This report attempts to review a decade of implementation of United Nations Security Council Resolution 1325 (SCR 1325) focusing on 7 selected thematic areas, each of them distinct and complex. The review covers 12 UN peacekeeping missions in 11 countries.
The study assesses the impact of peacekeeping operations as regards the advancement of women’s rights and the promotion of gender equality in accordance with selected articles of SCR 1325. The views of host-country government and civil society stakeholders on these issues were gathered through in-depth interviews and focus-group discussions and form the core of this report. The body of this report describes, for each thematic area, selected activities conducted by the missions, achievements, challenges and the impact of peacekeeping missions, and offers a number of recommendations.
Key Findings:
- Missions have achieved little success in turning around the limited participation of women in peace negotiations and peace agreements. Some women’s groups are now better equipped to advocate for women’s concerns but women’s participation in peace negotiations remains, with few exceptions, below 10% of those formally involved. Women leaders from outside the capital cities in particular, who are often those most directly affected by the conflict, feel excluded.
- More progress has been made in women’s participation in politics. Respondents to this study recognised the crucial contribution made by peacekeeping missions in this area. There has been significant participation of women as voters and as candidates in elections in most countries where they have been held. There has also been a significant increase in the representation of women in legislative bodies in most countries that adopted quotas or reserved seats for women.
- Missions have experienced varying degrees of success, mostly modest, in integrating a gender perspective into disarmament, demobilisation and reintegration (DDR) programmes. Generally women have fared better in the reintegration phase than in the disarmament and demobilisation phases where the traditional definition of eligibility (one weapon per combatant) has denied access to many women.
- The impact of peacekeeping missions in supporting gender-sensitive security sector reforms has been mixed. The presence of uniformed female peacekeepers has had a positive impact, challenging traditional ideas of gender roles and encouraging many women to enter the security sector. Nevertheless, in only few countries has there been a significant increase in the proportion of women in national security institutions, despite several having adopted gender sensitive recruitment policies. The culture of most national security institutions remains unfriendly to women; discrimination and sexual harassment of female officers are widespread.
- Missions have had a positive impact in the implementation of legal and judicial reforms by supporting the adoption of gender equality provisions in national constitutions and relevant national laws. Progress is less clear as regards improving gender balance and building capacity across the judicial system.
- Widespread sexual and gender-based violence (SGBV) has proven a formidable challenge for peacekeeping missions. There has been success in supporting the adoption of laws to combat SGBV and in training the judiciary and police. Communities, especially women, recognise and appreciate that missions have improved women’s security where they support active protection measures, such as joint protection teams.
- While peacekeeping missions have had some impact in the protection of women internally displaced (women IDPs) and women refugees, the coverage and effectiveness of protection measures require improvement. Patrols and escorts have improved security for women and girls in and around IDP and refugee camps but more resources are needed.
- The gender balance of UN peacekeeping personnel is far short of the policy goal of 50/50 representation. Senior mission management is not yet held sufficiently accountable for complying with SCR 1325 provisions and Department of Peacekeeping Operations (DPKO) policy on gender balance. More generally, understanding of and support for gender equality by senior DPKO personnel and mission management is variable.
Recommendations:
- More support to elected women is needed in order to translate their increased numbers into greater gender equality in political processes and legislation.
- More effort is needed to sensitise and train senior UN and government leaders and DDR programme staff on related gender issues.
- Conflict related sexual violence as a deliberate strategy in areas of conflict still occurs with impunity. A more concerted and robust response from national and international actors is required to fight against SGBV as it remains highly prevalent.
- One overall recommendation is that UN peacekeeping missions collaborate with all partners to ensure the development and implementation of a common strategic framework for gender-related work in each of the thematic areas.
