Distinguished Women Parliamentarians from around the world,
It is an honor to address this Forum at the outset of the deliberations of the 144th Assembly of the Inter-Parliamentary Union. In June 2021, based on my firm conviction and belief that parliamentarians are key allies in the prevention and response to the scourge of conflict-related sexual violence, I signed a Framework of Cooperation with the IPU.
In resolution 2467 (2009) the Security Council highlights the critical role of the judicial systems of Member States to prevent and eliminate sexual violence in conflict and to ensure accountability for those responsible and calls on national authorities to strengthen legislation to foster accountability for sexual violence.
Indeed, national laws, in line with international standards, are an essential cornerstone in preventing and addressing this scourge. Criminalization of sexual violence not only allows for the prosecution of these crimes and the provision of redress to victims, but also demonstrates a society’s disapproval of this conduct overall, therefore having a preventative effect.
Although over the past decades many States have adopted or improved legislation to prevent and respond to sexual violence in conflict, significant gaps in legal frameworks persist. Many States are still failing to live up to their international obligations and commitments to prevent and address sexual and gender violence. Many States still do not have in place legislative provisions that specifically address certain forms of sexual violence offences and, even where legislation exists, it is often limited in scope and coverage, or is not enforced. This is why many perpetrators are not held accountable and impunity persists.
Last year my Office launched Model Legislative Provisions and Guidance on the Investigation and Prosecution of Conflict-related Sexual Violence, a practical tool allowing for prosecution of the fullest range of sexual violence crimes while serving and empowering victims or survivors of these crimes most effectively. It is a tool that provides the gold standard in criminal and procedural law to ensure the most robust provisions for victim and survivor-centered justice for conflict-related sexual violence.
The support of parliamentarians in incorporating these Model Legislative Provisions in national jurisdictions will be a meaningful step toward fulfilment of the priorities set out in the Framework of Cooperation, in particular, the commitment to foster the adoption, review, and implementation of national legislation to promote and protect persons affected by, or at risk of, conflict-related sexual violence.
I am particularly grateful for this opportunity to engage with you prior to your deliberations on the draft resolution on “approaches to peace processes to foster lasting peace”, which the Standing Committee on Peace and International Security will adopt during this Assembly. The topic could not be more timely, as we witness how the unfolding conflict in Ukraine could become Europe’s worst humanitarian and refugee crisis in decades, with civilians, particularly women and children, paying the highest price.
Your contributions are essential to ensure that the resolution includes a gender and survivor-centered approach that recognizes the disproportionate impact of conflict on women and girls, and highlights the critical role that women, youth and children must play in conflict prevention, conflict resolution and peace budling.
My mandate as Special Representative of the Secretary General on Sexual Violence in Conflict was established in 2009 by Security Council resolution 1888 out of a deep concern that, despite the repeated condemnation of sexual violence against women and children in situations of conflict, such acts continue to occur as a tactic of war and terror and constitute a threat to international peace and security. My role is to:
– Provide coherent and strategic leadership;
– Work effectively to strengthen existing United Nations coordination mechanisms, including the United Nations Action Against Sexual Violence in Conflict, an inter-agency network composed of 21 UN entities, and the United Nations Team of Experts on the Rule of Law and Sexual Violence in Conflict; and
– Elicit commitments from governments, including parliamentary representatives, as well as all parties to conflict, usually through Joint Communiqués and Frameworks of Cooperation that provide a comprehensive framework to prevent and respond to sexual violence in areas such as legal reform, accountability, advocacy and comprehensive service provision, including in the areas of sexual and reproductive health, mental health, socio-economic support and reintegration.
Since taking office in 2017, I articulated three strategic priorities for the mandate: firstly, converting cultures of impunity into cultures of deterrence through justice and accountability; secondly, fostering national ownership and leadership for a sustainable, survivor-centered response; and thirdly, addressing the root causes of sexual violence, including structural gender-based inequality and discrimination, poverty and marginalization, as its invisible drivers in times of war and peace. The Security Council recognized these priorities in resolution 2467, adopted in 2019, in commemoration of the 10th anniversary of the mandate.
Over the past years, we have witnessed significant progress at normative and institutional levels. For example: sanctions have been imposed on perpetrators of sexual violence; mandates of UN peace missions systematically include measures to protect the civilian population from sexual violence; sexual violence is included in the monitoring frameworks of ceasefire agreements and is no longer tolerated as a crime benefiting from amnesty; and we are seeing an increase, though not sufficient, in the number of the prosecutions of sexual violence as an international crime.
Despite these advances, it is clear that political commitments and financial support, including in national budgets, are not yet matched by the reality on the ground. The forthcoming 2021 annual report of the UN Secretary-General, which will be debated before the Security Council on 13 April, paints a harrowing picture of sexual violence used as a tactic of war, torture, terror, and a tool of political repression, to dehumanize, destabilize, and forcibly displace populations facing overlapping, political, and humanitarian crises– further compounded by the Covid-19 pandemic.
Distinguished Women Parliamentarians,
Allow me to make two specific recommendations that could inform your deliberations on the resolution:
The first relates to the inclusion of a specific reference to the dedicated Security Council resolutions on conflict-related sexual violence. This is critical, especially given the recognition by the Security Council that women and girls are not only particularly at risk of this scourge and often specifically targeted, but also its affirmation that the disproportionate impact of sexual violence that they face is exacerbated by the root causes of widespread inequalities and discrimination against them. This is illustrated by the under-representation of women in decision-making and leadership roles; the impact of discriminatory laws; the gender-biased enforcement and application of existing laws, policies and budgets; harmful social norms and practices; and discriminatory views on women or gender roles in society. The Security Council has also affirmed the importance of promoting gender equality by addressing these and other root causes of sexual violence against all women and girls as part of conflict prevention, conflict resolution and peacebuilding.
Secondly, I would like to recommend that the resolution includes a dedicated mention on the need for a survivor / victim-centered approach in all interventions to ensure that all those left furthest behind, including survivors of conflict-related sexual violence, can invoke their rights, express their grievances, concerns and aspirations to pursue meaningful ways for their full and effective representation in and by parliaments. The call for a survivor-centered approach which empowers survivors of sexual violence by prioritizing their rights, needs and wishes; treats them with dignity and respect; promotes their recovery and reinforces their capacity about possible interventions, is one that I have advocated for throughout the tenure of my mandate, and a tenet of Security Council resolution 2467.
I wish you very fruitful deliberations on this resolution and look forward to continuing working with you, throughout this Assembly and in the implementation of our Framework of Cooperation, to break the silence in our Parliaments to resolutely combat conflict-related sexual violence.