Women, War, Peace
and Peacekeeping
“The primary challenge in the
mission is to overcome the view that gender and human rights are ‘soft’
issues that take resources away from the ‘core’ functions of the mission’s
mandate, such as establishing a judiciary or a power authority.”
Sherrill Whittington, Chief, Gender Affairs Unit, UNTAET
“Gender mainstreaming requires
specialized expertise and training in all aspects of mission operation. It
requires programmatic integration of gender into all elements of activity,
throughout the various ‘pillars’ of governance and humanitarian efforts.
It requires regular monitoring, reporting and evaluation of progress made
and obstacles encountered, as well as systems for holding the operation
accountable to achieving its goals. Finally, it requires resources to put
all of these measures in place. Gender mainstreaming needs to start from
the very beginning of a mission to ensure that structures and programmes
are designed to address the different needs of women and men for
protection, assistance, justice and reconstruction.” Elisabeth
Rehn, Ellen Johnson Sirleaf, Independent Expert’s
Assessment
Introduction
Although the word ‘peacekeeping’ is not in the UN
Charter, the UN Security Council has deployed 56 peacekeeping operations
into conflict and post-conflict situations since 1948. Known as “blue
helmets” or “blue berets” UN peacekeeping personnel is made up of
contingents from a number of countries who are tasked with patrolling
buffer zones between hostile parties, monitoring ceasefires, and assisting
the hostile populations in their search for durable peace. In recent
years, the scope of peacekeeping has widened to include larger numbers of
civilians as civilian police officers, electoral experts and observers,
deminers, human rights monitors, and specialists in civil affairs and
communications. Their responsibilities range from protecting and
delivering humanitarian assistance, to helping former opponents carry out
complicated peace agreements; from assisting with the demobilization of
former fighters and their return to normal life, to supervising and
conducting elections; from training civilian police, to monitoring respect
for human rights and investigating alleged violations. More than 1,650
military and civilian peacekeepers have died while serving in United
Nations operations. more...
The UN Department of Peacekeeping Operations
concludes that women make a positive difference to peacekeeping, and that
“women’s presence improves access and support for local women it makes me
peacekeepers more reflective and responsible; and it broadens the
repertoire of skills and styles available within the mission, often with
the effect of reducing conflict and confrontation. Gender mainstreaming,”
the report says,” is not just fair, it is beneficial.” Each component of
the peacekeeping involves the participation of women and each has crucial
consequences for women and men of the host country. In contemporary
peacekeeping environments, military and civilian personnel are taking on
new functions that increase their contact with women; both in providing
protection and in supporting women’s role in peace building. Military
observers are taking on more complex responsibilities traditionally
carried out by civilian, humanitarian and human rights officers, e.g.
humanitarian assessments in inaccessible areas. Women do more than act as
gender advisers in peace operations, but participate throughout, although
not in senior positions. more...
Defining
Terms
What is Gender mainstreaming in peace
operations? “mainstreaming a gender perspective in
multidimensional peacekeeping … [means] that gender issues, such as
increased equality and observing gender specific needs, become a natural
element in all parts of the peacekeeping mission. Gender issues will not
be handled by a special department alone but rather be a part of the work
of the existing organization, both in the field and at the headquarters.”
What is a Gender Adviser or Unit?
In general, gender advisers and units are responsible for ensuring that
gender concerns are integrated into all of the mission's programmes and
activities; raising gender awareness among international staff at all
levels of authority; reaching out to groups of women at the grassroots
level; conducting gender training for peacekeepers, military observers and
civilian police; and in some cases, assisting in building the capacity of
women to participate in the peace process and helping form a national
machinery for women.
What is a peacekeeping operation?
For detailed background description of peacekeeping operations,
go to DPKO website
Who are peacekeepers? The UN
Security Council Resolution creates, defines and authorizes a peacekeeping
mission mandate under the UN Charter V, VI, and VII. Department of
Political Affairs (DPA), Department of Peacekeeping Operations (DPKO), and
Office of Coordination of Humanitarian Affairs (OCHA) advise
Secretary-General and Special Representative of Secretary-General (SRSG)
who is the head of the operation, on structuring the operation. Peace
operations are based on voluntary contribution of resources, personnel and
equipment by the member states. International or regional peacekeeping
operations are also created and formed by regional organizations such as
NATO, OSCE, ECOWAS, or international coalitions.
What kind of role do peace operations
play? Since the end of the Cold War, the scope of UN peacekeeping
has expanded and become increasingly complex and multidimensional
involving peace-building, peace enforcement and nation-building, compared
to traditional ceasefire observation missions.
- Observer missions are
traditional peacekeeping deployed to monitor ceasefire agreements and
investigate and report violations, based on the consent of opposing
parties and with the use of force only for self-defense. It prevents the
outbreak or the spill-over of conflict. Examples include the operations
in Golan heights and India-Pakistan.
- Peacekeeping operations are
deployed to stabilize conflict situations after a ceasefire to create an
environment for the parties to reach a lasting peace agreement or to
assist implementation of peace agreements.
- Enforcement operations are
based on the Chapter VII of the UN Charter, which gives UN Member States
the authority to take all necessary measures to achieve international
peace and stability. Consent of the parties is not necessarily required.
Examples include Rwanda, Somalia, Haiti and Bosnia and Herzegovina.
- 'Nation building' missions such
as the missions to East Timor, Kosovo, and Cambodia lead states or
territories through a transition to stable government based on
democratic principles, good governance and economic development.
Components of peace missions
- Military: Military
peacekeepers’ role includes stabilizing the security situation,
monitoring cease-fires, overseeing the withdrawal of armed forces,
disarming combatants, protecting the population in demilitarized zones,
and protecting humanitarian aid delivery.
- Civilian police (CIVPOL):
CIVPOL's role includes establishing the rule of law, restructuring and
supporting national police and judicial systems in accordance with
international standards of criminal justice, human rights, and
democracy.
- Civilian components: The role
includes electoral supervision, administrative components, human rights
monitoring.
- Humanitarian affairs:
humanitarian assistance—both food and services are provided under the
coordination of OCHA.
Gender Components of Peace Operations
Protection and assistance for
women
- Security provision by peacekeeper is crucial in
the insecure post-conflict situation where women are particularly
vulnerable to including the threat of sexual violence.
- CIVPOL is not only responsible for providing
security but also helping establish the local population's trust in the
police as an institution where military and/or police forces may have
violated human rights and thus been feared by local populations.
- Especially in the case of rape, sexual assault,
domestic violence and other crimes against women, the role of female
police, interpreters and specialists is critical to create an
environment where women feel safer and able to report cases.
- Disarmament, demobilization and reintegration
(DDR) of ex-combatants, which constitute many peacekeeping mandates,
need gender perspective. more...
- Individual women and women’s organizations in
Bosnia, East Timor, and Sierra Leone have benefited from security
provision by peacekeepers. more...
Participation of Local women
- In missions which involve human rights
monitoring, electoral assistance and establishing civil administrations,
it is critical to identify and address the gender perspectives in these
areas, especially in the light of particular local norms and customs
that obstruct women’s participation.
- Though many local women find work in support
positions for the mission as secretaries and language assistants, very
few women or men are hired locally as professionals.
- UNMIK created a consultative group of
local representatives called the Kosovo Transitional Council (KTC). Of
its twelve initial members, none of them were female. Since the Joint
Interim Administrative Structure (JIAS) was created and the Interim
Administrative Council (IAC) was established in December 1999 as the
SRSG’s main consultative body, the KTC was enlarged to include
thirty-six members, some 17% of whom are women. However, the creation of
IAC led to the loss of importance of the KTC. All three Albanian
representatives on the IAC are male while the Serb representative is
female. An observer position for a civil society representative was
created and Albanian women took up the position. more...
Fact
Sheet
- Peacekeeping missions are deployed in
situations of great insecurity and instability where women face high
risk of violence and sexual abuses. Peacekeepers take responsibility to
prevent and protect women against violence, especially gender-based
violence.
- Women are socially and economically
affected by ‘peacekeeping environment,’ which is created by a large
influx of well-paid international peacekeeping staff – military and
non-military. Young women can become involved in and affected by
industries and services such as bars and hotels that spring up with the
arrival of peacekeeping operations. Many women also find work in support
positions for the mission, as secretaries and language assistants. more...
- In Peace Operations that have a
nation-building mandate, the mission determines “everything from a
population’s access to water, energy and sanitation, among other
resources, to defining legal status, constitutional guarantees and
creating an electoral framework — all of which have a direct effect on
women.” more... Substantial interface with the civil society
indicates that it needs to be ensured the perspectives of women, who
compose half the population, are included and understood in planning
interventions. more... The UN Transitional Authority in East Timor
(UNTAET) supported the creation of the Office of the Advisor for the
Promotion of Equality and is given credit for the significant
participation of women in Development Councils and the National Council.
Establishing a gender unit within a peace operation is an excellent
basis on which to support the basics of a national machinery for women
in a newly independent or transitional administration.
- The Department of Peacekeeping Operations
has found that women’s presence in missions improves access and support
for local women and makes male peacekeepers more reflective and
responsible. more... Studies show that the leadership attitudes
towards gender are fundamental to whether gender perspective is
incorporated into policies and implemented in the operation and the host
nation. more...
- The existence of and accessibility to
female peacekeepers is especially critical for local women in the
context where many women have already experienced sexual trauma and
other violence by mostly male combatants in the war. Women experience
fear of “seeing yet more men in uniform and positions of authority –
even peacekeepers.” Also in some host societies, women may not be
allowed to speak to male strangers for cultural and religious reasons.
Thus, women peacekeepers are easier for local women to access,
especially regarding gender-based violence. It should be also noted that
women's presence does not guarantee that local women's concerns will be
heard, considered and addressed or that human rights abuses by
peacekeepers are deterred. more...
- During the first four decades of the UN’s
existence only three of its peacekeeping missions included civilian
police units (UNCIVPOL). But since the end of the Cold War, civilian
police have been part of more than twenty UN peace missions and are
second in number only to military personnel. Despite the effectiveness
of female CIVPOL in dealing with cases of rape, sexual assault, domestic
violence and other crimes against women, the number of female CIVPOL has
been low throughout UN peacekeeping history.
- In the history of UN peacekeeping, only
five women have held leadership and command positions: Margaret Joan
Anstee, UN Angola Verification Mission (UNAVEMII, 1992-93), Angela King,
head of mission for UN Observer Mission to South Africa (UNOMSA ,
1992-94), Elizabeth Rehn, SRSG to the UN Mission in Bosnia and
Herzegovina (UNMIBH, 1995-2001), Ann Hercus, UN Peacekeeping Force in
Cyprus (UNFICYP, 1998-99), and Heidi Tagliavini, SRSG in UN Observer
Mission in Georgia (UNOMIG, 2002-current).
- The UN deployed gender specialists for the
first time in the UN Mission in Kosovo (UNMIK, Gender Unit), the UN
Transitional Authority in East Timor (UNTAET, Gender Unit) and Sierra
Leone (UNAMSIL, Gender Specialist within the Human Rights Division) in
1999 and in the Democratic Republic of the Congo (MONUC, Gender Office)
in 2000 (independent report). But in Kosovo, the Gender Unit was
positioned within the Civil Administration pillar not the SRSG’s office
as planned. Following the elections of August 2001 in East Timor, the
UNTAET Gender Affairs Unit became the office of the Advisor for the
Promotion of Equality, located within the Office of the Chief
Minister.
- In UNOMSA in South Africa, 46-53% of
civilian personnel were women where the leaders, especially Angela King,
head of mission, made it a priority to recruit qualified, international
and local civilian women. more...
- In Kosovo, the Gender Unit has worked in
collaboration with other elements of the mission to gather
sex-disaggregated data, collaborated in the development of Victim and
Witness Protection programmes, and developed a network of Gender Focal
Points throughout the regional offices of the UN administration. Gender
Focal Points deal with personnel issues at the mission level, whereas a
Special Gender Advisor deals with programmes and activities of the
mission.
- The UN’s Transitional Administration in
East Timor (UNTAET) is an example of comprehensive achievements of a
Gender Unit. The Unit raised awareness with the mission staff, built
capacity, worked with East Timorese women to incorporate their concerns
into mission policies, assisted the East Timorese Women’s Network to
promote, implement and monitor their Platform for Action, which outlines
the major societal issues they wanted to have addressed by the
Transitional Administration and by the future government, ensured the
development of gender action plans throughout the districts and
departments as well as maintaining a focus on gender issues in the media
through the Gender Focal Point network, ensured that gender is
incorporated into UNTAET legislation, provided advice to the General
Prosecutor, trained the Timor Lorosa’e Police Force and UNCIVPOL on
appropriate responses to domestic violence and interviewing victims of
such crimes, assisted women candidates to prepare for the elections and
educated women in the electoral process, collaborated with the Civil
Service and Public Employment Unit to improve gender mainstreaming in
recruitment and appointments to decision-making bodies, and conducted
gender analysis and gathered gender-sensitive data/indicators. more...
- The UN’s Mission in the Democratic
Republic of the Congo (MONUC) gender office has worked towards gender
mainstreaming throughout the UN mission, and has also collaborated with
local women’s organizations. The gender office has its own website. more...
- Male and female peacekeepers working
together as equals as a model has a positive impact on breaking-down
traditional views and stereotypes of women in the local communities.
When there is a critical mass of women, it may have the effect of
mobilizing women in the local communities to peace-building,
reconstruction and democratization of the country. more... “With just a token female presence,” male
soldiers are less inclined to assert their dominance and more likely to
behave in accordance with their own social norms. This creates an
environment closer to that of their home society and therefore reduces
stress and the likelihood of an atmosphere that accepts violence and
sexual exploitation. more...
- The number of women has been low in the
military units and the civilian police components of the missions,
whereas their number is substantially higher in the civilian staff.
Between 1957 and 1989, only 0.1 per cent of the field-based military
personnel in UN peacekeeping missions were female, the figure increased
to 1.7% in 1993. "The UN did not issue specific requests for women
peacekeepers until 1994, corresponding with a high demand for
peacekeepers - 78,500 in 1993, 76,500 in 1994, and 68,900 in 1995."
"When the call did go out, Member States largely ignored it." In 1993,
in 11 of 15 ongoing peacekeeping operations, women were 33 percent of
all civilian staff with the percentage of women in civilian police and
military unknown due to lack of record keeping. In 2000, women
constituted 51 percent of general service staff, 15 percent of field
staff, 26 percent of local staff, 3 percent of military personnel, and 3
percent of civilian police personnel. As of the spring 2001, women make
up no more than 6% of military personnel and no more than 16% of
civilian police for any of the 13 on-going UN peace operations for which
data is available. more...
- The male-female ratio is 67-33% in CIVPOL
Division of DPKO. In CIVPOL peacekeeping missions, the ratio is 96-4%
(UNMIK police: 90-10%, UNAMSIL Police: 97-3%, UNMISET police: 91-9%).
Within the local polices, the ratio is in Kosovo police service: 85-15%,
Sierra Leone police: 90-10%, and Timor-Leste police:
77.8-22.2%.
- In many member states, the status of women
in the national military is low, either not being allowed to serve, or
being limited to certain positions. The proportion of women sent for
peacekeeping is routinely less than that within national militaries. For
example, 12 percent of national armed forces in the US and Canada are
women whereas only eight percent and five percent respectively of their
military are sent for peacekeeping.
- Few countries send women for CIVPOL in
part because in most case women in the police forces typically serve as
desk officers and traffic police. Also, the percentage of women in
military police remains very low, and even in countries where women make
up a significant portion of the national police force, they rarely
constitute a significant presence in peacekeeping operations. For
example, studies in Canada find women police officers are less likely to
request postings with CIVPOL because of the length of time required away
from their families where they have the gendered-distribution of
household labor.
- It is important that men as well as women
assume responsibility for gender mainstreaming. For example, Martti
Ahtisaari (Finland), the SRSG in Namibia during the UNTAG mission made
conscious attempts to recruit women to military and civilian posts at
all levels, including at the senior decision-making level and he
succeeded in raising the number of women in the professional staff to
around 60%.
- Sergio Vieira de Mello, SRSG for UNTAET
stressed the importance of gender mainstreaming throughout UNTAET at
public speaking engagements, and high-level meetings, political parties
and consultative bodies. more...
- The UN has “zero tolerance” policy on
crime committed by its peacekeepers. The small card We Are United
Nations Peacekeepers and Ten Rules Code of Personal conduct for Blue
Helmets are distributed to peacekeepers. The former states “We will
never… commit any act that could result in physical, sexual or
psychological harm or suffering to members of the local population,
especially women and children; become involved in sexual liaisons which
could affect our impartiality, or the well-being of others; be abusive
or uncivil to any ember of the public...” The latter states “Do not
indulge in immoral acts of sexual, physical or psychological abuse or
exploitation of the local population or United Nations staff, especially
women and children.” more...
- In Peacekeeping Handbook for Junior Ranks, soldiers are
advised “Be aware of the human rights of women and children and
never violate them [emphasis theirs]; Behave in a way that you do
not exacerbate violence of the human rights of women and children in the
host country; Be forewarned of facing long periods of sexual abstinence;
Do not involve yourself in any sexual relationship which may create
long-lasting complications for you and others. Do not involve yourself
with a sexual affair with any member of the local population. This may
have the effect of jeopardising your personal integrity as well as the
honour of your unit; Do not view fellow UN personnel or members of the
local population as objects to be trifled with. In both cases this could
have serious consequences for your career; and Be aware of sexually
transmitted diseases (e.g. AIDS).”
- The MONUC Code of Conduct contains
information on conduct in the Democratic Republic of Congo regarding the
prohibition of sexual abuse and/or exploitation by all members of the
Civilian and Military components of MONUC. UNAMSIL established a
Coordination Committee for the Prevention of Sexual Exploitation and
Abuse. more...
- Status-of-forces agreements between UN and
host countries and the contribution agreement between the UN and
contributing states both accord exclusive jurisdiction to contributing
states for prosecution of peacekeeping soldiers who commit a crime in a
peace operation. Therefore, when peacekeepers commit crimes such as rape
or trafficking, they are under national jurisdiction of troop
contributing countries, not host countries or the UN. The only recourse
for the mission leadership is to send the personnel home. Despite the
requirement for reporting the outcome of cases of crimes committed by
its military personnel to the UN’s Head of Mission is stated in the
model agreement, many contributing countries do not fulfill the
undertaking.
- In confronting the significant increase in
the trafficking of women, the deployment of CIVPOL is especially
important for border control. In September of 2000, UNMIK created a
Trafficking and Prostitution Investigation Unit in Kosovo and by the end
of 2001, had established units in all five regions of the country. The
UN mission in Bosnia and Herzegovina created a Special Anti-Trafficking
Operations Project (STOP) to develop a strategy for action in the
prevention of trafficking with results of more than 200 raids and 350
repatriations. This was the first UN anti-trafficking initiative.
Involved in identification of women exploitation networks in the Balkans
for prostitution, rescue of victims, with the support of IMO
(International Organization for Migrations), for repatriation, and
protection of victims and witnesses of trafficking related cases. more...
- Contributing states are responsible for
taking action against peacekeepers that commit crimes. Some contributing
countries do not have penal codes that criminalize all forms of sexual
or gender violence. For example, the rape and murder of an 11-year-old
Kosovo girl by a US soldier made headline and the charges of felony,
rape, sodomy and murder were filed against him who was eventually
sentenced to life imprisonment without parole. Often, if prosecutions
are carried out by the soldier’s home country, they are not made public,
as they take place in military courts, which are closed procedures. more...
- The creation of the International Criminal
Court enables prosecution of peacekeepers who commit sexual abuses
including involvement in trafficking and prostitution rings under the
universal jurisdiction. However, under the Security Council resolution
adopted unanimously in July 2002 and extended in June 2003, members of
UN peacekeeping missions from nations that have not ratified the Rome
Statute are immune from investigation or prosecution.
On 5 January 2005, the Office of
Internal Oversight (OIOS) submitted its report (A/59/661) on the
investigations into allegations of sexual exploitation and abuse (SEA)
in MONUC to the General Assembly. Out of 72 allegations, OIOS compiled
twenty case reports, 19 of which implicated peacekeepers from three
contingents. All of the victims were Congolese girls under the age of
18. Five out of six were under age 14. In most cases, victims had sex
with the assailants in exchange for milk, eggs, chocolate, bread and /
or less than five US dollars in cash. Male minors and male youth were
also often involved in bringing the girls to the peacekeepers in
exchange for one US dollar and / or food.
• The OIOS team noted that programmes
and resources were not being properly allocated to prevent the economic
and food insecurity that often caused the girls and boys to get involved
with the aggressors. Lack of schooling opportunities and the consequent
youth idleness was also noted as a contributing factor. The team also
raised doubts as to whether peacekeepers had been adequately briefed on
the Code of Personal Conduct and whether the code was being properly
enforced and reinforced. Insecurity of perimeter fencing, which
encouraged illicit mixing of the military and general population,
inadequate patrols by military police and insufficient enforcement of
military discipline, the absence of off-duty programmes for peacekeepers
and the lack of prevention strategies and programmes were all identified
as factors contributing to the creation of a serious and ongoing SEA
problem.
• Despite the presence of the team, sexual
interactions between the local population and the military personnel
continued during the investigation. The report emphasized that there
continued to be a lack of a protection and deterrence programme at the
present time.
• In addition to a more robust SEA policy
that DPKO is currently developing, the OIOS team made the following
recommendations:
1. Upon review of the individual cases, DPKO
should request the relevant TCCs to take appropriate action against the
personnel and inform the department.
2. DPKO and MONUC should implement a strong
prevention programme protecting the most vulnerable and establish a
rapid-response detection programme.
3. Senior MONUC managers must become more
involved and demand accountability from civilian administrators and
contingent commanders in the mission. MONUC must take steps to ensure
that administrators and officers demonstrate implementation of all
existing regulations and policies aimed at preventing SEA.
4. DPKO and MONUC should provide regular
briefings for troops on their responsibilities to the local population
and prohibited behaviours and to ensure that all troops and civilians on
UN missions are fully conversant with UN policies of the subject of SEA.
5. The MONUC Force Commander should enforce
strict discipline over the personnel under their command.
6. MONUC should identify and implement measures
that ensure all military compounds are adequately secured.
7. MONUC should collaborate with OCHA and NGOs to
strengthen existing programmes to empower and protect the vulnerable
populations to allow for alternate means of survival. 8. DPKO should consider a wider application of
prevention and detection policies to protect against SEA by
peacekeepers. This may include the designation of local officials or
NGOS to receive reports of SEA, the expeditious central reporting of all
cases to senior management, mission based rapid-response teams,
education programmes for troops on their responsibilities and on
sanctions for SEA, the public naming and shaming of those found to have
engaged in SEA, and the permanent exclusion from peacekeeping missions
of those troops who engage in SEA and of their contingents' commanders.
more...
Treaties and
Institutions
The UN Department of Peacekeping Operations (DPKO):
website
International Association of Peacekeping Training
Centres: website
Pearson Peacekeeping Centre: English, French
Tools &
Checklists
- The DPKO Gender Resource Package (October 2004)
- DPKO
gender training materials
- Inclusive Security, Sustainable Peace Toolkit:
Chapter on Peace Support Operations
- UN Institute for Training and Research (UNITAR)
Training for Civilian
Personnel in Peacekeeping Operations on the Special Needs of Women and
Children in Conflict.
- Canadian Department of Foreign Affairs and
International Trade (DFAIT) and the United Kingdom Department for
International Development (DFID). Gender and Peacekeeping Training Course, released in
2000. available online with detailed trainers notes and
resources.
- Canadian International Development Agency
(CIDA), Gender Equality and Humanitarian Assistance: A Guide to
the Issues. This resource offers a clear explanation of how issues
of gender affect humanitarian assistance missions, including rebuttals
to the most frequently raised objections to incorporating a gender
dimension in humanitarian assistance. There is also a guide to reviewing
proposals and reports to ensure adequate attention to gender, and a list
of sector-specific considerations and questions for humanitarian
operations. (In French)
- Gender Equality and Peacebuilding: An Operational
Framework, CIDA
- Code of Conduct for Combatants, ICRC
- Amnesty International Program for Implementing Human
Rights in Peacekeeping Operations
- “Questions to Ask about Gender and Peace Support
Operations.”
- Training of Civilian Personnel for International
Missions offered by the German Federal Foreign Ministry by the
Center for International Peace Operations.
- On women’s participation throughout peace
support operations especially in the mission planning, “Communique Regarding Women and Participation in Peace
Support Operations and Post-Conflict Reconstruction” NGO Meeting,
Bishopsgate, UK, 30 June 2003
- Inter-Agency Standing Committee (IASC). Report of The Task Force on Protection from Sexual
Exploitation and Abuse in Humanitarian Crises and the Plan of
Action. June 2002. Although this report and Plan of Action are on
humanitarian assistance, they contain insights which are also useful for
peace operations.
- University for Peace (Costa Rica) “Gender
Sensitive Code of Personal Conduct”
Gender training
There is a
need for gender mainstreaming in all training courses and specific courses
on gender and peace support operations.
- Primary responsibility for training peacekeepers
is on member states. Peacekeepers have been sent with little training
and briefing on, and therefore with little understanding of,
gender-based violence during the war and the implication of their
presence on local women. DPKO training for peacekeeping personnel
involve both pre-deployment training and in-mission training during
operations. The former is for Troop Contributing Nations in their
preparation of peacekeeping forces. The latter is conducted by Mission
Training Cells in UNTAET, MONUC, UNAMSIL and UNMEE and includes host
national representatives to provide contextual discussion on the
experiences of conflict for both men and women. All current major UN
peace operations have received this training.
- Two materials are available online: “Gender and Peacekeeping Operations – Gender Training.”
Training and Evaluation Service, DPKO. 2002 and “Gender and Peacekeeping Operations: In-Mission
Training.” Training and Evaluation Service, DPKO. 2001.
- Training and Evaluation Service (TES) of DPKO is
in the process of implementing the Gender and Peacekeeping Project. The
project is currently in the phase of producing a Generic Gender and
Peacekeeping Training Package, as well as a Gender and Peacekeeping
Field Manual. The publication (forthcoming) has been developed for
Member States’ training purposes and its electronic version has already
been distributed to Missions. TES is currently developing a Gender and
peacekeeping manual targeted at middle level military personnel. The
manual should be completed by December 2003. more...
- United Nations Population Fund (UNFPA) launched
a groundbreaking two-year programme for HIV/AIDS prevention and gender
awareness training for peacekeepers in Sierra Leone in March 2003, in
partnership with DPKO, UNAIDS, UNAMSIL , UNIFEM, and the International
Centre for Migration and Health (ICMH). It aims to curb infection by and
among troops and have peacekeepers take on the role of leadership to
educate communities on HIV/AIDS. more...
- To date, United Nations Mission in Ethiopia and
Eritrea (UNMEE) has conducted HIV/AIDS awareness courses for 800
civilians, 10,000 peacekeepers, 27,000 Eritrea Defense Force and 100,000
Ethiopia Armed Force personnel.
- UN Institute for Training and Research (UNITAR)
has also developed materials designed for civilian personnel entitled:
Training for Civilian Personnel in Peacekeeping Operations on the
Special Needs of Women and Children in Conflict. This material was used
for training in UNMIBH, UNMEE, MONUC and UNMIK. more...
- Canadian Department of Foreign Affairs and
International Trade (DFAIT) and the United Kingdom Department for
International Development (DFID) developed Gender and Peacekeeping
training course in 2000, which is available online with detailed
trainers notes and resources. The gender training materials by DPKO are
based on this Canadian and British material. more...
UNIFEM Action &
Analysis
“UNIFEM has initiated an important collaborative
effort with the UN Department of Peacekeeping Operations (DPKO), UNICEF
and Office for the Coordination of Humanitarian Affairs (OCHA), to
integrate gender training into the pre-deployment induction courses for
peace keepers and military observers assigned to the Democratic Republic
of the Congo (DRC). At the global level, UNIFEM is a partner in an
initiative to develop gender training modules for peacekeepers, being
coordinated by the Pearson Peacekeeping Centre in Canada. Additionally
UNIFEM is collaborating with the Lessons Learned Division of DPKO, in an
effort to develop policy and operational guidelines to engender
peacekeeping operations around the world.” more...
In the area of protection, UNIFEM West Africa
Regional Office has supported gender responsive community based care for
HIV/AIDS sufferers in the peacekeeping environment in Sierra Leone and
worked to mainstream gender in HIV/AIDS programming throughout the UN’s
mission. UNIFEM has partnered with UNFPA, UNAIDS and DPKO to assess the
intersections of gender, conflict and HIV/AIDS in Sierra Leone.
UN
Documents
- Windhoek Declaration: The Namibia Plan of Action On
‘Mainstreaming a Gender Perspective In Multidimensional Peace Support
Operations.’” organized by the Lessons Learned Unit of DPKO and
hosted by the Government of Namibia on the 10th Anniversary of the
United Nations Transitional Assistance Group (UNTAG) in Windhoek,
Namibia on 31 May 2000. Plan of Action include: negotiations, mandate,
leadership, planning, structure and resources of missions, recruitment,
training, procedures, monitoring, evaluation and accountability, and
public awareness.
- Women, Peace and Security: Study Submitted by the
Secretary-General pursuant to Security Council Resolution 1325
(2000). United Nations, 2002. The Secretary-General’s study on
women, peace and security conducted according to the mandate of Security
Council Resolution 1325, coordinated by the Special Adviser on Gender
Issues and Advancement of Women in close cooperation with the
Inter-agency Taskforce on Women, Peace and Security. Chapter V is
dedicated to the issue of peace operations.
- Security Council Open Debate on Gender and
Peacekeeping (July 25 2002) Press release
- DPKO Lessons Learned Unit ‘Mainstreaming a Gender Perspective in Multidimensional
Peace Operations’ July 2000.
- United Nations Division for the
Advancement of Women (DAW). “The Role of Women in United Nations Peacekeeping.”
Women 2000 No.1 (1995).
- United Nations International Research and
Training Institute for the Advancement of Women (INSTRAW): Gender Aspects of Conflict and Peace
- “Report to DPKO on the Implementation of
Security Council resolution 1325.” UNTAET (United Nations Transitional
Administrations in East Timor), 25 May 2001. PDF TO LINK WORD DOCUMENT
FROM EAST TIMOR COUNTRY PROFILE
- Activities report from the Office of Gender Affairs (OGA)
of the United Nations Organization Mission in the Democratic Republic of
the Congo (MONUC):
- “The UN Transitional Administration in East Timor: Gender
affairs.” Sherrill Whittington. Development Bulletin
53.
- United Nations Mission in Bosnia and
Herzegovina (UNMIBH). Trafficking in human beings in Bosnia andHerzegovina. A
summary report of the joint trafficking project of the UN Mission in
Bosnia-Herzegovina and the Office of the High Commissioner for Human
Rights. May 2000.
- UNAIDS initiated a Cooperation Framework
with DPKO with a view to integrating a comprehensive HIV/AIDS policy
within DPKO. Together, they designed and produced the “HIV/AIDS
Awareness Card for Peacekeeping Operations.” The plastic cards are
currently distributed in all major UN peacekeeping operations along with
a code of conduct card for peacekeepers. The card is translated into 10
languages and contains an inner pocket for condoms and basic facts about
HIV/AIDS. more...
- United Nations Population Fund. The Impact of Conflict on Women and Girls: A UNFPA
Strategy for Gender Mainstreaming in Areas of Conflict and
Reconstruction. 2002.
- Remarks by Jacques Paul Klein, SRSG for Bosnia-
Herzegovina “Beijing Plus Five Review” March 29 2000
- International Day of United Nations
Peacekeepers. May 2003. contains various background readings and
pictures on UN peacekeeping. more...
(questions and answers on united nations peacekeeping” contains
questions on gender as well as HIV/AIDS issue. more...
- Special Committee on Peacekeeping
Operations first placed gender mainstreaming on its agenda at its
session in 1999 and has since kept gender mainstreaming and gender
balance issues under review. Its website includes the link to the
selected UN documents. more...
- Gender and Frontline Perspectives on Peacekeeping and the
Brahimi Report: Report of the panel discussion on the absence of a
gender perspective in peacekeeping and in the Brahimi Report. Panel
discussion report from Women's Caucus for Gender Justice,
2001.
- Karley Ziegler. “Report on the VIII Seminar of the Challenges Series Human
Rights and Gender Issues in Peacekeeping.” Pearson Peacekeeping
Centre in Cornwallis, Nova Scotia, Canada, 28 May – 1 June
2001.
- United Nations Peacekeeping in the Service
of Peace more...
- The Department of Peacekeeping Operations (DPKO)
released a policy paper on Human Trafficking and United Nations Peacekeeping in
March 2004. The paper aims to define the problem—whose victims, the
paper acknowledges, are mainly women and very frequently children—in the
context of UN peacekeeping. The paper proposes a strategy for DPKO to
address human trafficking, based on lessons from previous missions and
consultations with partner organizations in anti-trafficking, which will
include awareness and training, discipline, accountability and community
relations, and support to Anti-trafficking activities. The “development
of further peacekeeper targeted materials on human trafficking, sexual
abuse and exploitation and gender-based violence” will be one aspect of
the awareness and training project.
- The Department of Peacekeeping Operations
Handbook on United Nations Multidimensional Peacekeeping Operations
(December 2003) dedicates one chapter to Gender Mainstreaming. This chapter outlines some of
the gender dimensions of conflict and post-conflict, and urges the
planners and implementers of peacekeeping operations to take into
account the gender-based differences in post-conflict needs and
priorities. This chapter also provides checklists and basic advice on
incorporating a gender perspective into peacekeeping operations.
Security Council
Resolutions
- 1539 (22 April 2004): Recalling
its resolution 1308 (2000) on the responsibility of the Security Council
in the maintenance of peace and security: HIV/AIDS and International
Peacekeeping Opearations and its resolution 1325 (2000) on Women, Peace
and Security, the Security Council “Notes with concern all the cases of
sexual exploitation and abuse of women and children, especially girls,
in humanitarian crisis, including those cases involving humanitarian
workers and peacekeepers, requests contributing countries to incorporate
the Six Core Principles of the Inter-Agency Standing Committee on
Emergencies into pertinent codes of conduct for peacekeeping personnel
and to develop appropriate disciplinary and accountability mechanisms
and welcomes the promulgation of the Secretary-General’s bulletin on
special measures for protection from sexual exploitation and sexual
abuse.” more...
- 1487 (12 June 2003): renewal of
resolution 1422 more...
- 1445 (4 December 2002): The
situation in DRC: Recognizing the importance of a gender perspective in
peacekeeping operations, in accordance with Security Council resolution
1325 (2000), and the importance of the protection of children in armed
conflict, in accordance with its resolution 1379 (2001)… the Security
Council … Calls upon MONUC to pay special attention in carrying out its
mandate to all aspects relating to gender perspective, in accordance
with resolution 1325 (2000), as well as to the protection and
reintegration of children, in accordance with resolution 1379 (2001). more...
- 1422 (12 July 2002): the
Security Council requests that the ICC not commence or proceed with
investigation or prosecution of peacekeepers from a contributing State
not a Party to the Rome Statute for 12 months. more...
- 1400 (28 March 2002): The
Situation in Sierra Leone: The Security Council decides that the mandate
of UNAMSIL shall be extended for a period of six months from 30 March
2002; expresses its serious concern at the violence, particularly sexual
violence, suffered by women and children during the conflict in Sierra
Leone, and emphasizes the importance of addressing these issues
effectively; expresses its serious concern at the evidence UNAMSIL has
found of human rights abuses and breaches of humanitarian law set out in
paragraphs 38 to 40 of the Secretary-General’s report of 14 March 2002
(S/2002/267), encourages UNAMSIL to continue its work and in this
context requests the Secretary-General to provide a further assessment
in his September report, particularly regarding the situation of women
and children who have suffered during the conflict; expresses its
serious concern at allegations that some United Nations personnel may
have been involved in sexual abuse of women and children in camps for
refugees and internally displaced people in the region, supports the
Secretary-General’s policy of zero tolerance for such abuse, looks
forward to the Secretary-General’s report on the outcome of the
investigation into these allegations, and requests him to make
recommendations on how to prevent any such crimes in future, while
calling on States concerned to take the necessary measures to bring to
justice their own nationals responsible for such crimes. more...
- 1327 (13 November 2000): in
response to Brahimi Report more...
- 1325 (31 October 2000): Women,
Peace and Security more...
Recognizing the urgent need to
mainstream a gender perspective into peacekeeping operations, and in
this regard noting the Windhoek Declaration and the Namibia Plan of
Action on Mainstreaming a Gender Perspective in Multidimensional Peace
Support Operations (S/2000/693),
Recognizing also the importance
of the recommendation contained in the statement of its President to the
press of 8 March 2000 for specialized training for all peacekeeping
personnel on the protection, special needs and human rights of women and
children in conflict situations,
The SC urges the
Secretary-General to appoint more women as special representatives and
envoys to pursue good offices on his behalf, and in this regard calls on
Member States to provide candidates to the Secretary-General, for
inclusion in a regularly updated centralized roster;
Further
urges the Secretary-General to seek to expand the role and contribution
of women in United Nations field-based operations, and especially among
military observers, civilian police, human rights and humanitarian
personnel;
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;
Requests the Secretary-General to
provide to Member States training guidelines and materials on the
protection, rights and the particular needs of women, as well as on the
importance of involving women in all peacekeeping and peace-building
measures, invites Member States to incorporate these elements as well as
HIV/AIDS awareness training into their national training programmes for
military and civilian police personnel in preparation for deployment,
and further requests the Secretary-General to ensure that civilian
personnel of peacekeeping operations receive similar training;
Urges Member States to increase their voluntary financial,
technical and logistical support for gender-sensitive training efforts,
including those undertaken by relevant funds and programmes, inter alia,
the United Nations Fund for Women and United Nations Children’s Fund,
and by the Office of the United Nations High Commissioner for Refugees
and other relevant bodies;
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;
Requests the Secretary-General,
where appropriate, to include in his reporting to the Security Council
progress on gender mainstreaming throughout peacekeeping missions and
all other aspects relating to women and girls.
- 1308 (17 July 2000): on the
responsibility of the Security Council in the maintenance of
international peace and security: HIV/AIDS and international
peacekeeping operations The Security Council encourages Member States to
consider developing, in cooperation with the international community and
UNAIDS, where appropriate, effective long-term strategies for HIV/AIDS
education, prevention, voluntary and confidential testing and
counselling, and treatment of their personnel, as an important part of
their preparation for their participation in peacekeeping operations. more...
- 1265 (17 September 1999): on
the protection of civilians in armed conflict. “The Security Council …
Recognizing the direct and particular impact of armed conflict on women
as referred to in paragraph 18 of the report of the Secretary-General
and, in this regard, welcoming the ongoing work within the United
Nations system on the implementation of a gender perspective in
humanitarian assistance and on violence against women, … Notes the
importance of including in the mandates of peacemaking, peacekeeping and
peace-building operations special protection and assistance provisions
for groups requiring particular attention, including women and children;
Requests the Secretary-General to ensure that United Nations personnel
involved in peacemaking, peacekeeping and peace-building activities have
appropriate training in international humanitarian, human rights and
refugee law, including child and gender-related provisions, negotiation
and communication skills, cultural awareness and civilian-military
coordination, and urges States and relevant international and regional
organizations to ensure that appropriate training is included in their
programmes for personnel involved in similar activities.” more....
Brahimi Report and
Follow-up
Brahimi Report: "Report of the Panel on United Nations Peace Operations"
S/2000/809-A/55/305 (21 August 2000). Though this landmark report
makes crucially important recommendations for more effective conflict
prevention, peacekeeping and peace-building in their political, financial
and operational aspects, it fails to provide any gender analysis in these
areas.
Follow-up
Reports of the Secretary-General and Others
- 20 October 2000:
Follow-up reports of the Secretary-General on the implementation of the report of the Panel.
Gender aspect is mentioned throughout the text.
- 27 October 2000: On resource requirements for the implementation of the
report of the Panel on United Nations Peace Operations, Addendum,
A/55/507/Add.i, para 5.28. Calls for the establishment of a Gender Unit
in the office of the Under-SG of DPKO. “… beginning with needs
assessment missions through post-conflict peace-building. Gender
perspectives should be considered in analyses, policy and strategy
development and planning of peace support operations, as well as
training programmes and instruments developed to support effective
implementation of those operations, such as guidelines, handbooks and
codes of conduct. All aspects and all levels of peace support operations
require attention to gender perspectives, including political analysis,
military operations, civilian police activities, electoral assistance,
human rights support, humanitarian assistance, including for refugees
and displaced persons, development and reconstruction activities and
public information. Training of troops and civilian police on gender
issues is critical. In the context of complex missions where interim
governments will be established, gender balance in interim bodies and
development of capacity within those important bodies to work with
gender perspectives need to be considered. Experience has shown that it
is important to ensure attention to gender perspectives from the very
outset of peace-building and peacekeeping missions, including through
incorporation in the initial mandates. All reports of the individual
mission to the Security Council should include explicit routine
reporting on progress in integrating gender perspectives as well as
information on the number and levels of women involved in all aspects of
the mission.” and addendum pp. 1-25; pp. 26-50; pp. 51-75; pp. 76-97.
- 1 June 2001: On Implementation of the recommendations of the Special
Committee on Peacekeeping Operations and the Panel on United Nations
Peace Operations A/55/977. Paragraphs 265-269 emphasizes that the
Office of the Special Adviser on Gender Issues and the Department of
Peacekeeping Operations need to work more closely together and dedicate
greater attention to gender issues in various aspects of
peacekeeping.
- 21 December 2001: On the Implementation of the recommendations of the
Special Committee on Peacekeeping Operations and the Panel on United
Nations Peace Operations. Paragraphs 46-50. Gender and Peacekeeping
Operations
- 17 October 2003:
The transformation from traditional to "robust"
peacekeeping operations, the role of regional organizations in
United Nations peace activities, and outstanding issues in the
continuing reform of peacekeeping missions were amongst the topics
addressed as the General Assembly continued its general debate on the
comprehensive review of peacekeeping operations. The representative of
Bangladesh said multidimensional peacekeeping operations had become the
order of the day. As peacekeeping has evolved, a "one-size-fits-all"
peacekeeping model is no longer ensure success. Pointing to the
newly-created United Nations Mission in Liberia (UNMIL) as an example of
a robust, multidimensional peace operation, the representative of the
United States praised the leadership of the Economic Community of West
African States (ECOWAS) for its efforts to bring peace to Liberia, as
well as the ECOWAS-led force, ECOMIL, for laying the groundwork for the
mission. With the Mission's force size expected to grow to some 15,000
troops, UNMIL would be the world's largest peacekeeping force and the
first to have included in its mandate provisions to revitalize the
country's judiciary and correctional sectors. Referring to regional
arrangements, The representative of Guyana stated that regional
organizations may be best suited to taking a principle role in finding
solutions, when referring to regional arrangements.
(GA/SPD/267)
Secretary-General
Other Security Council
documents
General Assembly
-
"A Comprehensive Strategy to Eliminate Future Sexual
exploitation and Abuse in UN Peacekeeping Operations." 24 March 2005.
A/59/710:
The Secretary-General submitted the report to
the President of the General Assembly and requested it be circulated to
the General Assembly. HRH Prince Zeid Ra'ad Zeid Al Hussein, Permanent
Representative of Jordan to the UN, prepared the report. In April 2003,
the General Assembly adopted resolution 57/306, which requested the
Secretary-General and troop-contributing countries (TCCs) to adopt
measures to prevent sexual exploitation and abuse (SEA). The
Secretary-General's Bulletin on SEA (ST/SGB/2003/13) defined SEA and the
rules governing it.
In 2004, DPKO received a total of 105
allegations, 16 against civilian personnel, 9 against civilian police
and 80 against military personnel. Forty-five per cent of the
allegations involved sex with minors, thirty-one per cent involved
prostitution, 18 per cent involved rape and sexual assault and the
remaining 6 per cent involved other forms of SEA as defined by the
Secretary-General's Bulletin. SEA undermines the credibility and
effectiveness of a peace operation as SEA exposes the mission to
blackmail and retaliation and may violate international humanitarian and
human rights norms. Furthermore, "a peacekeeping operation cannot
legitimately advise the government on adherence to international human
rights standards and legal and judicial reform if its own peacekeeping
personnel are engaging in acts of SEA, including such crimes as rape."
SEA exposes peacekeepers and the community to increase risk of HIV and
STI infection and victims and abandoned babies to stigma and insecurity
in their societies. External factors, such as extreme poverty, broken
social fabric, high numbers of unaccompanied children, high rates of
sexual and gender based violence against women and girls during
conflict, which contributes to a degree of acceptance, and de facto
or de jure impunity, contribute to the problem of SEA.
The report outlines the rules governing the conduct of UN
personnel, noting that a significant challenge is the fact that
different sets of rules govern different classes of personnel, with the
discipline of military personnel being the responsibility of TCCs.
Summary of Recommendations on Rules Governing
Personnel:
"The General Assembly should reiterate its
approval of the standards set out in the 2003 bulletin and make them
applicable to all categories of peacekeeping personnel, without
exception. It should also request the Secretary-General to ensure that
all civilian personnel are bound by them. Furthermore, the Assembly
should decide that those standards and the standards contained in Ten
Rules and We Are United Nations Peacekeepers be included in the model
memorandums of understanding, and the troop-contributing countries
should undertake to issue the standards in a form binding on their
personnel. The Secretary-General and troop-contributing countries should
cooperate to issue the standards set out in the 2003 bulletin, as well
as those contained in Ten Rules and We are United Nations Peacekeepers,
to troop-contributing country personnel in convenient card form in the
languages of those personnel, with the troop-contributing country
providing the translation and the mission arranging for publication of
the cards at its cost."
Investigation methods are also
criticized by the report. TCCs have often complained about evidence
gathering, which has contributed to their reticence to deal with
allegations swiftly and comprehensively.
Summary of
Recommendations on Investigation Methods:
"It is
recommended that the General Assembly authorize the establishment of a
professional investigative capacity to investigate allegations of sexual
exploitation and abuse and misconduct of a similar grave nature against
all categories of peacekeeping personnel. The investigative body must be
staffed by experts who have had experience in sex crime investigations,
particularly those involving children. It must have access to modern
forensic methods of identification. Furthermore, it must be independent
of the missions and could be regionally based. It is recommended that
the troop-contributing country participate as a member in any case that
concerns its troops and that it participate through an expert in
military law, preferably a military prosecutor, designated in the
memorandum of understanding, who would be flown to the investigation
site by the United Nations to ensure that evidence was gathered in such
a manner that it could be used in a subsequent court martial or in
national judicial proceedings. It is recommended that troop-contributing
countries conduct on-site courts martial and that countries whose
legislation does not permit them consider reforming their legislation."
A further critical problem identified by the report
regards the issues of organizational, managerial and command
accountability. According to the report, a justifiable perception exists
that allegations of SEA have not been dealt with sufficient severity.
Summary of Recommendations on Institutional Accountability:
"A number of basic measures are recommended in the
present report that the Organization, as part of its responsibility for
the conduct of peacekeeping operations, must implement to attempt to
eliminate sexual exploitation and abuse. The Organization must require
its managers to lead by example and ensure that training programmes for
all categories of personnel are instituted prior to deployment and
during the mission assignment. The Organization must institute a
programme of outreach to the local community and enable alleged victims
to make complaints. It must develop a data tracking mechanism that will
enable senior management to be aware of the number and type of
allegations and the state of follow-up investigations into them and to
ensure that those found culpable of such offences are not rehired. A
number of key positions at Headquarters and in the field are needed to
respond effectively to sexual exploitation and abuse, and the number of
female peacekeeping personnel should be increased. When condoms are
distributed to troops it should be made clear that it is being done as
part of the fight against transmission of HIV/AIDS. The Organization
should take proper account of non-specific allegations, which are often
a warning sign of a breakdown in discipline or possible misconduct. The
Organization should encourage troop-contributing countries to send
established units to peacekeeping operations, as they are usually
managed and disciplined better than units assembled specifically for the
peacekeeping operation from existing units.
Mission-specific measures should be instituted to deal
with sexual exploitation and abuse, such as curfews and off-limits areas
and replacement of static guard posts with mobile patrols, if
appropriate. If possible, the mission's Military Police Unit should be
from a contingent other than one of those being supervised. In some
high-risk areas, it might be necessary for a mission to have stricter
rules than those contained in the 2003 bulletin. Some
measures should be instituted to ease the living conditions in the
missions, such as provision of recreational facilities for troops with
free Internet service and subsidized telephone calls to facilitate
contact with family and friends. Measures should also be instituted to
help alleged victims, including provision of emergency medical care and
psychological counselling and advice on how to make a claim against
alleged perpetrators. A trust fund for victims should be established and
missions should give feedback to alleged victims on the results of its
investigations into their complaints.
Civilian managers and military commanders must be
specifically tasked with implementing the programmes and policies of the
Organization to eliminate sexual exploitation and abuse, and their
performance should be assessed on the basis of how they implement those
policies. Those who carry out the programmes should be rewarded and
those who fail to do so should be removed from managerial and command
functions. The model memorandum of understanding should provide that
contingent commanders who cooperate with Department of Peacekeeping
Operations investigations into allegations made against members of their
contingents are commended and that those who fail to cooperate or
obstruct such investigations are repatriated, and the Secretary-General
should write to the Head of State of the country concerned explaining
why the commander was repatriated. It is recommended that in such cases
the United Nations recover all payments made in respect of that
commander and that those funds be paid to the trust fund for victims.
Contingent commanders who take action to discipline their contingent
members and who cooperate fully with a Department of Peacekeeping
Operations investigation to make it possible for those who violate the
2003 bulletin standards to be punished should be specially commended by
the Secretary-General in a letter addressed to the Head of State or
Government."
The final area for action identified by
the report is regarding individual disciplinary, financial and criminal
accountability. The report notes the widespread perception that
peacekeeping personnel are rarely prosecuted for their acts and do not
suffer financial consequences for their actions.
Summary of
Recommendations on Individual Accountability:
Personnel
who violate the standards set out in the 2003 Secretary-General's
bulletin should be subjected to disciplinary action. The General
Assembly should characterize breaches of the 2003 bulletin as "serious
misconduct" under the Staff Regulations. Any staff members, civilian
police or military observers who are found to have committed acts of
sexual exploitation and abuse should have their appointments terminated.
In addition, staff should be fined and the proceeds paid into the trust
fund for victims. The Directives for Disciplinary Matters Involving
Civilian Police Officers and Military Observers should be amended to
permit similar action in respect of those categories of personnel. The
model memorandum of understanding should be amended to enable the United
Nations to deduct from future payments to the troop-contributing country
the daily allowance paid to any soldier found culpable of sexual
exploitation and abuse, to pay the proceeds to the trust fund for
victims and to process claims for child support from victims in
accordance with the laws of the troop-contributing country. The rules
should be amended to compel staff and experts on mission to make child
support payments. The memorandum of understanding should specifically
provide that members of contingents are required by the
troop-contributing country to respect local laws. If acts of sexual
exploitation and abuse by military members of peacekeeping missions
constitute crimes, they should result in prosecution under the laws of
the troop-contributing country. The model memorandum of understanding
also ought to provide that if a Department of Peacekeeping Operations
investigation is conducted and it is concluded that the allegations are
well founded, the troop-contributing country is obligated to forward the
case to its national authorities to be considered for prosecution under
the laws of that country. Furthermore, it should provide that those
authorities will take their decision in the same manner as they would in
the case of an offence of a similar grave nature falling under the laws
of the troop-contributing country and will report the outcome of the
prosecution to the Secretary-General. It should also provide that if
those authorities conclude that prosecution is not appropriate, the
troop-contributing country agrees to submit to the Secretary-General a
report explaining the reasons for that decision. The founders of the
Organization did not intend that immunity would function to shield staff
and experts on mission from national prosecution if they committed
crimes in the host State. However the absence of a functioning judicial
system in some peacekeeping locations requires long-term international
cooperation to ensure that United Nations staff and experts on mission
are not immune from criminal prosecution. It is recommended that the
Secretary-General establish a group of experts to study the issue and
make recommendations to the General Assembly on whether an international
convention or other means could be used to ensure that United Nations
staff and experts on mission who commit defined crimes in peacekeeping
areas are held criminally accountable for their actions. more...
- 17 December 2001: A/C.5/56/L.32
Fifth Committee, Draft Resolution submitted by the Chairman following
informal consultations: Comprehensive review of the whole question of
peacekeeping operations in all their aspects, paragraph 17.
- 16 October 2001: A/56/478
Implementation of the report of the Panel on United Nations Peace
Operations, Report of the Advisory Committee on Administrative and
Budgetary Questions, paragraph 33.
- 9 August 2001: A/C.5/55/46 GA,
Comprehensive review of the whole question of peacekeeping operations in
all their aspects, Programme budget implications of draft resolution
A/C.4.55.L.23, Statement submitted by the General Assembly in accordance
with rule 153 of the rules of procedure of the General Assembly,
paragraph 15.
- 8 August 2001:
A/C.5/55/46/Add.1 GA Comprehensive review of the whole question of
peacekeeping operations in all their aspects, Programme budget
implications of draft resolution A/C.4/55/L.23, Statement submitted by
the Secretary General in accordance with rule 153 of the rules of
procedure of the General Assembly, paragraphs 5.13-5.14.
- 8 December 2000, A/55/676
Implementation of the report of the Panel on UN Peace Operations, Report of the Advisory Committee on Administrative and
Budgetary Questions, paragraph 44.
- 27 October 2000: A/55/507/Add.1
Resource requirements for implementation of the report of
the Panel on UN Peace Operations
Experts'
Assessement
Chapter from Women, War Peace on Peacekeeping by
the Independent Experts: Women
and Peace Operations
Recommendations
Recommendations
on Women and Peacekeeping made by
the Independent Experts and other Actors, Institutions and
Organizations:
The Secretary General Recommends in his
study, Women, Peace and Security (Chapter V):
Action 1: Incorporate gender
perspectives explicitly into mandates of all peacekeeping missions,
including provisions for monitoring and reporting violations of
international law as they pertain to women to the Security Council.
Action 2: Increase
responsiveness to the protection needs of women and girls; investigate
gender-based and sexual violence; and end impunity regarding violations
of the human rights of women and girls.
Action 3: Consult with civil
society, including local women’s groups and networks, to ensure
collection of information from all stakeholders and attention to the
specific needs, concerns and experiences of women and girls in the
implementation of peacekeeping operations.
Action 4: Systematically and
explicitly address gender perspectives in all Secretary-General’s
reports on peacekeeping missions to the Security Council, and for that
purpose, prepare and disseminate a guidance note on the integration of
gender perspectives in reports of the Secretary-General to the Security
Council.
Action 5: Ensure that
peacekeeping operations have adequate capacity for fact-finding and
reporting on gender-specific violations of the rights of women and girls
under international humanitarian law and human rights law, including
through the provision of training on culturally appropriate interview
techniques and trauma counselling and the use of female personnel (such
as protection officers, medical personnel, and interpreters).
Action 6: Review and strengthen
codes of conduct to ensure that expected standards of conduct to prevent
sexual exploitation and abuse of women and girls are clearly defined;
disseminate the codes of conduct, including through training, to all
personnel in peace operations – both before and during deployment;
rigorously enforce these codes of conduct; and make public the
accountability and disciplinary measures which apply to United Nations
personnel in the event of a breach of the standards of conduct.
Action 7: Disseminate
information on standards of conduct in peacekeeping operations and
ensure that troop contributing countries adhere to existing policies and
codes of conduct of the United Nations on gender equality, particularly
relating to sexual exploitation of women and girls, and put in place
adequate accountability mechanisms and disciplinary measures.
Action 8: Review standard
operating procedures, instructions, guidelines and manuals used to guide
operational activities and incorporate gender perspectives.
Action 9: Monitor and report on
gender issues in peacekeeping, including on all forms of violence
against women and girls, as an integral part of mission reporting.
Action 10: Require that all data
collected in research, assessments and appraisals, monitoring and
evaluation and reporting on peace operations is systematically
disaggregated by sex and age and that specific data on the situation of
women and girls and the impact of interventions on them is provided.
Action 11: Set concrete targets
for the appointment of women as Special Representatives and Special
Envoys of the Secretary-General.
Action 12: Increase the
recruitment of women as military observers, peacekeeping troops, and
civilian police by troop contributing countries.
Action 13: Ensure necessary
financial and human resources for gender mainstreaming, including for
capacity-building activities, as well as for targeted projects for women
and girls, as part of approved mission budgets.
Action 14: Establish awareness
of and capacity to address gender issues as a standard professional
requirement for all senior staff in peace operations, for example,
Special Representatives of the Secretary- General, Force Commanders,
Chief Administrative Officers, Special Envoys and peace negotiators;
clearly incorporate responsibilities for promoting gender equality into
the job descriptions of senior staff, including SRSGs; and require
regular reporting on gender mainstreaming.
Action 15: Create the post of a
Senior Gender Adviser at Headquarters in the Department of Peacekeeping
Operations, reporting to the Under-Secretary -General, to support
mainstreaming of gender perspectives in all departmental activities at
Headquarters as well as provide adequate backstopping to field
operations.
Action 16: Appoint gender
advisers/gender focal points in missions with complex, multi-faceted
mandates to support the work of the Special Representatives of the
Secretary-General on incorporation of gender perspectives throughout the
work of peacekeeping missions; and give adequate attention to location,
mandates, resources, reporting lines and support from top management, as
well as systematic backstopping from Headquarters, of these
positions.
Action 17: Ensure that training
for all personnel in peacekeeping operations — military, police and
civilian staff — both before and during deployment, adequately addresses
the issue of violence against women, including domestic violence and
trafficking, within a human rights framework.
Action 18: Provide adequate
training on gender perspectives to all international and local
peacekeeping personnel — before and during deployment.
Action 19: Develop and
disseminate training of trainer programmes on gender perspectives in
peacekeeping operations to support national and regional training
initiatives for military and police prior to deployment.
Recommendations of the Independent Experts
in Women War
Peace recommend:
- Gender experts and expertise to be
included in all levels and aspects of peace operations,
including in technical surveys, the design of concepts of
operation, training, staffing and programmes. To this end, a
Memorandum of Understanding should set out the roles and
responsibilities among DPKO, Department of Political Affairs (DPA),
UNIFEM and the Division for the Advancement of Women (DAW).
Explanation of the Recommendation: In 2000 DPKO
stated that, “Women’s presence [in peacekeeping missions] improves
access and support for local women makes male peacekeepers more
reflective and responsible and it broadens the repertoire of skills and
styles available within the mission, often with the effect of reducing
conflict and confrontation. Gender mainstreaming is not just fair, it is
beneficial.” However, DPKO, like many other UN departments, has not done
enough to operationalize these realizations and clearly needs the kind
of support and knowledge that could be gained through a formalized
agreement on the roles and responsibilities of various UN entities when
it comes to UN peacekeeping operations delivering for women. While
informal and ad hoc arrangements do occur between some of the partners,
there is not an MOU that addresses the glaring gaps that could be filled
better through collaborative efforts. Because it is much harder to alter
structural and programming priorities after they have been determined,
integrating gender considerations at the initial analysis and assessment
phases of peace keeping operations is desirable. By including gender
experts on assessment and fact finding missions, different information
and insights may arise for implementing humanitarian relief efforts,
providing political analysis and early warning, as well as economic and
social programming may result.
Entities
Responsible: Secretary-General, SRSGs, DPKO, DPA, UNIFEM,
DAW
Ideas for Implementation: DPKO, DPA, UNIFEM
and DAW should meet at the highest levels to assess the level of
collaboration to date, and how to enhance it through a Memorandum of
Understanding. Such an understanding would facilitate rapid deployment
and stand by arrangements whereby a roster of qualified gender experts
can be made available for assessment and fact-finding missions and
appropriate training can be provided. An independent consultant could be
engaged to facilitate a process of consultations within the departments
to brainstorm ideas, needs and opportunities that arise for
collaboration. A roster of qualified gender experts specifically for
assessment and fact-finding missions should be compiled.
- A review of training programmes on and
approaches to the gender dimensions of conflict resolution and
peace-building for humanitarian, military and civilian
personnel. United Nations entities active in this area should
lead this process with support provided by the Special Advisor on Gender
Issues and Advancement of Women and the Task Force on Women, Peace and
Security with a view to developing guidance on training policy and
standards.
Explanation of the Recommendation:
Protecting refugees is vastly different from guarding prisoners of war.
Prosecuting criminal traffickers in war is vastly different from
protecting women victims of trafficking. Establishing the rule of law is
different to simply enforcing it. All staff of peace support operations
need training, including gender training, so they can carry out the
wider range of tasks required of them in today's post-conflict
situations, and to help them adjust and be responsive to the cultural
milieu in which they will function. Training peacekeeping personnel on
gender issues can also promote gender mainstreaming within an operation,
irrespective of the number and level of women an operation may employ.
Although training is the primary responsibility of individual
governments, the United Nations and regional organizations should ensure
consistent approaches and encourage collaboration. Achieving this would
require a full-fledged review of content as well as strategy: analyzing
who provides training, who receives it, when it takes place, for how
long and with which resources. Ideally, training should take place prior
to deployment, but once a mission is assembled, in-service training
initiatives can be extremely useful.
Entities
Responsible: DPKO, OSAGI, Inter-agency Task Force on Women,
Peace and Security
Ideas for Implementation:
Central questions about training remain — does each UN agency do it, or
do we develop standard or minimal packages, or sub-contracting
arrangements? A consultant under the supervision of OSAGI and the
Inter-Agency Task Force on Women, Peace and Security should compile a
readily available centralized repository of materials used and
approaches taken in dealing with the gender components of all training
undertaken at the national, regional and international levels. A survey
of those who have given, and those who have received the training would
reveal some indications of its successes and failures, and could help
give a sense of what works, when and how. OSAGI and the Task Force on
Women, Peace and Security could then formulate recommendations regarding
the use of resources and lessons learned in the process of reversing
gender discrimination and stereotypes through training.
- All UN peace operations to include a
human rights monitoring component, with an explicit mandate and
sufficient resources to investigate, document and report human rights
violations against women.
Explanation of the
Recommendation: Human rights monitoring is one of the most
important but under utilized ways of improving women's protection.
Although human rights components are now systematically included in
peacekeeping operations, they often lack necessary human and financial
resources, including gender expertise. If appropriately staffed and
resourced, human rights components have the potential to engage not only
in monitoring gender-specific violations but also to engage in
capacity-building, through training and other projects to enhance
national and local capacity for women's protection.UNHCHR is already
involved in a number of post-conflict legal reforms, including
constitutional and judicial reforms (i.e. Cambodia), and legislative
reforms to synthesize the Guiding Principles of Internal Displacement
into national laws (i.e. Colombia). UNIFEM should collaborate with these
initiatives to ensure that gender is fully taken into account. In
peacekeeping environments, human rights officers sent by UNHCHR often
serve as gender focal points (i.e. Sierra Leone), and HCHR-UNIFEM
collaboration in peacekeeping environment should be critical to ensure
gender is reflected within peacekeeping operations. In addition,
Independent Experts considered UNHCHR could be a lead agency for IDP
protection and assistance, if they can strengthen operational capacity.
Entities Responsible: Security Council, SRSGs,
OHCHR, DPKO, DPA
Ideas for Implementation: The
Security Council should establish an ombudsperson and a human rights
monitoring component in all operations through the mandate of the
peacekeeping operation, and should receive and act upon reports of human
rights violations.SRSGs, DPKO and DPA to systematically include
information about the violation of enjoyment of women’s human rights in
all of their reports to the Security Council.UNIFEM’s MOU with UNHCHR
could include: (a) partnership between human rights officers and UNIFEM
personnel on the ground to ensure, and provide technical assistance if
necessary, that gender is fully reflected in the design and
implementation of human rights work supported by UNHCHR in peacekeeping
environment; (b) increased collaboration between UNHCHR and UNIFEM in
the context of UN country team to support policy and programming to
ensure that women’s rights are integrated in national legal reforms; (c)
increased technical, policy, and operational assistance for IDP women,
including national legal reforms in compliance with the Guiding
Principles; (d) joint development of gender and human rights projects
for CAP.
- The improvement and strengthening of
codes of conduct for international and local humanitarian and
peacekeeping personnel and for these codes to be consistent with
international humanitarian and human rights law and made
compulsory. An office of oversight for crimes against women
should be established in all peace operations. The office should
regularly monitor and report on compliance with the principles set forth
in the IASC Task Force on the Protection from Sexual Exploitation and
Abuse in Humanitarian Crises.
Explanation of
Recommendation: Troop contributing countries retain exclusive
criminal jurisdiction over military personnel. The United Nations does
not keep systematic records of accusations against peacekeepers. While
there is a provision for immunity in the Status of Force Agreements
(SOFA), there is also an obligation on the part of DPKO to demand and
for member states to supply the information about those soldiers
repatriated due to misbehaviour. To increase the protection of women in
peacekeeping environments the Secretary-General called for the
establishment of an Ombudsperson in every peace operation who would
handle reports of abuse by peacekeeping personnel. Together with an
Inspector General or an office set up specifically for this purpose, she
or he could carry out investigations and impose disciplinary measures in
cooperation with the SRSG, the Force Commander and the Office of
Internal Oversight Services. In all instances, a community relations
office with national staff, similar to the model established in the
Cambodia mission, should act as liaison with the host community and
facilitate the complaints process.
Entities
Responsible: Secretary-General,Troop contributing countries,
DPKO, IASC Task Force on the Protection from Sexual Exploitation and
Abuse in Humanitarian Crises.
Ideas for
Implementation: DPKO should assign adequate financial and human
resources to the reintroduction of keeping records of the results of
disciplinary action taken by member states after a national is sent home
from a peace operation for misbehaviour,The Security Council should
establish an Ombudsperson and a community relations office in the
mandate and concept of operation for each peacekeeping operation. The
UN’s currently ambiguous policies in regulating interaction between UN
peacekeeping personnel and the local female population should be
updated, in particular with respect to sexual relations with women in
the host community, marriage with local women during the term of duty,
cohabitation with local women in premises, including live-in employees
(e.g. maids), financial and legal responsibility for children parented
by peacekeepers, prostitution off and on duty, minimum age of sexual
consent.
- No exemptions for peacekeepers from
prosecution by international tribunals, the International Criminal Court
and national courts in the host country for all crimes committed,
including those against women. All States maintaining
peacekeeping forces should take necessary measures to bring to justice
their own nationals responsible for such crimes, as called for by the
Security Council (S/RES/1400 (2002)).
Explanation of
Recommendation: The International Criminal Court offers one
means of ensuring the accountability of peacekeepers. In a Relationship
Agreement between the ICC and the UN, the UN has promised to cooperate
with and assist the work of the Court. The Statute offers ample
safeguards against politically motivated prosecutions and is relevant
only when national authorities fail to act. But on 12 July 2002 the
possibility of ensuring accountability was postponed for one year when
the U.S. government tied immunity for its peacekeepers to the renewal of
the mandate of the UN Mission in Bosnia and Herzegovina. By agreeing to
delay the implementation of this article, the Security Council is
sending the wrong message: that those who commit crimes against women
can do so without fear of punishment. For as long as the Statute’s
authorization to prosecute peacekeepers is delayed, so too is justice
for women because the ICC statute offers the strongest definition of
gender crimes and states parties are obliged to harmonize national laws
to the standards of the ICC.
Entities
Responsible: Security Council, All troop contributing
countries, All host countries to peacekeeping operations, All those
states that have ratified the ICC, DPKO
Ideas for
Implementation: UN member states should condemn and not enter
into bi-lateral agreements that would provide immunity for the nationals
of selected states and not others from prosecution for war crimes and
crimes against humanity. Such agreements undermine the universal
application of international humanitarian and human rights standards. On
12 July 2003, the Security Council should not renew the resolution
granting immunity to US personnel from war crimes and crimes against
humanity.
- UN peace operations to improve
opportunities for collaboration with women’s groups to address gender
issues in a peacekeeping environment.
Explanation of
Recommendation: Women in the local communities we visited were
deeply affected by what is usually referred to as a 'peacekeeping
environment'. Peacekeeping missions are essentially assisting local
communities in their search for durable peace from training and
restructuring local police forces to monitoring respect of human rights
and investigating alleged violations. None of this can be done in
isolation from the community. This recommendation suggests that
increased communication and collaboration with local women’s
organizations who know the local environment, social mores and taboos,
etc on the part of those working in the peacekeeping mission would be
beneficial.
Entities Responsible: SRSGs, UN
Country Teams, NGOs
Ideas for Implementation:
The SRSG in East Timor initiated a practice of meeting with NGOs on a
bi-weekly basis, an excellent way of opening up channels of
communication, sharing information, planning and opportunities. SRSG’s
should develop similar appropriate mechanisms for ongoing consultation
and transparency with civil society organizations, including women’s
organizations and advocates, which would encourage communication and
collaboration at agency and programme level between the UN system and
women’s organizations.The UN country team should utilize the NGO managed
database of women’s peace organizations on www.peacewomen.org
in reaching out to civil society.
- Member States and DPKO to increase
women’s representation in peace operations, including through the
recruitment of police, military and civilian
personnel.
Explanation of
Recommendation: In the 32 years between 1957 and 1989, only 0.1
per cent of the field-based military personnel in UN peacekeeping
missions were female. And despite the fact that in 1996 the
Secretary-General recommended that by the year 2000 women constitute 50
per cent of staff in the UN system, including field missions, women made
up only 4 per cent of police and 3 per cent of military in UN operations
in 2000.
Entities Responsible: Troop
contributing countries, Donor governments, DPKO
Ideas for
Implementation: Troop, police and civilian personnel
contributing countries should provide incentives for women to
participate in peace operations.
The United Nations Population Fund
(UNFPA) recommends:
- Global institutional arrangements and
standards-setting, initiated by and addressed predominantly through
UNFPA-funded organizations, Departments of Peace-keeping Operations
(DPKOs), United Nations organizations and agencies and other
donors.
- Ground-level interventions targeted at the
peacekeeping forces, initiated by and addressed predominantly through
UNFPA-funded organizations, other United Nations organizations and
agencies and other donors.
- Interventions to reduce the vulnerability of the
host community, with special attention to women, initiated by and
addressed predominantly through UNFPA-supported organizations, DPKOs,
United Nations organizations and agencies, and other donors.
NGOs
PeaceWomen: Women, Gender and Peacekeeping
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