WUNRN
High Level Consultation on Women,
Peace & Security: From Resolution to Action
UN Geneva - September 16, 2010
Building Institutions to Protect: Security
Sector Reform as Necessary for Implementation of 1325
Megan Bastick, Geneva Centre for the
Democratic Control of Armed Forces
Abstract:
The day-to-day
performance of security sector institutions in conflict-affected countries is
central to protection of women and girls from violence. As such, “security
sector reform” (SSR) is crucial to successful implementation of 1325.
Experience in 1325 implementation points to the need for integrated approaches,
with attention to governance, oversight and accountability dimensions, led by
local stakeholders. 1325 work may be strengthened through SSR approaches; at
the same time, existing SSR must integrate 1325.
In this year of reflection on progress on 1325
implementation, many have noted that while there have been lots of initiatives,
these have often not translated to improved protection for women and girls in
conflict-affected countries. Two of the key challenges of 1325 implementation
are the enduring lack of capacity of local institutions and the lack of
sustainability of 1325 initiatives. At the same time, much of the attention on
implementation of 1325 is on implementation within UN structures and UN forces,
and implementation by donor states. Whilst important, the front line for
protection of women and girls is more often the local police station or the
local courthouse. As such, the day-to-day performance of the police, judiciary
and armed forces in conflict-affected countries is crucial to successful
implementation of resolutions 1325, 1820, 1888 and 1889.
In forging new strategies to protect women and
girls in conflict-affected contexts, we are ready to move beyond
awareness-raising, beyond fragmented events and projects, and ready to work
with constituencies beyond the women’s rights community. The need is for
sustainable, comprehensive change across all parts of the security sector in
countries affected by conflict. Police services, armed forces, courts and other
security sector institutions must be transformed from institutions that have
marginalised women’s needs and excluded women’s participation, to institutions
willing and able to protect women and girls from violence. Such changes will
necessarily be gradual. They can be supported by the international community,
but must be led by women and men in the government, ministries, institutions
and offices concerned.
1325 1820, 1888 and 1889 as
a mandate for security sector reform
Understanding that implementing 1325, 1820, 1888
and 1889 requires systemic, deep-rooted changes to how security sector
institutions operate, we understand implementing the resolutions as a type of
“security sector reform” (SSR). SSR is a process aimed at ensuring that security and justice
providers:
·
Deliver
effective and efficient security and justice services that meet people’s needs
·
Are
accountable to the state and its people
·
Operate
within a framework of democratic governance, without discrimination and with
full respect for human rights and the rule of law.
Adopting an SSR approach in implementing the women,
peace and security resolutions allows us to learn from the experiences of
reforming the security sector to other ends. SSR is not by any means the only
way to implement them, nor a vehicle for implementation of all parts of the
resolutions, but it offers useful insights and principles to work by. The
following highlights a number of challenges in implementation of 1325, 1820,
1888 and 1889 to discuss the relevance of SSR thinking to this area.
Emphasis on local
ownership, including civil society involvement
1325 initiatives in conflict-affected countries are
often instigated by the international community, whether the UN, EU or a
bilateral donor. Too often the results are disappointing, due to a mismatch of
expectations between the external agents and national stakeholders. The UN Stabilization Force in Haiti, for example, trained
qualified female Haitian police officers on investigating crimes of gender
based violence. Following their training, however, these women were relegated
to administrative tasks, and were not able to put into practice the skills they
had learned (Pearson Peacekeeping Centre 2009). At other times, results might be good, but can be
sustained only as long as the external project funding is provided.
External support to implementation of the
resolutions is necessary. However, a heard-learnt lesson in the SSR community
is that success depends upon ‘local ownership’: while external actors might
support reform efforts, local actors must design,
manage and implement reform for it to be
effective and sustainable.
In promoting implementation of the women, peace and
security resolutions, we should work closely with the institutions concerned -
ministries, security services - but not set their agendas. We should develop
the capacity of civil society organisations to engage in security debates and
reform processes, but not tell them what their objectives should be. Fostering
local ownership requires flexibility, a focus on process and a willingness to
engage long-term.
Focus
on oversight and accountability
Ensuring accountability for implementation of the
women, peace and security resolutions is challenging. States that have adopted
1325 national action plans find it difficult to ensure that the commitments
made are implemented throughout the different ministries involved. Only halting
steps have been made toward using indicators to track 1325 implementation, and
it is far from clear that these will foster meaningful institutional reform.
Accountability is a core concern of SSR. Security
sector accountability and oversight procedures reduce impunity for human rights
violations and help to ensure compliance with legal standards. As such, SSR
looks at fostering accountability through both internal measures, such as
compliance procedures and inspections, and external oversight by parliament,
ombudspersons, the judiciary and/or civil society.
Resolutions 1325, 1820, 1888 and 1889 do
not necessarily demand a range of new accountability structures. Compliance
with women, peace and security obligations could be monitored by the bodies
tasked with monitoring compliance with human rights and other legal
obligations. As such, human rights commissioners, ombudspersons, police
inspectorates, parliamentary security committees and others who exercise
oversight over the security sector should be new partners in 1325
implementation. In conflict-affected countries, (re-)building effective
oversight of the security sector is a recurring challenge, but integrating
women, peace and security issues within broader SSR efforts to improve
accountability and oversight offers the potential for a sustainable impact
beyond attempts at stand-alone 1325 monitoring.
A holistic, system-wide
approach
Resolutions 1325, 1820, 1888 and 1889 call for
coordination of gender initiatives between different security sector
institutions, welfare agencies, healthcare providers and NGO service providers.
Structures to provide protection to victims of sexual violence in Timor Leste,
for example, include a Vulnerable Persons Unit within the police force, a Safe Room in the national
hospital, and involvement of NGOs in psychosocial counselling, a shelter, legal
assistance, and awareness-building.
Furthermore,
we increasingly understand the need for linkages between different security
initiatives. For example, the return of ex-combatants to civilian communities
has often resulted in increased levels of violence, including sexual violence.
DDR programmes and transitional security arrangements need to be coordinated
with community security initiatives that protect civilians within host
communities from the threat of sexual violence, as well as with efforts to
address proliferation of small arms and light weapons
in communities (UNIFEM 2008; UNIFEM & DPKO 2010).
A core lesson learnt in SSR is that it
must be addressed holistically, taking into account all institutions and actors
that play a role in security sector governance. SSR programmes need to be
designed and implemented in light of the complex interdependencies of the
security sector. As such, taking time to gain buy-in from all relevant
stakeholders, setting up mechanisms for coordination between different
institutions and developing integrated strategies are necessary to success.
National Action Plans go some way to
fostering this type of holistic approach and can aid coordination. But, we
should go farther, by integrating gender reforms in the policy framework and
development plans for all parts of the security sector. This is why it is
crucial that SSR processes are gender-responsive, and include implementation of
the women, peace and security resolutions. DCAF has
recently launched an addition to the Gender and SSR Toolkit on: ‘Implementing the Women, Peace and Security Resolutions in Security
Sector Reform’. This Tool sets out strategies to implement the resolutions in
security policies, defence reform, police reform, justice reform, in
preparation for peacekeeping and during armed conflict, as well as ways to
increase participation of women in security processes and security sector
institutions.
For success in creating gender-responsive security
institutions, one must look at ways to create an enabling environment – considering incentives,
leadership, each institution and the system as a whole. Capacity building of
civil society groups and state institutions alike must go beyond training on
the provisions of the resolutions, to developing the ability of people and
organisations to define strategies, set priorities, solve problems and achieve
results.
Recommendations
1.
The UN, EU and others supporting 1325
implementation should invest in strengthening
police, armed forces, courts and other national security sector institutions
in conflict-affected countries. Well-functioning security sector institutions
are key to protecting women and girls from violence.
2.
The UN, EU and others supporting 1325
implementation should work with relevant
Ministries, local authorities and civil society organisations in
conflict-affected countries. To be effective and sustainable, gender reform of
national security sector institutions must be locally designed, managed and
implemented.
3.
Efforts to implement 1325 should build good governance, effective oversight and
accountability of security sector institutions. 1325 requires institutional
reform rather than isolated initiatives.
4.
Efforts to implement 1325 should take a system-wide approach. Services
provided by police, courts, welfare agencies, the NGO sector and informal
security providers must be linked up to effectively protect women and girls
from violence.
5.
1325
implementation should be integrated in all existing and planned security sector
reform processes, including but not limited
to those supported by the UN and EU.
References
Pearson Peacekeeping Centre, Roundtable Report: UNSCR
1820: A Roundtable Discussion with Female UN Police Officers Deployed in
Peacekeeping Operations, 2009
UNIFEM,
“Women Targeted or Affected by Armed
Conflict: What Role for Military Peacekeepers?” Wilton Park Conference Summary, 2008
UNIFEM & DPKO, Addressing Conflict Related Sexual
Violence - An Analytical Inventory of Peacekeeping Practice, 2010