By Lauren Spink
October 31, 2020 marked the 20th anniversary of United Nations Security Council Resolution 1325 on Women, Peace, and Security (WPS). This resolution was the first of its kind to acknowledge that women are uniquely impacted by armed conflict and play an important role in conflict resolution and peacebuilding. In recognition of the anniversary, CIVIC is posting a series of blogs amplifying the voices and actions of women in the conflict affected areas where we work as well as the efforts of actors such as the UN to implement UNSCR 1325 and related resolutions.
Between February 2019 and April 2020 CIVIC undertook research in the Central African Republic (CAR), Democratic Republic of Congo (DRC), and South Sudan to assess how peacekeeping missions are addressing conflict-related sexual violence (CRSV) in these countries. Although equally critical and inter-related, our research was not focused on gender parity or accountability for sexual exploitation and abuse (SEA) that peacekeepers might themselves perpetrate against civilians in the countries where they are deployed. During our research, however, we found that peacekeepers tended to confuse and conflate these concepts in potentially problematic ways. The full findings of our research are included in CIVIC’s recently released report “We Have to Try to Break the Silence Somehow:” Preventing Conflict-Related Sexual Violence through UN Peacekeeping.” Through our blog, we are highlighting a text box from our report that discusses how the peacekeepers we spoke with viewed the intersection of SEA, gender parity, and protection of civilians from CRSV.
As part of the WPS agenda, peacekeeping missions are not only asked to better protect civilians from CRSV, they are asked to eliminate SEA by peacekeepers and to achieve gender parity by fostering more diversity, inclusivity, and gender balance in UN staffing. These activities should be mutually reinforcing. As already discussed, most stakeholders who spoke with CIVIC agreed that female peacekeepers can more easily engage women about CRSV and other threats.[1] Other research participants explained that improving the gender balance of UN staffing could lead to better gender analysis and responsiveness to CRSV.[2] Moreover, some stakeholders articulated a need for UNMISS, MONUSCO, and MINUSCA to reduce SEA to be credible actors on CRSV in the eyes of civilians.[3]
While these activities can be mutually reinforcing, the concepts of SEA, gender parity, and gender-sensitive protection of civilians are not interchangeable. Yet it was clear from CIVIC’s interviews that a number of peacekeeping officials in these Missions conflate, confuse, or oversimplify the relationship between them.[4] For example, when asked how their Missions are attempting to address CRSV or gender-related protection concerns, a number of peacekeepers referenced initiatives that primarily address gender parity or efforts to reduce SEA. While female peacekeepers can help missions better engage women, they are not necessarily any better trained or better qualified to address CRSV than their male colleagues. One UNMISS civilian official observed, “What we are doing, they call it gender, but it is affirmative action.” This official advocated for a refocusing of gender efforts on protection of civilians from CRSV.[5] Confusion may be partly attributed to communication and training: training for the military in some Missions has focused primarily on SEA,[6] while Mission statements, strategies, and indicators have emphasized gender parity more than responsiveness to CRSV.[7] As one UNMISS military official stated, “SEA is strongly educated against and there is a low rate. GBV is under-reported and endemic and there is little accountability.”[8] Similarly, a MINUSCA military official reflecting on guidance from the Mission’s military leadership observed that “they mention a lot [about] SEA and women in the Force, and the Force with local women. I think those are the two kinds of sexual violence they are focused on.”[9]
SEA, gender parity, and protection of civilians from CRSV should not be competing interests. To ensure they are not, Member States and missions need to equally emphasize the importance of these concepts and prioritize all three initiatives in their statements, strategies, monitoring, and reporting.
[1] CIVIC interview with Mission military official, #21, Bangui, February 2020; CIVIC interview with Mission police official, #23, Bangui, February 2020; CIVIC interview with Mission military official, #41, Bangui, February 2020; CIVIC interview with Mission civilian official, #45, Bangui, February 2020; CIVIC interview with Mission police official, #29, Kinshasa, February 2019; CIVIC interview with Mission civilian official, #32, Kinshasa, March 2020; CIVIC interview with humanitarian official, #4, Juba, December 2019; CIVIC interview with civil society leader, #9, Juba, December 2019; CIVIC interview with Mission civilian official, #42, Yei, December 2019.
[2] CIVIC interview with humanitarian official, #39, Bangui, February 2020; CIVIC interview with Mission civilian official, #128, Kinshasa, October 2019; CIVIC interview with Mission civilian official, #156, Goma, October 2019; CIVIC interview with Mission civilian official, #213, Goma, October 2019; CIVIC interview with Mission civilian official, #216, Goma, October 2019; CIVIC interview with Mission civilian official, #247, location in the DRC withheld, November 2019; CIVIC interview with Mission civilian official, #52, Juba, December 2019.
[3] CIVIC interview with humanitarian official, #22, Bangui, February 2020; CIVIC interview with humanitarian official, #36, Bangui, February 2020; CIVIC interview with Mission civilian official, #45, Bangui, February 2020; CIVIC interview with humanitarian official, #46, Bangui, February 2020; CIVIC interview with humanitarian official, #198, Kalemie, October 2019; CIVIC interview with humanitarian official, #228, Kalemie, November 2019; CIVIC interview with diplomat, #59, Juba, December 2019.
[4] CIVIC interview with Mission civilian official, #16, Bangui, February 2020; CIVIC interview with Mission civilian official, #29, Bangui, February 2020; CIVIC interview with Mission civilian official, #34, Bangui, February 2020; CIVIC interview with humanitarian official, #35, Bangui, February 2020; CIVIC interview with Mission military official, #41, Bangui, February 2020; CIVIC interview with Mission military official, #42, Bangui, February 2020; CIVIC interview with Mission police official, #13, Kinshasa, February 2019; CIVIC interview with Mission civilian official, #127, Kinshasa, October 2019; CIVIC interview with Mission civilian official, #130, Kinshasa, October 2019; CIVIC interview with Mission civilian official, #131, Kinshasa, October 2019; CIVIC interview with humanitarian official, #142, Kinshasa, October 2019; CIVIC interview with humanitarian official, #20, Kinshasa, February 2020; CIVIC interview with Mission civilian official, #21, Kinshasa, February 2020; CIVIC interview with Mission civilian official, #25, Yei, December 2019.
[5] CIVIC interview with Mission civilian official, #25, Yei, December 2019.
[6] CIVIC interview with Mission military official, #21, Bangui, February 2020; CIVIC interview with Mission military official, #37, Bangui, February 2020; CIVIC interview with Mission military official, #38, Bangui, February 2020; CIVIC interview with Mission military official, #41, Bangui, February 2020; CIVIC interview with Mission military official, #42, Bangui, February 2020; CIVIC interview with Mission military official, #43, Bangui, February 2020.
[7] CIVIC interview with Mission civilian official, #17, Bangui, February 2020; CIVIC interview with Mission civilian official, #31, Bangui, February 2020; CIVIC interview with Mission civilian official, #47, remote call from Goma to Kinshasa, February 2019; CIVIC interview with diplomat, #141, Kinshasa, October 2019; CIVIC interview with Mission civilian official, #35, remote call from New York to Kinshasa, March 2020; CIVIC interview with Mission civilian official, #1, Juba, December 2019.
[8] CIVIC interview with Mission military official, #57, Juba, December 2019.
[9] CIVIC interview with Mission military official, #37, Bangui, February 2020.
Image courtesy of UN Photo/Herve Serefio
