical gender experts in thematic units.
stakeholders. This will ensure the sustained attention of
the Council on the women, peace and security agenda. iv. UN Women, DPKO and DPA should jointly
provide technical, political and policy expertise to
the gender staffing of peacekeeping and special
9. ACROSS THE BOARD, 15 PER CENT OF political missions.
ALL FUNDING FOR PEACE AND SECURITY
TO BE EARMARKED FOR PROGRAMMES
IMPACTING WOMEN b. At headquarters:

The financing of the WPS agenda remains a concern, i. There should be discussion with all stakeholders
and detailed facts are presented in Chapter 13 on the with regard to the feasibility of setting up an
shortfall in financing. All practitioners in the field were International Tribunal for Sexual Exploitation and
in agreement: Member States, regional organizations Abuse by UN peacekeepers and UN staff in the field.
and the UN should commit to earmarking a minimum
of 15 per cent of all funding relating to peace and ii. The gender advisor posts and capacity in DPA
security, for programmes whose principal objective is to and DPKO should be strengthened.
address women’s specific needs and advance gender
equality, including in peacemaking, peacekeeping and iii. An Assistant Secretary-General, with adequate
peacebuilding in post-conflict societies. resources, should be appointed at UN Women
to deal with crises, conflict and emergencies,
after a full re-appraisal of UN Women’s work in
10. TOWARD A STRONG GENDER headquarters and the field on women, peace and
ARCHITECTURE AT THE UNITED NATIONS security. This re-appraisal should be independent
and include consultation with civil society at
Throughout the Study there are recommendations for headquarters and in the field. The mandate of the
the United Nations system with regard to women, peace Assistant Secretary-General should include:
and security. Key recommendations are the following:
1. Driving implementation of recommendations and
field-level programmes described in this Study.
a. In the field:
2. Advocating for women’s rights in emergency
i. Where relevant and appropriate, and following the situations.
re-appraisal described in 10(b)(ii) below, UN Women
offices should be set up in countries affected by 3. Setting up an institutional structure within UN
conflict, and fund and support local level women’s Women to deal with emergency situations.
groups and women peacebuilders.
4. Attending, when the Executive Director of UN
ii. The mandates of Resident Coordinators and/ Women is unavailable, all headquarter meetings
or Special Representatives of the Secretary-General in New York and Geneva on peace, security and
(SRSG) should be rewritten to make women, peace and humanitarian situations.
security a strong priority in their work.
 397

A CALL TO ACTION
In all previous generations, when the world
was at war, where there was increased
militarization and terrible violence, women
have come forward as peacemakers and
peacebuilders. Today is no exception. It still
happens at the local level, whether in Syria
or the DRC. The international world, by
embracing ‘celebrity culture’ has forgotten
these women, and allows them to remain
invisible. It is important to turn the spotlight
again onto these women peacebuilders, to
support and fund their efforts. Networks
must be created at the local, regional and
international level, so that their voices and
activities can reach a climax and stem the
current tide of recurrent militarization and
mindless violence.
398

ANNEX I.
FULL LIST OF TECHNICAL RECOMMENDATIONS

WOMEN’S PARTICIPATION AND A BETTER UNDERSTANDING OF THE POLITICAL

The UN should: ✓ Commit to mediate between women’s organizations
and dominant national political leaders to encourage
✓ Include a specific responsibility drafted into the national political actors, including leaders of belligerent
Terms of Reference of every mediator and envoy, parties, to include women in their delegations and
every SRSG and Deputy SRSG, to advance to address women’s concerns in their negotiations.
women’s engagement in national decision-making Member states in contact groups supporting specific
processes, and specifically all aspects of conflict peace processes could offer the negotiating parties
resolution, power-sharing, national dialogue and various incentives to do this—training, logistical
reconciliation. support, or adding delegate seats for example.

✓ Ensure that UN-appointed mediators and special ✓ Commit to include agenda items on women’s
envoys report on their consultations and outreach participation in meetings with Groups of Friends
to women’s groups in line with Security Council and other facilitators of national dialogue, including
resolution 2122 (2013). organizing meetings between representatives of
national women’s organizations and the Member
States making up Groups of Friends.
Member States, the UN, and the international
community should:
✓ For each process, develop and fund a strategy of
long-term support to build the capacity of women’s
✓ Ensure that all actors, mediators, Groups of Friends, networks to engage in political dialogue, strengthen
and parties to the conflict guarantee that women’s the gender awareness of mediators, facilitators and
participation in talks is equal and meaningful, and conflict parties, address practical issues that may
barriers to their participation, whether these exist in limit women’s engagement—from granular details
law or in practice, are completely eliminated. such as procedures for circulation of agenda and
materials to bigger issues like the use of local
✓ Desist from any use of observer status as a languages, and protect women activists from
substitute for real and effective participation. Women potential backlash.
should not be on the sidelines observing, but an
integral part of negotiations and decision-making on ✓ Advocate for and support inclusive and transparent
the future of their country. selection criteria for women at negotiations or
beyond, including, for example, by ensuring women’s
✓ Invest in developing tools that examine the gendered participation in the leadership committees of peace
impacts of various outcomes of peace talks, whether talks, national dialogues, and consultative forums;
they be federalism, constitution making, transitional and creating formal mechanisms to transfer women’s
justice, power sharing, or cease fire provisions. demands to the negotiation table.
 399

✓ Support women’s engagement and participation not ✓ Commit to raise, as a matter of course and routine,
just in peace talks, but in preventive diplomacy and specific gender issues for inclusion in ceasefires and
the monitoring and implementation of agreements. peace talks, such as the prevention of sexual violence,
This should be extended to both the preparatory justice for gender crimes, temporary special measures
and implementation phases of peace processes and for women’s political engagement, specific gender
political transitions, rather than limited to a given quotas in the leadership of post-conflict commissions
round of negotiations or national dialogue. to implement the peace accord, and gender-specific
provisions in administrative and economic recovery
arrangements (including women’s land access
Member States should: and property rights). For example, military power
sharing should focus not just on merging armies and
✓ Increase the number of women in their foreign command structures, but also putting in place rights
service and national security establishments, and protections, civilian and democratic accountability, and
take steps to ensure that women diplomats are ensuring women’s representation throughout. Territorial
engaged in leadership roles in conflict resolution. power-sharing should include protection for women’s
rights and participation at the sub-national level, with
attention paid to the relationship between women’s
Mediators and Special Envoys should: rights and local customary and traditional laws.

✓ Assume a specific responsibility to advise all parties ✓ Commit to include a gender advisor on the mediation
to dialogue/peace talks/constitutional reform about team as well as to include women who are experts in
the value of temporary special measures to increase political analysis and other areas covered by the team.
the numbers of women on negotiating parties. At
the same time, the mediator/envoy’s office must ✓ Recognize that women’s participation does not mean
advise national women’s organizations of the range that they are solely responsible for women’s issues,
of temporary special measures available and their but that they are allowed to participate and be
effectiveness in other contexts. decision-makers on the full range of issues involved
in the peace process.
✓ Commit to meet with representatives of a cross-section
of women’s organizations within the first 30 days of ✓ Commit to ensure that technical experts on a
any deployment, and to follow this with periodic (at mediators’ team are trained on the gender-related
least four times a year), scheduled, and minuted aspects of their technical area, and that these technical
meetings. These meetings should be used not only to experts themselves have the relevant technical
hear women’s perspectives on conflict resolution, but knowledge on the impact of women’s participation and
also to provide women’s groups with information about the skills to support effective inclusion.
opportunities to engage in upcoming dialogue, donor
conferences, and informal and formal peace processes.

PROTECTING AND PROMOTING THE RIGHTS AND LEADERSHIP OF WOMEN AND GIRLS IN
HUMANITARIAN SETTINGS
Member States should: to life, health, education, property and livelihood—
and remove discriminatory laws and regulations that
✓ Remove discriminatory laws and regulations that impede full equality in accessing basic rights and
impede full equality in accessing basic rights and services, including the right to nationality.
services during and after conflict—including the rights
400

Member States and the UN should: production of new tools, strategies, guidelines and
advocacy campaigns from capitals in donor countries.
✓ Ensure that preparations for and outcomes of the
2016 World Humanitarian Summit have gender
equality and women’s human rights as a focus area The UN and NGOs should:
as well as integrated throughout the other themes.
✓ Commit to create a humanitarian workforce that is 50
per cent women and 100 per cent trained in gender
Donors, including Member States and private equality programming and the protection of women’s
foundations, should: human rights.124

✓ Expressly mandate that all programmes adopt and

apply the Gender Marker and relevant IASC guidance The UN should:
on gender and gender-based violence interventions
in humanitarian settings throughout the entire project ✓ Ensure that UN Women is a member of all relevant
cycle and require it in all funding applications. high-level inter-agency forums on peace and security
and humanitarian response, including the IASC and the
✓ Increase current levels of targeted funding for Senior Advisory Group on peace and security, to ensure
women’s and girls’ programming to a minimum of 15 a gender perspective is mainstreamed throughout the
per cent. Current levels of approximately 1 per cent UN’s response in conflict and emergencies.
funding for local women’s organizations, including
women’s human rights defenders, should be
increased until they reach at least 5 per cent in the All relevant actors, including Member States, the
next three years, before setting progressively more UN, donors, and civil society, should:
ambitious targets in the following years. Funding for
core operations, advocacy and capacity building ✓ Ensure that all global humanitarian and local health-
should match funding for projects.123 care workers are trained in basic life-saving sexual
and reproductive health care, in accordance with
✓ Fund the establishment of an independent international human rights standards, as well as
monitoring mechanism run by women’s civil society emergency response for survivors of domestic and
groups and women’s human rights defenders to sexual violence, including emergency contraception
track the compliance of humanitarian assistance and abortion/post-abortion services. Increased
with normative frameworks and standards investment must be made in local health systems’
and international human rights law as well as ability to provide quality sexual and reproductive health
performance on gender equality—from the collection and care for survivors and to put in place referral
of sex-disaggregated data and gender-sensitive pathways to specialist care in all fragile settings.
analysis to the systematic application of the Gender
Marker and the engagement of local women.
✓ Ensure that women affected by humanitarian crises,
including refugees, internally displaced and stateless
✓ Invest in translating all relevant tools on sexual and women, are supported to participate meaningfully
reproductive health and prevention and response and equally in community decision-making, in
to sexual and gender-based violence into local leadership roles and in the design, implementation,
languages to ensure local engagement and monitoring and evaluation of humanitarian
sustainability. Translations and long-term capacity interventions. Obstacles to their participation should
building should be prioritized over the repetitive be addressed within programme design.
 401

TOWARD AN ERA OF TRANSFORMATIVE JUSTICE

Member States, the UN and civil society should: TRANSITIONAL JUSTICE
Member States and the UN should:
✓ Adopt a transformative justice approach to
programming for women’s access to justice, ✓ Invest in the design and implementation of gender-
including by developing interventions that support sensitive transitional justice measures that recognize
legal orders to challenge the underlying socio-cultural and respond to women’s experiences of conflict, and
norms and contexts of inequality that perpetuate their justice and accountability needs.
discrimination against women, and enable conflict-
related violations to occur. ✓ Prioritize the design and implementation of gender-
sensitive reparations programmes with transformative
✓ Ensure that accountability mechanisms mandated impact, including through implementing the Guidance
to prevent and respond to extremist violence have Note of the Secretary General on Reparations for
the necessary gender expertise to do so, in light of Conflict-Related Sexual Violence.
the escalating rate of deliberate attacks on women’s
rights, including SGBV, by extremist groups. ✓ Institute specific measures to ensure the active
participation of women and civil society organizations
in the design, implementation, monitoring and
PROSECUTIONS evaluation of transitional justice mechanisms, so as
Member States and the UN should: to guarantee that women’s experience of the conflict
is included, their particular needs and priorities are
✓ Invest in strengthening national justice systems met and all violations suffered are addressed.
to investigate and prosecute international crimes,
including SGBV, in accordance with the principle of
complementarity. This includes by: Members States and the UN should:

• Supporting legal frameworks that incorporate ✓ Invest in gender-responsive capacity building of the
definitions and elements of SGBV crimes, justice sector by:
procedures for victim and witness support
and provisions for reparations, in line with • Providing gender-sensitive training for all justice
international standards, including the Rome sector actors—especially those involved in justice-
Statute. related service delivery including traditional
leaders, health professionals and police.
• Working together and providing expertise to
ensure States have the technical capacity to • Supporting increasing the participation of women
investigate and prosecute conflict-related SGBV. at all levels in justice service delivery, across
both formal and informal systems, through
measures that can include quotas and support to
Civil society should: women’s legal education, including scholarships.

✓ Advocate for State ratification and domestic

implementation of the Rome Statute; and adoption of Members States, the UN and civil society should:
national legislation in line with international standards
on women’s rights, including specific legislation on ✓ Collaborate on the design and implementation of
SGBV crimes. legal empowerment initiatives that build women’s
402

confidence and access to legal systems, and enable Member States should:
women to be active participants in navigating them.
✓ Ensure constitutional equality guarantees apply to
✓ Support grassroots women to lead and engage with all laws and justice systems, in line with international
traditional justice mechanisms. law.

KEEPING THE PEACE IN AN INCREASINGLY MILITARIZED WORLD

Member States should: to invest in the capacity of national peacekeeping
training centers for the largest troop contributing
✓ Set specific targets for the improved recruitment, countries, so that they become permanent features in
retention and promotion of women in their armed their pre-deployment training curriculum.
forces and the leadership of security institutions.
✓ Address impunity and lack of assistance for victims of
✓ Ensure that every soldier they deploy is thoroughly sexual exploitation and abuse by fully implementing
vetted, trained and held accountable for their actions, the recommendations of the High-Level Independent
including when they abuse or exploit women and girls. Panel on United Nations Peace Operations101 and the
Secretary-General’s recent annual report on sexual
exploitation and abuse.102 In addition:
✓ Commit to doctrines and planning that takes
into account the impact on women and girls of
every military deployment and operation, and that • Countries that repeatedly fail to live up to their
considers the use of unarmed military protection as written assurances to investigate and prosecute
a preferable or complementary protection method, their soldiers should not be allowed to contribute
where appropriate. troops to peacekeeping missions.

• If the United Nations has obtained prima facie

The UN, in collaboration with Member States, evidence of misconduct, the home country
should: of the alleged perpetrator should be under
the obligation to prosecute, and if they don’t,
✓ Encourage Member States to deploy more female they should be obligated to provide a detailed
military officers to UN peacekeeping missions by explanation of their findings.
adopting financial incentives, such as a gender-
balance premium. • The United Nations should empower an
independent commission of inquiry to conduct a
✓ Ensure gender-responsive budgeting and financial broad-based investigation on sexual exploitation
tracking of investments on gender equality in missions by and abuse and the handling of allegations by
requesting peacekeeping budget experts and planning both member states and the UN itself, including
officers, along with gender-responsive budget experts, to the failure to systematically apply many of the
review mission budgets and make a recommendation on powers that it already has to hold individuals
methodology and capacity needed.100 accountable for their actions.

✓ Ensure that all UN peacekeepers are provided • Consider engaging with States in support
scenario-based training on issues related to gender of establishing an international tribunal with
equality—from gender mainstreaming in peace jurisdiction to try UN staff and all categories of
operations to preventing and responding to conflict- peacekeepers that have allegedly committed
related sexual violence—by calling on Member States serious crimes, including sexual abuse.
 403

• Make concrete proposals on the ground about allegations of sexual exploitation and abuse.103
how to fund Victims Assistance Mechanisms and
render them operational, including from pooled ✓ Promote women’s empowerment and non-violent
funds in each country or from the operating means of protection, and take into account the
budget of the entities that employ the accused. whole range of women’s protection issues and the
interventions to address them—including women’s
✓ Take steps to improve regulation and oversight of leadership and women’s empowerment—in mission
all private contractors hired by the United Nations planning, implementation and reporting, as well as in
with regards to sexual exploitation and abuse. The policy discussions on the protection of civilians in the
UN should revise and fully implement guidelines to context of peace operations.
regulate these companies, including through permanent
or temporary debarment of companies from further ✓ Scale up their support to unarmed civilian protection
contracts and keeping a centralized register of (UCP) in conflict-affected countries, including working
companies whose staff have repeatedly been linked to alongside peace operations.

BUILDING INCLUSIVE AND PEACEFUL SOCIETIES IN THE AFTERMATH OF CONFLICT

Member States and the UN should: ✓ Design programmes with meaningful participation
and end-benefit in mind for rural women, widows and
✓ Ensure that all local level peacebuilding efforts are female heads of households.
preceded by mapping exercises to ascertain what
programmes are relevant for communities affected by ✓ Develop and use gender-sensitive tools that would
war, and which will most effectively empower women. map and analyze local contexts and markets to
There should not be a one-size-fits-all policy. implement livelihood activities that are locally
relevant, conflict sensitive, and that empower women
instead of further pushing them into poverty.
WOMEN’S ECONOMIC EMPOWERMENT
FOR PEACEBUILDING ✓ Develop guidance on post-conflict macroeconomic
Member States should: policies that take into account gender dimensions,
and prioritize public expenditure to reconstruct vital
✓ Consult with local women leaders, including women’s services for women.
human rights defenders, on concessions agreements
negotiated as part of post-conflict reconstruction ✓ Design economic recovery programmes and
efforts, and ensure a minimum level of 30 per cent macroeconomic policies in a gender-responsive
women’s representation in all decision-making bodies manner and evaluate their impact on women’s
with regards to the country’s natural resources. economic security and human rights.

The UN should: Member States and the UN should:

✓ Design programmes for economic recovery that ✓ Make effective and meaningful participation of
target women’s empowerment, challenge rather than women in decision-making and planning a condition
entrench gender stereotypes and are forward looking of any UN-supported economic recovery programme.
on the transformative role women can play in an
economy for the future.
404

✓ Design, implement and monitor economic recovery supported to develop capacity in gender-sensitive
programmes and macroeconomic policies in a data collection and the management of sex-
gender-responsive manner, and evaluate them for disaggregated data.
their impact on women’s economic security.
✓ Provide technical assistance to public administration
reform, to assist governments to implement schemes
WOMEN IN POST-CONFLICT GOVERNANCE to achieve gender parity in civil service.
Post-conflict Member States should:
✓ Facilitate grassroots women’s organizations
✓ Adopt legislative and policy measures to eliminate and women human rights defenders’ access to
discrimination against women in the political and participate in the planning and delivery of basic
public life of the country, and to ensure that women services in crisis contexts, taking into consideration
have equal opportunities to participate in the new, the implications for women’s security and their often
post-conflict structures of governance. This includes disproportionate burdens of care.
the adoption of temporary special measures to
accelerate achievement of gender equality in all
decision-making posts. Member States and the UN should:

✓ Establish quotas for women of a minimum of 40 per ✓ Provide leadership capacity-building opportunities to
cent of service delivery employment opportunities at national and local women leaders.
local level.

✓ Provide women and girls with identity documents as SSR AND DDR
a matter of priority during and after conflict, in order Member States should:
to register to vote, access land and avail themselves
of social services and benefits, including education ✓ Incorporate a gender-sensitive approach in SSR and
and health services. DDR, ensuring that not only are these responsive
to women’s particular experience of conflict, but
✓ Adopt service delivery measures that specifically that women fully participate, and their rights and
target women and take into account the often- perspectives are adequately addressed.
disproportionate burden that women face in
caregiving responsibilities, including child grants ✓ Develop and implement strategies to increase
for households; education incentives for girls; free participation and leadership of women within armed
and accessible healthcare of good quality, including forces, police services, defense institutions, the penal
sexual and reproductive health, for pregnant mothers system and the judiciary.
and young children; and other measures designed to
alleviate the burden of unpaid work and family care. ✓ Ensure that security sector reform fosters family-
friendly and non-discriminatory work environments
free of all forms of harassment and violence
The UN should: within the security sector, in order to increase the
participation, retention and promotion of female
✓ Continue to ensure that technical assistance to personnel.
post-conflict elections includes advice on temporary
special measures. Elections basket funds should ✓ Vet candidates for new or re-forming armed and
allocate a minimum of 15 per cent of their funding police services for crimes of sexual violence and
to women’s participation. Elections bodies should be other violations of international human rights and
 405

humanitarian law, giving particular attention to The UN and Member States should:
confidentiality and protection of victims of sexual
violence. ✓ Facilitate the participation of women leaders and
organizations in all stages of DDR/SSR

The UN should:
✓ Engagement should be with the entire spectrum
of actors involved in SSR, including customary
✓ Include gender analysis and full consideration of and religious leaders, private military and security
women’s human rights in SSR/DDR planning and companies, security sector oversight actors and the
implementation, so that entry requirements do penal system. They should also engage men and
not inhibit women’s access, and that reintegration boys to strengthen gender equality within DDR and
opportunities do not further entrench harmful gender SSR processes, and prevent and respond to human
stereotypes and gender-based discrimination, or rights violations, including sexual abuse.
violate women’s human rights.

✓ (Department of Peacekeeping Operations) Should The UN and other service providers should:
ensure gender-responsive DDR/SSR are integrated
in mission planning with dedicated funding, ✓ Ensure reintegration processes respond to trauma
gender expertise, and regular reporting on gender- and improve the availability and quality of psycho-
responsive DDR and SSR in mission reports and social support services.
briefings to the Security Council.

✓ Ensure female uniformed personnel in all UN peace Member States, parties to conflict and mediation
missions participate in the implementation of DDR/ teams should:
SSR programmes, as they can play a key role in
confidence-building, especially in screening activities ✓ Ensure the presence of gender and DDR/SSR
and providing security in demobilization sites. expertise in the negotiation of formal peace
agreements, to make certain that women participate
in DDR and SSR programmes.

PREVENTING CONFLICT: PEACEFUL SOLUTIONS TO OPERATIONAL AND STRUCTURAL

CHALLENGES
ADDRESSING INEQUALITY, ARMS PROLIFERATION, inequalities within and among countries, and goal
ORGANIZED CRIME AND MILITARIZATION 16 on peaceful inclusive societies—ensuring that
Member States should: women and girls benefit equitably from achievement,
and prioritizing their consultation and participation in
the implementation, monitoring and accountability of
✓ As a part of States Parties’ obligations to implement
programmes relating to the sustainable development
the Arms Trade Treaty’s provision on gender-
agenda.
based violence (Art. 7(4)), require arms producing
corporations to monitor and report on the use of their
arms in violence against women. ✓ Adopt gender-responsive budgeting practices,
including through consultation with civil society, as a
strategy to address, highlight and mitigate militarized
✓ Meet all Sustainable Development Goals—including
state budgets and their destabilizing impact on
goal 5 on gender equality, goal 10 on reducing
international peace and security and women’s rights.
406

Member States, the UN and civil society should: women’s and girls’ access to ICTs, particularly in
conflict-affected and fragile settings.
✓ Provide financial, technical and political support to
encourage educational and leadership training for
men, women, boys and girls, which reinforces and ELECTORAL VIOLENCE PREVENTION, DISPUTE
supports nonviolent, non-militarized expressions of RESOLUTION AND MEDIATION
masculinity. The UN should:

✓ Devise educational strategies that lead to a culture ✓ Fully implement the recommendations of the High-
of nonviolent resolution of conflict in the home and in Level Independent Panel on United Nations Peace
public spaces. Operations pertaining to mediation, ensuring
consultation with civil society and women and girls in
Civil Society should: conflict-affected areas.

✓ Produce benchmark tools, with a gender perspective, ✓ Develop new strategies to include the women, peace
for monitoring the initiatives taken by arms producing and security agenda more systematically in its
corporations on responsibility for the use of arms. wider preventive diplomacy work, including in early
warning mechanisms, insider mediation and building
infrastructure for peace.
EARLY WARNING

Member States, the UN and Civil Society should:

Member States, the UN, regional and international
organizations should:
✓ Collaborate, including through financial, technical
and political support, to strengthen the capacity
✓ Include women’s participation, gender-responsive
of women’s civil society to organize and play a
indicators and sexual and gender-based violence
greater role in national and community-led election
related indicators (including conflict-related sexual
monitoring and electoral violence prevention, dispute
violence) in all early-warning processes, conflict
resolution and mediation initiatives.
prevention and early-response efforts, with links to
official channels for response at the local, national,
regional and international level.
CLIMATE CHANGE AND NATURAL RESOURCE
SCARCITY
✓ Support further collection of data and awareness-
The UN, Member States and civil society should:
raising on causalities between gender inequalities,
levels of violence against women and the potential
✓ Work in partnership with affected women and girls
for violent conflict.
when designing, implementing and monitoring climate-
change and natural resource-related strategies,
in order to harness their local knowledge and
TECHNOLOGY
community-level networks for information-sharing.
The UN, Member States and civil society should:

✓ Work with the private sector to develop and use

Member States should:
new technologies which increase women’s physical
security and strengthen conflict prevention.
✓ Work with civil society to develop or revise national
action plans for the implementation of resolution 1325
✓ Support the collection of data on the gender digital
to, as relevant, address the role of climate-related
divide, and the factors inhibiting and promoting
 407

resource scarcity and natural disaster response in ✓ Develop gender-sensitive natural resource
exacerbating conflict, and provide inclusive solutions management policies.
to climate and resource-related insecurity.

COUNTERING VIOLENT EXTREMISM WHILE RESPECTING THE RIGHTS AND AUTONOMY

OF WOMEN AND THEIR COMMUNITIES
Member States, the UN and regional organizations ✓ Invest in research and data collection on women’s
should: roles in terrorism including identifying the drivers
that lead to their radicalization and involvement with
✓ Detach programming on women’s rights from terrorist groups, and the impacts of counter-terrorism
counter-terrorism and extremism, and all military strategies on their lives. This should include the
planning and military processes. Any effort at impact of counter-terrorism laws and regulations on
empowering them should be through civilian the operation of women’s civil society organizations,
assistance to the women themselves or to and their access to resources to undertake activities
development and human rights agencies. relating to countering violent extremism.

✓ Protect women’s and girls’ rights at all times and ✓ Ensure gender-sensitive monitoring and evaluation of
ensure that efforts to counter violent extremism all counter-terrorism and countering violent extremism
strategies do not stereotype, instrumentalize or interventions. This should specifically address the
securitize women and girls. impact on women and girls, including through use
of gender-related indicators and collection of sex-
disaggregated data.
✓ Work with local women and institutions to engage
women at all levels, and allow local women
autonomy and leadership in determining their
Member States and the UN should:
priorities and strategies in countering extremism.

✓ Develop gender-sensitive disengagement,

Member States, the UN, regional organizations and rehabilitation and reintegration programmes that
civil society should: address the specific needs of women and girls.
Draw upon the lessons learned from disarmament,
demobilization, and reintegration (DDR) initiatives
✓ Build the capacity of women and girls, including
under the women, peace and security agenda.
mothers, female community and religious leaders, and
women’s civil society groups to engage in efforts to
counter violent extremism in a manner tailored to local
The UN should:
contexts. This can include the provision of specialized
training, facilitating, training of women religious leaders
to work as mentors in their communities, increasing ✓ Ensure accountability mechanisms and processes
women’s access to secular and religious education to mandated to prevent and respond to extremist
amplify their voices against extremist narratives and violence have the necessary gender expertise to
supporting mother’s schools. All this capacity building fulfill their mandates.
should again be through civilian agencies and with
women peacebuilders deciding the priorities and the
content of their programmes.
408

KEY ACTORS: MEMBER STATES

All relevant actors—Member States, civil society, the voices of the most affected and marginalized
donors, and multilateral agencies—should: populations inform and shape relevant responses
and monitoring of progress.
✓ Document best practices, and promote and adopt
global standards for the design, monitoring and ✓ Provide capacity building and support the
implementation of high-impact NAPs, and other development, financing, implementation and
women, peace and security domestication tools, monitoring of NAPs in conflict-affected countries
building on lessons learned across the areas of: that lack the resources to initiate and sustain a NAP
a) leadership and coordination, b) inclusion and development and implementation process, through
collaboration with civil society, c) costing and partnerships, bilateral and multilateral cooperation,
financing, d) monitoring and evaluation, and e) including through North-South, South-South and
flexibility and adaptability of plans. triangular cooperation, and with civil society.

✓ Strengthen national and global reporting mechanisms The UN should:

for monitoring progress in the development and
implementation of NAPs, to enhance transparency ✓ Facilitate the establishment, by the UN Standing
and facilitate exchange of learning, and scale up Committee on Women, Peace and Security, of a
good practice. comprehensive and accessible database of NAPs to
share good practices, lessons learned, and ensure
transparency and accountability.
Member States should:
✓ Ensure the proposed new Assistant Secretary-
✓ Support and invest in participatory processes, social General for Crisis and Conflict role at UN Women
accountability tools and localization initiatives to includes a specific focus on monitoring and reporting
link global, national and local efforts and ensure on NAPs.

KEY ACTORS: REGIONAL ORGANIZATIONS

Member States should: regional level, building on the experience of the AU
and NATO.
✓ Ensure adequate funding and political will to
effectively implement regional policies and action ✓ Establish channels for women leaders and civil
plans on women, peace and security, as well as society organizations to systematically contribute
other interrelated policies, sector-specific action to the conflict-prevention and peacebuilding work
plans and strategies. of regional organizations, including by establishing
regional advisory bodies of women peace leaders.
✓ Support and fund the attendance and meaningful
participation of civil society organizations in regional ✓ Build regional capacity for monitoring and reporting on
decision-making processes progress in the implementation of the WPS agenda.

Regional organizations should: ✓ Increase engagement and interaction with

international and regional human rights mechanisms
✓ Appoint high-level women, peace and security to ensure full consideration of women’s human rights,
representatives to drive implementation at the a central component of the WPS agenda.
 409

✓ Establish a network of women’s human rights sensitive priorities and concerns pertaining to the
and gender advisors and focal points to further implementation of the WPS agenda, including by
mainstream gender perspectives across all integrating these issues in joint dialogues and
workstreams. intergovernmental meetings on cooperation between
the UN and regional organizations in the areas of
Regional organizations and the UN should: peacemaking, preventive diplomacy, peacekeeping
and peacebuilding—such as the regularly scheduled
✓ Collaborate to establish avenues for cross- meetings between the UN Security Council and AU
learning and information exchange on gender- and EU.

KEY ACTORS: THE UNITED NATIONS

To more effectively drive implementation of the WPS documents and monitoring and evaluation tools of
agenda beyond 2015, including follow-up to findings of all UN entities working in conflict and post-conflict
this report and gender-specific recommendations of the settings.
related high-level reviews and processes, the UN should
take action in a range of areas, including: ✓ Strengthening financial and technical capacity of
UN entities—including in field missions and country
teams—to regularly collect, analyze and report
Monitoring and accountability frameworks
women, peace and security statistics in coordination
with national statistical systems where relevant, and
Harmonize, strengthen and refine existing monitoring to use women, peace and security statistics to inform
and accountability frameworks (specifically strategic reports, statements, programme planning, budgeting
frameworks and indicators) on women, peace and and implementation.
security and humanitarian action by:
✓ Sharing gender-specific information in code cables,
✓ Building on monitoring experience to date and taking periodic updates, data reporting mechanisms and
into account new developments in gender statistics, early warning systems amongst all key actors,
information management systems and emerging including UN field missions and country teams in a
priorities. timely manner.

✓ Eliminating duplication and focusing on issues of

utmost relevance to achieving commitments. Gender-balance

✓ Ensuring measurability of indicators, feasibility of Accelerate action to reach the Organization’s staffing
data collection, and attaching to each indicator jointly gender parity goal at all levels, by:
agreed methodological guidelines that are in line with
international statistical standards.
✓ Removing obstacles to the recruitment, promotion
and retention of women staff in all categories and
✓ Designing and setting up clear reporting levels, and—with the support of Member States—
mechanisms and enforcing periodic reporting investing in the implementation of recommendations
requirements from key actors. put forward in previous reviews and in reports of the
Secretary-General on the improvement in the status
✓ Integrating system-wide women, peace and security of the representation of women in the UN system.
commitments into policies, strategies, planning
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✓ Integrating gender-balance targets as an indicator of ✓ Since many of the women that leave the organization
individual performance in all compacts with senior may have partners but no children, providing full
management. The gender-balance targets in the consideration to adding a third category of duty
HRM scorecard should be reviewed every quarter at stations that are conducive for couples without
the senior level by mission and country teams. children, or staff with healthy adult dependents.

✓ Investing in making mission life and spaces more ✓ Ensuring all review processes integrate a gender
friendly and safe for women (e.g., special family perspective, and appoint more women to High-Level
or leave arrangements for women, adequate and Reviews and panels.
appropriate mission facilities for women, from
accommodation quarters and sanitary facilities
to welfare and recreational spaces and activities, Leadership
special medical and gynecological care), and
making contract benefits better known to potential Make senior leadership accountable for implementing
women candidates, as well as improving outreach women, peace and security commitments, including
and communications activities regarding life and recommendations put forward in this Study, through:
work in peacekeeping missions.

✓ Inclusion of concrete performance measures in

✓ Facilitating women’s representation among national senior managers’ Compacts between the Secretary-
staff contracts in missions through better childcare General and his/her Special Envoys, Representatives,
policies and facilities, and revising experience Advisors and other Senior Managers, and revision
requirements in countries where women have limited of senior managers’ Terms of Reference to reflect
education opportunities or access to the workforce. women, peace and security as a key priority. This
should include Resident Coordinators in conflict-
✓ Actively mentor and groom women in P2-P4 posts to affected countries.
promote career advancement and prepare them for
management positions. ✓ Full compliance with the UN-SWAP commitments
demonstrated by marked progress across all
✓ Introducing greater flexibility in some requirements indicators by the 2017 deadline.
until parity is reached: for example, allowing for
current P5s to be directly eligible for D2 positions if ✓ Routine inclusion of gender, conflict and crisis
they are eligible for D1 positions, and for D1s to be analysis in thematic and country-specific briefings
eligible to apply for ASG positions; reconsidering and reports to the Security Council and other key UN
the non-reversion policy, by which staff at the D2 bodies.
level are asked to relinquish their right to return to
their parent UN organization when assuming head
and deputy head of mission positions for a limited Gender architecture
duration.

✓ Ensure the presence of gender expertise in missions

✓ Auditing missions who have remained stagnant at the senior decision-making level and all relevant
or regressed, instituting a system of sanctions substantive units, by placing senior gender advisors
and rewards for performing and under-performing in all peace operations missions, from the outset and
missions, and holding leaders accountable for for the whole duration of missions, situated directly in
progress or lack of progress with regards to gender the office of the SRSG, supported by hybrid gender
targets. expertise in each of the technical units of the mission
(e.g., rule of law, human rights, DDR, SSR, elections).
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✓ (Member States should) invest in DPKO and DPA effective integration into missions—including in the
gender units at HQ, to increase the resources, strengthening of rosters, joint selection of staff,
seniority and number of staff, ensuring a minimum training, support through communities of practice,
number of posts are included in the regular budget surge capacity and rapid deployments and technical
and giving due consideration to the placement of support. The final say on recruitment would rest with
these units in the Office of the USG. the SRSG as well as accountability—there would be
a single line of reporting to the SRSG with access to
✓ (Member States should) invest in strengthened UN Women for information sharing, and gender staff
UN Women country offices in conflict-affected would be backed technically and have a link to the
contexts to further inter alia support to women’s entity responsible for gender equality.63 The model
organizations, women’s leaders, and strengthen the should be carefully monitored and assessed on
UN’s implementation of women, peace and security challenges and successes after 2 years.
commitments.
✓ (The Secretariat should) explore the possibility of
✓ Strengthen the UN’s gender architecture to promote joint rosters with UN Women for rapid and targeted
women’s full participation in efforts to advance peace deployment of technical gender expertise, and open
and security by expanding the support base for new avenues for using existing rosters managed by
gender work within the missions, and maximize the agencies, funds and programmes.
impact of existing resources, by establishing a formal
cooperation arrangement between DPKO, DPA and ✓ Establish the position of Assistant Secretary-
UN Women so that existing missions have access to General, with a dedicated budget, at UN Women,
UN Women’s technical, political and policy expertise. with responsibility for work in the area of conflict,
Through this arrangement, UN Women would bring crises and emergencies, under the guidance of
its existing resources, capacities, expertise, and UN Women’s Executive Director. This ASG would
staffing as the lead on women, peace and security drive the implementation of the recommendations
to support the relevant components of peace of this Study, help scale up the programming good
operations missions. practice described, and strengthen UN Women’s field
presence in conflict and emergency settings, with the
✓ Pilot in two future missions: UN Women’s more support of Member States and partners.

KEY ACTORS: THE MEDIA

Media outlets should: measures when covering stories on women and
children.
✓ Commit to accurately portray women and men in
all their diverse roles in conflict and post-conflict ✓ Create a code of ethics drafted by media personnel
settings, including as agents of conflict prevention, for media personnel as guidance with regard to
peacemaking and peacebuilding. sensitive issues.

✓ Increase women’s representation and voice in

Member States should:
newsrooms, in decision-making and leadership roles.

✓ Protect, when threatened, the reputations and lives

✓ Monitor media content, including information which
of women and men human rights defenders and
may harm or stigmatize victims of sexual violence
journalists by strengthening legal frameworks, providing
in conflict, and take into account special protection
security and addressing impunity of perpetrators.
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✓ Develop and enforce laws and mechanisms to All actors should:

prevent, investigate and punish harassment, threats
and hate speech published on internet and mobile ✓ Support initiatives to increase training on gender-
platforms. sensitive reporting and how to use, produce
and disseminate media materials, taking into
✓ Appoint more women in state-owned media consideration that some women have limited access
structures, and allocate funding to increase women’s to assets and ICT, and restrictions on mobility.
participation and leadership of media initiatives,
including community radio, in fragile, conflict and
post-conflict contexts.

KEY ACTORS: CIVIL SOCIETY

The UN, regional organizations and their Member violations against civil society advocates and women
States should: human rights defenders, so they are able to operate
free from hindrance and insecurity, and exercise fully
✓ Institutionalize the participation and consultation their rights to freedom of opinion and expression,
of civil society and conflict-affected women, association and peaceful assembly.
including from the grassroots, in local, national and
global decision-making processes, including the
development, implementation and monitoring of Women’s civil society organizations and movements
national action plans. should:

✓ Ensure meaningful consultation and direct ✓ Build strategic alliances across civil society networks
participation of women in peace processes, and to strengthen constituencies and impact on emerging
ensure funding and security for their attendance at global, regional and national issues regarding human
negotiations. rights, sustainable development, and peace and
security.
✓ Establish, finance and support knowledge-sharing
mechanisms to ensure timely and transparent ✓ Develop joint advocacy strategies.
sharing of information between civil society and
government, with special efforts made to reach and ✓ Broaden engagement with the multi-lateral system,
engage local communities. in particular the Universal Periodic Review and
treaty body mechanisms, to draw attention to
✓ Create and maintain, in law and in practice, a safe implementation of the WPS agenda and the human
and enabling environment ensuring access to justice, rights elements that underpin it.
accountability, and end of impunity for human rights

KEY ACTORS: DATA AND STATISTICS

International entities working on women, peace and and enhance the measurability and relevance of
security should: indicators.

✓ Review and revise existing women, peace and ✓ Establish, under the auspices of the UN Standing
security monitoring frameworks to eliminate overlap Committee on Women, Peace and Security, a
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partnership comprising international, regional and level, including those within the auspices of the
national data producers for the creation of an on-line UN Statistical Commission and in preparation for
gender, conflict and crisis database to bring together SDG monitoring; and
and disseminate available data.
• Engaging statistical experts within relevant
✓ Utilize the gender, conflict and crisis database to organizations.
inform programming and to facilitate sharing of
knowledge and good practice.
National governments should:
✓ Further disseminate data through the use of an on-
line repository. ✓ Prioritize the production of national women, peace
and security statistics, including by allocating
✓ Focus women, peace and security monitoring efforts sufficient financial, technical and human resources,
towards measuring outcomes and impact on the integrating them into existing statistical efforts and
ground by: ensuring their use for policy formulation.

• Providing technical and financial support to ✓ Ensure relevant national statistics are systematically
national statistical systems and civil society disaggregated by sex and other key variables and
organizations working in coordination with these timely reported to the international statistical system.
systems for the production of women, peace and
security statistics; ✓ Include gender statistics in work programmes of
existing statistical coordination mechanisms working
• Enhancing collaboration with existing statistical on issues related to governance, peace and security.
coordination mechanisms at the international

THE UNITED NATIONS SECURITY COUNCIL

The Security Council should: information for Council deliberations and outcomes.
More consistent approaches, including regular Arria-
✓ Establish an informal expert group to maximize formula meetings between the Security Council and
information, monitoring and support capacity from the Human Rights Council-established Commissions
the UN system as a whole. Initially the group should of Inquiry on countries of concern should be
be focused on 3-4 countries. This would allow established.
for a comprehensive and targeted approach to
monitoring consistent implementation by the Council ✓ Invite regular civil society briefings, including
of resolution 2122, including ensuring that women, women’s organizations in particular, not only on
peace and security information is part of all briefings thematic but on country-specific deliberations.
and reports to the Council and that questions are
asked consistently of senior leaders on these issues. ✓ Ensure greater and more effective capacity for
gender analysis in conflict-affected countries (see
✓ Increase the channels for flow of information from Chapter 10: Key Actors - United Nations).
the Human Rights Council and related bodies,
including from mandate holders with conflict-relevant ✓ Increase the reporting of dedicated high-level
mandates, Commissions of Inquiry and other fact leadership within the UN system on women, peace
finding bodies, to provide important sources of
414

and security from specific country contexts (see thematic sanctions regimes in addition to
Chapter 10: Key Actors - United Nations). country-specific sanctions to address global
threats such as sexual violence in conflict,
✓ Ensure that senior mission leadership consistently human trafficking, and gross violations of
includes women, peace and security analysis in all women’s rights.
reports and regular briefings, in line with resolution
2122. • Expanding the designation criteria in other
relevant sanctions regimes where sexual and
✓ Consistently incorporate a gender perspective in gender-based crimes and specific attacks
terms of reference for visiting missions, and give it against women are persistently perpetrated.
priority at the outset of the visit.
• Calling for information-sharing between the
✓ Expand ownership of the women, peace and security Special Representative on Sexual Violence in
agenda within the Council beyond one ‘penholder’ Conflict, UN Women as appropriate, and all
or lead, to include a co-lead role with an elected relevant sanctions committees and associated
member. expert groups.

✓ Ensure that Council members who are also members • Formally requiring expert groups assisting
of the General Assembly’s Fifth Committee facilitate sanctions committees to include gender experts
approval of resources required to implement gender as part of the composition of such expert
components of Council mandates. groups, and in line with the recommendations of
the High Level Review on Sanctions, requesting
the General Assembly to make additional
✓ Periodically request SRSGs to present on an ad
resources available to provide the requisite
hoc basis country reports on implementation of the
technical, language and substantive skills
women, peace and security mandate. This could
needed to strengthen capacity of sanctions
provide opportunities for collective review, focus and
bodies and their expert groups.
action at the country level while providing the Council
with more in depth and substantive information on
specific context. • Including respect for the rights of women as
delisting criteria in sanctions regimes that target
political spoilers that may eventually need to be
✓ Strengthen its work in the sanctions committees by:
part of a political solution.

• Using existing sanction regimes more effectively

• Ensuring that specific information about the
to enforce thematic priorities—in line with the
gendered effects of sanctions is systematically
high-level sanctions review—including women,
included in all reporting on the implementation of
peace and security, and consider adopting
relevant sanctions regimes.

LINKAGES BETWEEN HUMAN RIGHTS MECHANISMS AND THE SECURITY COUNCIL

RESOLUTIONS ON WOMEN, PEACE AND SECURITY

Member States should: obligations relating to women, peace and security in

regular reporting to the CEDAW Committee and other
✓ Ratify, remove reservations to, and fully implement treaty bodies.
CEDAW, and report on the implementation of
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✓ Report on the implementation of obligations relating who wish to submit complaints of individual rights
to women, peace and security in the UPR; participate violations to treaty bodies and regional, sub-regional
in the review of other States undergoing review and national human rights mechanisms.
by asking about their implementation of these
obligations; and establish national mechanisms
of reporting and follow-up of recommendations The CEDAW Committee (and, where relevant, other
emanating from the UPR and other human rights human rights treaty bodies) should:
mechanisms.
✓ Question countries under review on the
✓ Encourage civil society to submit independent implementation of their obligations under the
parallel reports, and provide financial support to Convention relating to women, peace and security.
enable their participation in the UPR process and
other human rights treaty body reviews. ✓ Encourage and support civil society to submit
country-specific information for State party reporting,
✓ Provide multilateral and bilateral assistance, and including State obligations relating to women, peace
ensure the political support and independence of and security.
regional and national human rights mechanisms
to address violations of women’s rights in conflict- ✓ Consider expanding the extraordinary reporting
affected contexts, and fully implement the judgments function, and holding special sessions to specifically
and recommendations of these institutions. examine conflict countries and their implementation
of General Recommendation 30.

Civil Society should:

Human Rights Council Special Procedures,
✓ Submit parallel reports to treaty bodies and the UPR commissions of inquiry and fact-finding missions
highlighting State obligations relating to women, should:
peace and security.
✓ Include conflict and gender analysis in their work in
✓ Work with women and girls affected by conflict conflict-affected countries, including in the mandates
of commissions of inquiry and fact-finding missions.

FINANCING THE WOMEN, PEACE AND SECURITY AGENDA

Member States, the UN and civil society should: build the capacity of all actors to monitor and
evaluate the impact of funding.
✓ Set specific numerical targets such as the UN target
of allocating 15 per cent of peacebuilding funds ✓ Increase predictable, accessible and flexible funding
to projects whose principal objective is to address for women’s civil society organizations working on
women’s specific needs and advance gender peace and security at all levels, including through
equality. dedicated financing instruments such as the new
Global Acceleration Instrument on Women, Peace
✓ Establish systems across all financing actors to and Security and Humanitarian Action.
promote transparency and accountability, by tracking
whether financial allocations further gender equality ✓ Support women’s participation in donor conferences
in a fully comparable manner, including in peace, to ensure interventions appropriately target the needs
security and emergency contexts. To achieve this, of women on the ground.
416

✓ Build the capacity of national governments in fragile Fund to End Violence Against Women, the UN Fund
and conflict-affected settings to undertake gender- for Action Against Sexual Violence in Conflict (UN
responsive budgeting and ensure coherence of Action) and the new Global Acceleration Instrument
national planning with gender equality objectives. on Women, Peace and Security and Humanitarian
Engagement.
✓ Undertake participatory gender and conflict risk
analysis (including vulnerability analysis) to inform ✓ Revise the structure of budgeting from being ‘project’
the design, costing and implementation of all based to be aimed at long-term capacity building,
interventions in conflict-affected contexts. not only of State entities but also of non-State
entities.

Donor States and groups should:

The UN should:
✓ Adopt the UN’s 15 per cent gender-funding target for
peacebuilding interventions within their own aid flows ✓ Accelerate efforts to attain and then surpass the
to conflict-affected contexts, with this percentage Secretary-General’s 15 per cent ‘gender marker’
being the first, not final, target. for financing of peacebuilding approaches that
promote gender equality. Its achievement should
be written into the Secretary-General’s performance
Civil society should: compacts with senior UN leaders on the ground, in
mission and non-mission settings, and backed up
✓ Improve coordination of donors’ aid activities to with an enhanced system for monitoring and tracking
ensure a more even distribution of gender equality- achievement.77
focused aid across all fragile states and economies.
✓ Allocate US 100 million or a symbolic 1 per cent of
✓ Significantly increase allocations to dedicated the value (whichever is higher) of the total budget for
financial mechanisms that promote gender equality, peace operations to the Peace Building Fund;78 and
women’s human rights and empowerment, such further ensure that, of this contribution, a minimum
as the UN Fund for Gender Equality, the UN Trust of 15 per cent is allocated to peacebuilding
approaches that promote gender equality.
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REFERENCES
1. The Call to Action to End Violence Against Women and 5. Drawn from the 2014 report the UN Working Group on
Girls in Emergencies, and the written commitments from the use of mercenaries, “A/69/338,” para. 80, 82–83.
member states that emanate from it, offer an interesting Although the recommendations of the Working Group
model to promote the adoption of these commitments. pertain only to security contractors for the UN, here,
“A Call to Action on Gender and Humanitarian Reform: they should be understood to apply to all types of UN
From the Call to Action on Violence Against Women and contractors.
Girls in Emergencies to the World Humanitarian Summit,”
6. UN Women would continue to sit in the UN Country Team
Policy Brief (CARE International, September 2014).
to ensure stronger horizontal linkages across mission
2. Training could be piloted through the new humanitarian and country team on gender equality, and prepare the
leadership academy and based on the IASC Gender foundation for eventual drawdown and handover to
Equality in Humanitarian Action training, which is currently the country team and, more importantly, local actors.
voluntary and nearly completely taken up by NGO rather This pilot should be closely monitored to assess the
than UN staff. successes and challenges that result.
3. Even if only some categories of spending are eligible 7. “The Challenge of Sustaining Peace,” UN Doc.
for gender-responsive budgeting and financial tracking, A/69/968–S/2015/490 (Advisory Group of Experts for
experts on peacekeeping and gender-responsive the 2015 Review of the United Nations Peacebuilding
budgeting should be able to make that determination, Architecture, June 29, 2015), para. 182.
and to advise on what methodology to use or whether
8. Ibid., para. 171.
to focus on either budget design, tracking spending, or
(preferably) both.
4. “Uniting Our Strengths for Peace - Politics, Partnership
and People,” UN Doc. A/70/95–S/2015/446 (High-Level
Independent Panel on United Nations Peace Operations,
June 16, 2015), 76–77.“Report of the Secretary-General:
Special Measures for Protection from Sexual Exploitation
and Abuse,” UN Doc. A/69/779 (United Nations General
Assembly, February 13, 2013).