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Taskforce on Women, Peace and Security
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From the Charter to Security Council resolution 1325
The United Nations Charter not only committed
its members to save succeeding generations from the scourge of
war, it also unequivocally reaffirmed fundamental human rights
and the equal rights of men and women. Despite this strong commitment,
the understanding of the impact of armed conflict on women and
girls and the role of women in conflict resolution and peacebuilding
developed slowly within the United Nations. It took several
decades to develop a strong normative framework and strengthened
operational policies and procedures and make the UN system increasingly
responsive to the needs and priorities of women and girls in
countries in conflict.
Early efforts to address the situation of women in armed conflict
include the consideration by the Commission on the Status of
Women in 1969 whether special protection should be accorded
to women and children during armed conflict and emergency situations.
In 1974, the General Assembly adopted the Declaration on the
Protection of Women and Children in Emergency and Armed Conflict.
World Conferences on Women: Linking gender equality,
development and peace
Building on this early work on women in conflict, the four United
Nations World Conferences on Women focused on the linkages between
gender equality, development and peace: Mexico in 1975; Copenhagen
in 1980; Nairobi in 1985; and Beijing in 1995. Over the years,
the focus of the discussions on women and peace shifted from
overall political issues to the impact of war on women and girls
and their role in peacebuilding.
At the 1975 World Conference on the International Year of Women
in Mexico City, governments and non-governmental organizations
identified international cooperation, the strengthening of international
peace and women's political participation as specific areas
for national and international action. The Conference addressed
women's participation in the struggles against colonialism,
racism, racial discrimination and foreign domination. The World
Conference also gave impetus to the drafting of an international
treaty to eliminate discrimination against women. In time for
the Copenhagen Conference, the Convention on the Elimination
of All Forms of Discrimination against Women (CEDAW), often
referred to as women's bill of rights, was adopted by the General
Assembly in 1979 and entered into force in 1981. At the 1980
World Conference of the United Nations Decade for Women in Copenhagen,
member states and participants saw women as agents of change
at the national and international levels, and in political,
social and economic areas. Women were also seen as key in building
more just, rational societies and in the struggle for fundamental
national rights and self-determination of peoples against wars
of aggression. The Conference was concerned with the situation
of women living under apartheid in South Africa and Namibia,
as well as with the situation of the Palestinian people.
At the 1985 Nairobi World Conference, participants considered
women's participation in the efforts for peace in decision-making
positions, and in education for peace as vital to peace building.
Delegates discussed strategies for women's participation in
safeguarding world peace, averting nuclear catastrophe, halting
the arms race, and in complete disarmament. For the first time,
the various forms of violence against women in everyday life
and in all societies were highlighted as major obstacles to
the achievement of peace.
The Fourth World Conference on Women, held in Beijing in 1995,
identified women and armed conflict as one of 12 critical areas
of concern. Delegates discussed the increased participation
of women in conflict resolution at decision-making levels; the
protection of women living in the situation of armed conflict;
reduction of excessive military expenditure; and the promotion
of women's contribution to fostering the culture of peace. The
section on action in connection with armed conflict was further
reinforced by the critical areas of concern on violence against
women and the human rights of women. The Platform for Action
recognized that civilian casualties outnumber military casualties,
with women and children comprising a significant number of the
victims, and proposed a number of strategic objectives and actions
to be taken by relevant actors. It also called for the upholding
and reinforcement of the norms of international humanitarian
and human rights law in relation to the offences against women,
and the prosecution of all those responsible for such offences.
In 2000, the twenty-third special session of the General Assembly
entitled "Women 2000: gender equality, development and peace
for the twenty-first century" reaffirmed the commitments made
in the Beijing Declaration and Platform for Action. The outcome
document called for the full participation of women at all levels
of decision-making in peace processes, peacekeeping and peacebuilding.
It also addressed the need to increase the protection of girls
in armed conflict, especially the prohibition of their forced
recruitment.
In 2005, the Commission on the Status of Women conducted a ten-year
review and appraisal of the Beijing Platform and issued a declaration
reaffirming the Beijing Declaration and Platform for Action
and the outcome document.
Creating new mechanisms to address gender-based violence
The conflicts in the former Yugoslavia in the early 1990s contributed
to a growing understanding of violence against women in armed
conflict. In 1993, the Security Council established the International
Criminal Tribunal for the former Yugoslavia (ICTY) and in 1994
the International Criminal Tribunal for Rwanda (ICTR). The Statutes
and jurisprudence of the two ad hoc Tribunals, and the more
recent Statutes of the International Criminal Court (ICC), which
entered into force in 2002, and the Special Court for Sierra
Leone in 2002, include provisions which reflect an understanding
of the gender implications of armed conflict and are of great
significance in the context of redress for women and girls through
the international criminal law process.
In 1993, the General Assembly adopted the Declaration on the
Elimination of Violence against Women, which recognized that
women in situations of armed conflict are especially vulnerable
to violence.
In 1994, the United Nations Commission on Human Rights appointed
a Special Rapporteur on violence against women, its causes and
consequences. From the beginning of her work, the Special Rapporteur
indicated that all violations of the human rights of women in
situations of armed conflict, and in particular, murder, systematic
rape, sexual slavery and forced pregnancy would be covered by
her mandate. The work of other Special Rapporteurs or Representatives
has contributed to the growing understanding of the situation
of women and girls during armed conflict. The Special Rapporteurs
on the former Yugoslavia, Rwanda, the Democratic Republic of
the Congo, as well as the Special Rapporteur on torture, have
all highlighted gender-based and sexual violence against women
and girls committed during armed conflicts.
The Commission on the Status of Women
In addition to its role in preparing the World Conferences on
Women and drafting CEDAW, the Commission on the Status of Women
adopted agreed conclusions on women and armed conflict in 1998,
which addressed gender-sensitive justice; the specific needs
of women affected by armed conflict; the need to increase women's
participation in all stages of peace processes, including conflict
prevention, post-conflict resolution and reconstruction; and
disarmament issues.
In 2004, the Commission revisited this theme and adopted agreed
conclusions on women's equal participation in conflict prevention,
management and conflict resolution and in post-conflict peacebuilding.
It was recognized that peace agreements provide a vehicle for
the promotion of gender equality and that a gender-sensitive
constitutional and legal framework was necessary to ensure that
women fully participate in such processes. Finally, the allocation
of necessary human, financial and material resources was seen
as critical for specific and targeted activities to ensure gender
equality at the local, national, regional and international
levels, as well as for enhanced and increased international
cooperation.
Other thematic debates
The work on the situation of children in armed conflict also
contributed to a deeper understanding and greater urgency on
these issues. In 1996, the Secretary-General's study on the
impact of armed conflict on children emphasized the roles and
experiences of girls and highlighted the ways in which they
are placed at high risk during armed conflict.
In 1997, the Secretary-General appointed a Special Representative
for Children in Armed Conflict with a mandate to protect and
promote the rights of war-affected children and ensure that
those rights are comprehensively addressed by the main actors
at all levels. The efforts of the Special Representative have
resulted in the inclusion of child protection officers in the
mandates of the United Nations peacekeeping missions and, more
recently, the development of a monitoring and reporting mechanism
(Security Council resolution 1612 (2005)).
In 1998, the Special Representative on internally displaced
persons formulated Guiding Principles on Internal Displacement,
which contain a number of provisions addressing the specific
needs of women.
The humanitarian community started to address the needs of women
and girls during and after conflict by developing programmes
targeted at women and producing guidelines such as the first
UNHCR Guidelines on the Protection of Refugee Women in 1991.
In 1998, the Inter-Agency Standing Committee issued a policy
statement for the integration of a gender perspective in humanitarian
assistance, and in 2005, issued guidelines for gender-based
violence interventions in humanitarian emergencies with a focus
on prevention and response to sexual violence.
The lead up to resolution 1325
In March 2000, the Security Council issued a Presidential Statement
on International Women's Day in March 2000. It recognized the
link between peace and gender equality, and the fact that women's
full participation in peace operations was essential to sustainable
peace. It was an important precursor to resolution 1325.
A thorough review of the United Nations peace and security activities
was undertaken by a high-level panel convened by the Secretary-General
in 2000, which resulted in the Report of the Panel on the United
Nations Peace Operations. The report recognized the need for
equitable gender representation in the leadership of peacekeeping
missions. The seminar on the gender perspectives of multidimensional
peacekeeping missions led to the development of the Windhoek
Declaration and the Namibia Plan of Action on Mainstreaming
a Gender Perspective in Multidimensional Peace Operations in
June 2000. The Windhoek Declaration was another critical step
leading to the adoption of resolution 1325 (2000).
On 31 October 2000, the Security Council adopted resolution
1325 under the presidency of Namibia. This resolution was the
culmination of several decades of growing realization of the
diverse roles that women play both in conflict resolution and building
peace and the result of active involvement and advocacy by women's
organizations. The resolution has galvanized the UN system,
Member States and civil society organizations and has become
one of the best known and the most translated resolutions of
the Security Council. Within the United Nations system, the
Inter-Agency Taskforce on Women, Peace and Security of the Inter-Agency
Network on Women and Gender Equality has been coordinating efforts
for the implementation of the resolution.
In 2002, the Secretary-General's study "Women, peace and security"
documented the collective experience of the UN system and analyzed
the impact of armed conflict on women and girls and the relevant
international legal framework. It also reviewed gender perspectives
in peace processes, peace operations, humanitarian operations
and reconstruction and rehabilitation. The Independent Experts'
Assessment, supported by UNIFEM, contributed to the discussion
by providing examples of women in conflict regions and their
struggles to contribute to the safety and well-being of their
communities.
In recent years, the Security Council has sought to meet with
women's groups and other civil society organizations in order
to access information on the situation of women and girls during
so-called Arria Formula meetings and during missions to conflict
regions, including the Democratic Republic of the Congo, Kosovo
and Sierra Leone. The Council has requested a number of individuals
to testify before it on the role of women in peace processes
and peacebuilding, including the Minister of Women's Affairs
of Afghanistan and the Special Rapporteur on violence against
women in March 2002 and the senior gender adviser from a peacekeeping
mission (MONUC) in 2003.
Resolution 1325 has led to the deployment of gender advisers
in peacekeeping operations and at headquarters, the development
of a gender resource package and training materials. DPKO and
DPA are in the process of creating departmental action plans
on gender mainstreaming. Since its adoption, resolution 1325
has also led to the inclusion of more comprehensive information
and data on women and gender issues in both thematic and mission-specific
reports presented to the Security Council for its review.
In October 2005, the Security Council, in its annual open debate
on women, peace and security, will review a system-wide action
plan on the implementation of resolution 1325. The action plan
is based on input from 37 UN entities and maps strategies and
actions by the UN system for the period 2005 to 2007.
Related Links:
PEACE
INEXTRICABLY LINKED WITH EQUALITY BETWEEN WOMEN AND MEN SAYS
SECURITY COUNCIL, IN INTERNATIONAL WOMEN'S DAY STATEMENT
Windhoek Declaration and Namibia Plan of Action on 'Mainstreaming
a Gender Perspective in Multidimensional Peace Support Operations'
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