United Nations Security Council Resolution 1325 (2000) on Women, Peace and Security

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A Civil Society Perspective on Canada's Implementation of

United Nations Security Council Resolution 1325 (2000)

on Women, Peace and Security

Prepared by:

The Gender and Peacebuilding Working Group (GPWG) of the

Canadian Peacebuilding Coordinating Committee (CPCC)

October, 2004

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Acknowledgements

The Gender and Peacebuilding Working Group would like to thank Jennifer Acton for her hard work and commit- ment to researching and writing this report.

We would also like to thank all those involved in this report including the interviewees, Working Group members, and the organizations who participated in our civil society questionnaire.

About the Gender and Peacebuilding Working Group (GPWG)

The GPWG is a network of Canadian civil society representatives including non-governmental organizations, aca- demics and individuals who have come together to share and analyze information in an effort to strengthen the 'women, peace and security' agenda within Canadian policy. We also work to improve programming so that it better responds to the needs of girls and women and strengthens women's rights in conflict and post-conflict zones.

Program activity of the Gender and Peacebuilding Working Group of the Canadian Peacebuilding Coordinating Committee is undertaken with the financial support of the Government of Canada provided through the Canadian International Development Agency.

For more information please contact:

Gender and Peacebuilding Working Group Canadian Peacebuilding Coordinating Committee

1 Nicholas Street, Suite 1216 Ottawa ON

K1N 7B7 Canada

Tel: 613-241-3446 Fax: 613-241-4846 Email: cpcc@web.ca Internet: www.peacebuild.ca

About the Canadian Peacebuilding Coordinating Committee (CPCC)

The CPCC is a network of Canadian non-governmental organizations and institutions, academics and other indi- viduals from a wide range of sectors including humanitarian assistance, development, conflict prevention and reso- lution, peace and faith communities, human rights, governance and democratization. The network is engaged in processes of dialogue between civil society and government and the development of peacebuilding policy and pro- gramming.

For more information please contact:

Canadian Peacebuilding Coordinating Committee 1 Nicholas Street, Suite 1216

Ottawa ON K1N 7B7

Canada

Tel: 613-241-3446 Fax: 613-241-4846

Email: cpcc@web.ca Internet: www.peacebuild.ca

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Section 1 - Introduction

Section 2 - Canada's Efforts with Respect to Specific Provisions within SCR 1325 Section 3 - General Implementation of SCR 1325

Section 4 - Working with SCR 1325 in Colombia and Afghanistan Section 5 - The Canadian Non-Governmental Sector and SCR 1325 Section 6 - Conclusions

List of Acronyms and Websites

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Introduction

1.1 Rationale: The Government of Canada's response to the Secretary-General 's request for information relating to implementation of United Nations Security Council Resolution 1325 (2000) on women, peace and security (http://www.dfait-maeci.gc.ca/foreign_policy/human-rights/

resolution-1325-response-en.asp) describes Canada's general approach towards implementation, and lists the specific actions the government has taken to advance the goals of the resolution. It does not however shed light on obstacles encountered, lessons learned, or opportunities for further implementation. This form of reflection is an important part of the implementation process, helping to guide efforts, and develop effective strategies. For this reason, the Gender and Peacebuilding Working Group (GPWG) of the Canadian Peacebuilding Coordinating Committee (CPCC) sought to gather experiences, insight and suggestions from individuals working at varying levels within the government of Canada in areas with direct implications for the advance- ment of SCR 1325. Engaging a number of government officials from a wide cross-section of government departments in dialogue around the resolution resulted in a wealth of knowledge and experience which this report attempts to capture and analyze. Fours years on, to what extent has SCR 1325 been integrated into the work of the Government of Canada? What have been the experiences, challenges and achievements? And what can we take from all of this that will help to make the goals of the resolution a reality? We hope that this report will help to answer some of these questions.

1.2 Methodology: Both face-to-face and telephone interviews were conducted with twelve government officials across many of the key departments responsible for implementation of SCR 1325 including Foreign Affairs Canada (FAC), the Department of National Defence (DND), the Royal Canadian Mounted Police (RCMP), and Citizenship and Immigration Canada (CIC). An interview was also conducted with the Canadian Committee on

Women, Peace and Security (CCWPS). Additional information was gathered through a review of government documents and by way of responses to questionnaires that were tailored to specific departments and divisions and geographic desks and thematic issue areas within those departments. Responses to questionnaires provided additional input from the International Development Research Centre (IDRC), the Canadian International Development Agency (CIDA), and the Human Security and Peacebuilding Program (HSP) of FAC. In an effort to connect Canada's efforts to implement SCR 1325 to a specific country context, and to ground achievements, challenges and lessons learned within a particular conflict/post-conflict situation, we collected specific information on Afghanistan and Colombia which are presented as "snapshots" within the report. Interviews were conducted and research carried out between July and October 2004.

Participants were asked to reflect on changes to practice and process since the resolution was passed in 2000, ways of working with the resolution, specific initiatives supported by their departments and divisions, and obstacles they have faced in their efforts to support and promote resolution 1325. Participants were also asked to provide suggestions for future implementation based on their own experience. We are very grateful for the time and insight provided by interviewees, respondents and other participants.

1.3 Structure: The review set out to provide an alterna- tive forum where; 1) implementation of SCR 1325 could be reviewed, including the identification of achievements and challenges; 2) experience and insight could be shared among those working in related areas; 3) lessons learned could be identified; and 4) suggestions put forward for future implementation and collaboration in and around the resolution. Since responsibility for implementation of resolution 1325 lies primarily with Member States, the report focuses on the Canadian government. However, we have

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included a summary of the work being done by Canadian civil society organizations in support of the resolution, many of whom are working in close partnership with the government.

Section 1 provides an introduction to the report. Section 2 examines specific provisions outlined in the resolution which Member States such as Canada are required to act on, and highlights initiatives which have been supported by the government with respect to these provisions, identifies existing gaps and challenges inhibiting further progress, and presents some suggestions for moving forward in each issue area. Section 3 looks at implementation of SCR 1325 in general terms including how the resolution is being used, obstacles encountered, and opportunities to be seized.

Section 4 explores the Government of Canada's experiences with implementation of SCR 1325 in two conflict- affected countries, Colombia and Afghanistan. The 5th section profiles the efforts and experiences of Canadian civil society organizations working to advance the goals of SCR 1325 and includes an overview of obstacles to implementation and suggestions for priority areas of action to be pursued by the Government of Canada. The final section provides a brief conclusion.

1.4 About SCR 1325 (2000): The UN Security Council resolution 1325 on women, peace and security, passed on October 31, 2000, is the first UN resolution that specifically highlights the impact of war and conflict on women and girls, and the importance of women's involve- ment in peacekeeping processes. In particular, resolution 1325 calls for 1) protection of women and girls and respect for their rights; 2) participation of women in peace processes; 3) gender training for all involved in peacekeeping operations; and 4) gender mainstreaming in the reporting and implementation systems of the United Nations relating to conflict, peace and security.

1.5 Canada and SCR 1325: The Government of Canada has committed itself to the full implementation of SCR 1325 and proudly considers itself a leader in issues related to women, peace and security⁽¹⁾Canada was on the Security Council when the resolution was unanimously passed fours years ago, and recognizes the resolution as a culmination of years of intensive work carried out by NGOs, governments and UN agencies. In support of its commitment to the goals of SCR 1325, the Canadian government assisted in the creation of the Canadian Committee on Women, Peace and Security (CCWPS), a national coalition of individuals and representatives from civil society organizations, government and parliament.

The committee provides a forum for sharing information, experiences and learning, raises awareness and influences policy and programming domestically and internationally⁽²⁾. In addition, the key federal departments involved in implementation of the resolution are members of the Interdepartmental Working Group on Gender and Peacebuilding, which is chaired by FAC and reviews Canadian initiatives related to gender and peacebuilding, and discusses developments in and around SCR 1325. The Human Security Program at FAC has helped the government to translate Canada's commitment to SCR 1325 into concrete actions. Canada also initiated the New York based

"Friends of SCR 1325", a voluntary group of UN Member States that meets on a regular basis to set priorities for the implementation of 1325.

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Section 2: Canada's Efforts with Respect to Specific Provisions within SCR 1325

This section examines four areas where Member States are required to take action. These include: 1) to increase women's representation at all decision-making levels; 2) to fund and provide support for gender sensitive training; 3) to end impunity and prosecute those responsible for genocide crimes and gender-based violence; and 4) to make HIV/AIDS awareness training programmes available to military and civilian police. It highlights some of Canada's efforts to fulfill these obligations, identifies existing gaps and challenges affecting progress, and presents some suggestions for moving forward in each of the four areas.

2.1 Increase women's representation at all decision-making levels:

Member States are called upon to increase the numbers of women in all levels of decision-making (national, regional and international), relating to the prevention, management and resolution of conflicts. Member States are also called on to put forth female candidates to the Secretary-General for special representatives and envoys so that they are included in a regularly updated centralized roster.

Examples of Canada's efforts

• Canada has played a key role at the General Assembly urging the Secretary-General, other Member States and UN agencies to improve the status of women by increasing the number of women in senior level positions in the UN system.

• Through its support for CANADEM, a non-profit agency that recruits, screens and promotes Canadian expertise in the area of international peace and security, the Canadian government has helped to place more women in senior positions in the field of conflict prevention and peacebuilding.

• The cross-Canada consultations with Afghan- Canadian women, and with Tamil and Singhalese women organized by the CCWPS have created space for the inclusion of women in peacebuilding and reconstruction efforts.

• The Government of Canada has supported efforts to ensure that international courts and tribunals achieve a greater gender balance among their staff and judges;

for example, Canada supported the adoption of a judi- cial election procedure for the International Criminal Court that resulted in the precedent-setting election of seven highly-qualified women in 2003.

Gaps and Challenges

• Ensuring that roundtable discussions with Afghan- Canadian and Tamil and Singhalese women increases women's participation in post-conflict reconstruction requires careful follow-up that includes working to sustain momentum, seeing to it that recommendations are put into practice, and monitoring the degree to which ideas and strategies generated at these discussions actu- ally influence new and ongoing initiatives. The review found that the current resources available to the CCWPS were insufficient, making it difficult for the committee to support the necessary follow-up required to achieve the goals of the roundtables.

• With only 21% women currently in Cabinet, Canada's credibility is at stake as we promote increasing women's representation at all levels of decision making on the international stage, while failing to move forward on this issue at home where our performance falls short of the rhetoric. Key to holding other governments accountable, is holding our own government accountable on these crucial issues.

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Suggestions for moving forward

The following opportunities have been identified and divid- ed into two categories, time bound opportunities and process opportunities. Time bound opportunities identify a specific window of opportunity to be seized within a particular time frame. Process opportunities are those which should be integrated into ongoing ways of working in order to establish a more systematic approach to implementation of the resolution.

Time sensitive opportunities

• The previous election at the Yugoslav tribunal pro- duced only three female judges out of a total of sixteen judges. At the upcoming election this November, Canada has an opportunity to rectify this imbalance by encouraging the election of more women, thereby contributing to a greater gender balance.

Process opportunities

• Working towards achieving a gender balance in the field of international criminal justice will require that the Canadian government put forward female candidates for election to international courts and tribunals and take into consideration the importance of electing more women when voting on these issues.

• Canada has a role to play in supporting gender advisors on mission with peacekeeping operations, working to ensure that they are staffed at the higher levels, pos- sess relevant expertise and have sufficient access to senior managers.

• The proposed "Canada Corps" should provide a venue through which Canada can send female experts on gender issues abroad to support implementation of SCR 1325 in a wide range of contexts.

2.2 Fund and provide support for gender sensitive training:

• The resolution invites Member States such as Canada to incorporate information on the protection of rights and the particular needs of women, as well as on the importance of involving women in all peacekeeping and peacebuilding measures in their national training programmes for military and civilian police personnel.

Member States are also urged to increase funding for financial, technical and logistical support for gender- sensitive training efforts undertaken by the UN.

• In order to integrate gender related concerns within peace support operations, Canada together with the United Kingdom, developed the Gender Training Initiative (GTI), which provides material for a three-day course on gender sensitive approaches to peace support operations and includes overviews of a range of thematic issues, such as violence against women and international humanitarian law, and includes geographic case studies.

• Pre-deployment training at the RCMP for civilian police deployed overseas includes international law, human rights law, and cultural sensitivity and awareness.

While not specific to gender issues, these topics address certain gender related concerns. Interviewees acknowl- edged that trainings do not address the issues of gender-based violence in great detail, citing the high cost of developing and delivering training materials and the existing high standard of personal conduct and sensitivity to violence against women as the primary reasons.

• Basic training and required military courses for all members of the Canadian Forces include sessions on

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military professionalism and ethics, the Geneva Conventions and the Law of Armed Conflict, which highlight vulnerabilities of civilians, including women and children. All members of the Canadian Forces receive training in harassment recognition and prevention during recruit training. Harassment comprises any objectionable act, comment or display that demeans, belittles or causes personal humiliation or embarrass- ment, or any act of intimidation or threat.

• Gender awareness training is offered on a case-by- case basis to the Canadian Forces as part of their pre- deployment cultural awareness training for peace support operations. Whether or not a specific module on gender awareness is delivered during pre-deployment training is dependent upon the training time-frame and the scope of the mission-specific mandate.

• Although the GTI was noteworthy internationally, and is an example of a positive Canadian initiative, there is a risk that its development allows Canada to feel that gender training is now taken care of, instead of viewing the training as a first step towards achieving meaningful changes in attitudes, practices and processes as they relate to gender and peacekeeping.

• The GTI training does not appear to be widely used in the training of Canadian peacekeepers or civilian police. In some cases it has been made available to trainers who have used specific elements of the training, but peacekeepers do not receive the three-day training in its entirety in any systematic way.

• While it may be the case that civilian police deployed overseas are sensitive to gender-based violence largely due to their experience dealing with violence against women in Canada, a more systematic approach which

provides information on country specific patterns of gender-based violence and clarifies the steps to be taken when officers witness or suspect incidents of gender-based violence in a particular country context will only strengthen their capacity to protect the rights of civilians and to carry out implementation of SCR 1325.

• Gender equality and the protection of international women's rights can be taken for granted as a shared Canadian value and assumed to be integrated in to Canadian foreign policy, development assistance and peacekeeping operations. Without explicit practises and processes in place including systematic gender training it may be assumed that gender equality concerns have been addressed when in fact they may have been over- looked.

Suggestions for moving forward Time Bound Opportunities

• The role that RCMP officers are playing at the Special Court in Sierra Leone presents an important opportunity for Canada to ensure that SCR 1325 is advanced on the ground. Training of these officers in gender-sensitive monitoring, reporting, and investigating is essential.

• Before moving forward with the development of training materials, both government and civil society advocates of gender sensitive training need to define what it is that gender training can accomplish, what the skills are that peacekeepers should be equipped with, and what it is they will be able to do as a result of being made more gender aware. This knowledge should guide the next steps in Canada's effort to improve gender sensitive training.

• The GTI should be revisited, updated and strength- ened. It must be relevant and should reflect the chang-

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ing nature of conflict including the use of new and current case studies. More attention should be paid to how the training has influenced attitudes, practices and processes. It is also important that we learn from its shortcomings. Some interviewees found the training to be too lengthy and too theoretical and fails to provide practical strategies for addressing gender concerns in peace support operations. It would also be helpful to expand the training to include collaboration with NGO partners in the field, not only with government.

• Updating the GTI and the development of new trainings should involve broadening the concept of gender inequality to include the intersection of gender with class, race, ethnicity, age, culture, and religion both during conflict and in the reconstruction stages. Failing to address these differences may lead to a simplified and/or a misguided perception of the experiences and perspectives of women and girls during and after conflict.

Process Opportunities

• The training, monitoring and mentoring role played by Canadian police officers carries with it the responsibility to advance that the goals of SCR 1325 related to the protection of women and impunity for perpetrators of sexual and gender-based violence on the ground.

This responsibility requires the necessary budgetary provisions for systematic gender training of police officers.

• Systematic gender awareness training should be provided for peace support operations personnel at all levels. This will require the inclusion of gender training in all mission budgets. Although it is the responsibility of DND to develop and deliver these trainings, FAC has an important role to play in working with DND to foster a deeper understanding of this agenda as well as offering assistance in the form of gender expertise and

training materials.

• In order to identify and support the training needs of the various departments involved in implementing particular aspects of SCR 1325, a needs assessment should be carried out using a consultative process to assist in the development of appropriate, effective trainings based on the particular needs of departments.

• A gender component should be included in the after action reviews of all courses conducted by the DND's Peace Support Training Centre which prepares CF personnel for deployment on peace support operations.

After action reviews seek to evaluate the quality and rel- evance of pre-deployment training in an attempt to improve and strengthen training programs offered by the Centre. The implementation of SCR 1325 should be addressed in all mission-specific reports.

• Gender perspectives should be included in mission planning processes. The pre-mission assessment team at DND should strive to gather comprehensive information on gender-related issues. This also provides an important opportunity for DND to meet with local women's organizations. Findings should be incorporat- ed into pre-deployment training to ensure that the new personnel are prepared to address needs and concerns of women and girls in those countries.

2.3 End impunity and prosecute those r esponsible for genocide crimes and gen- der-based violence:

Member States are called upon to end impunity and prosecute perpetrators of genocide, crimes against humanity and war crimes, including sexual and other violence against women; and exclude sexual and gender-based crimes from amnesty provisions in peace deals.

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• In relation to international criminal justice, Canada proposed and supported a number of gender-sensitive provisions within the Rules of Procedure and Evidence and Elements of Crimes of the International Criminal Court (ICC), adopted in 2000. Canada strongly supported the adoption of a Statute for the Special Court that reflected the realities of gender-based crimes that took place during the conflict in Sierra Leone.

• The Government of Canada provided some funding to the ICC to ensure that there was a gender component to the training of their judges.

• Citizenship and Immigration Canada (CIC) has taken strict measures to ensure that individuals who have participated in crimes against humanity, gender crimes, or war crimes are inadmissible to Canada.

• Allegations of sexual misconduct made against officers deployed overseas by the RCMP are taken very seriously. A determination is made as to where the jurisdiction lies and an investigation is conducted accordingly. If action taken by the host organization is deemed inappropriate or insufficient, the RCMP is prepared to take its own decisions to ensure that there is no impunity for gender-based crimes.

• All members of the Canadian Forces, both in Canada and those deployed abroad, are subject to the Criminal Code of Canada and the National Defence Act.

• Judges, prosecutors, and defence lawyers in the international justice community do not always receive training in the realities of gender based crimes and some-

times lack the knowledge that would enable them to systematically address these issues. Even when gender sensitive statutes and laws are in place, trained individuals are needed to interpret these laws and statutes in such a way that ensures gender-sensitive justice.

• Canadian Forces and civilian police deployed overseas do not receive systematic training related to gender- based violence, sexual violence and other gender-based crimes before their deployment. Training is carried out on a case-by-case basis and depends upon a number of factors.

• Internationalized and domestic justice mechanisms do not always learn from the experiences, mistakes and omissions of previous courts and tribunals as they per- tain to gender-sensitive justice.

Suggestions for moving forward Time bound opportunities

• As the International Criminal Court (ICC) gets underway, Canada must work to ensure that the lessons learned from previous tribunals with respect to gender sensitivity are learned and implemented in the ICC. For example, Canada has a role to play in ensuring that the proposed victims and witnesses unit learns from the past mistakes and omissions of other international justice mechanisms.

• Beyond the ICC, Canada has a role to play when new international or domestic justice mechanisms are estab- lished. Whether a truth commission or a court, a central question from its inception should be, how to make the mechanism as gender sensitive as possible. SCR 1325 should be used as a lens for evaluating international criminal justice and accountability mechanisms.

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• With the allocation of additional funds by the Canadian government in the area of international criminal justice, Canada could continue to fund gender training workshops and could provide expert staff to these tribunals who would provide different types of assistance to help to advance the goals of SCR 1325 including providing gender sensitive investigators, or a trainer of judges and prosecutors. Canada could also provide a gender advisor who gives advice to the pros- ecutor on gender issues from staffing to indictments, to how to argue cases. Canada should also encourage the international community to recognize the importance of these trainings and urge them to provide funds.

• Considered a leader around the world in issues related to accountability and international criminal justice, Canada is well placed to ensure that the question of gender sensitive justice is addressed when international courts and tribunals are being discussed and evaluated.

As a country that has ratified the ICC, the assembly of states parties for the ICC provides an important forum for Canada to raise gender related concerns among others who are meeting to evaluate the courts success.

• Where funds available to the Canadian government are insufficient, seeking partners among like-minded countries can be an effective way of ensuring that the opportunities are seized and that Canada continues to support these areas where it has earned an international reputation.

2.4 Make HIV/AIDS awareness training pro- grammes available to military and civilian police:

The resolution calls on Member States to incorporate HIV/AIDS awareness training into its national training programmes for military and civilian police personnel in preparation for deployment.

• Canada has made a start by providing funding through the HSP for an international workshop in March 2004 exploring the linkages between HIV/AIDS and Human Security. The workshop identified a number of actions to better address HIV/AIDS within conflict and peacebuilding settings including more effective HIV/AIDS training of military forces. However, there do not appear to be any major initiatives underway focused on the integration of HIV/AIDS awareness training into national training programmes for military and civilian police personnel. This gap must be addressed by the government in the near future.

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Section 3: General Implementation

3.1 Working with resolution 1325:

How is SCR 1325 being used to advance the women, peace and secu- rity agenda?

The extent to which SCR 1325 has influenced the way people work varied across each department and among individuals. In general, resolution 1325 has given higher profile to gender equality issues in conflict and peacebuilding and has helped to reinforce arguments for increased attention to the issues. It was noted that awareness and sensitivity to the concerns outlined in SCR 1325 existed well before the resolution came about, but that its adoption enhanced efforts.

• A commitment to advance women, peace and security issues in the form of a Security Council resolution offers government officials accepted language that can be used in their work to advance the protection of the rights of women living in conflict and their participation in peacebuilding and reconstruction efforts.

• SCR 1325 is used in a variety of ways, including as an advocacy tool, as a framework for action, to encourage policy dialogue and to raise awareness more generally about issues related to women, peace and security. Its use in particular departments and divisions varies, and depends very much on whom one is trying to influence and the desired outcome. Many found it helpful to vary their strategies for using the resolution within each individual context in order to maximize its intended impact.

• Others described less of a change to the way their daily work was conducted following the adoption of the resolution. For instance, at the RCMP, Canada's commitment to SCR 1325 was not perceived as an obli- gation to re-examine processes and practices, but rather it served to reinforce the importance of issues that

were perceived to be already well understood within the department.

• The process of gender integration within the Canadian Forces which includes policies to attract and retain more women within the Canadian Forces and the provision of basic gender training as part of broader pre-deployment cultural awareness training did not undergo a significant change as a result of SCR 1325.

Reasons included the fact that gender integration is an ongoing process in the Canadian Forces and that Canada is recognized within NATO for its success and overall leadership in this area. The resolution has however provided a greater awareness of the issues as information about the resolution is periodically circulated within the Department of National Defence.

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Materials and Tools

Those working to advance SCR 1325 within their own divisions were asked to share their ideas concerning the most effective way to work toward fostering an understanding and integrating an appreciation for this agenda within the institutional culture.

Some suggestions included:

1. Focus more on the practical, and less on the theoretical. Providing clear and practical connections between day-to day work and the content of the resolution would help people work towards effective implementation. It is helpful to support such a strategy with evidence that proves why it will make a difference if people support SCR 1325 as well as the ramifications of failing to take these issues into consideration.

2. Ask a set of questions before developing new tools: These questions include; for whom are we developing these tools? For which area of the department are they being developed? Is it for program reasons or policy reasons, or to raise general awareness? The answers to these questions will help to guide the development of useful, targeted and more effective tools.

3. Avoid duplicating existing tools and publicize internationally where comprehensive information on 1325 can be found:

Encourage the dissemination of existing tools rather than investing resources in the development of new materials.

4. Educate and engage young boys and men: Tools developed to support the implementation of SCR 1325 must seek to engage and educate boys and men about the importance of including women in peace processes as well as the role they them- selves play in ensuring that the rights of women and girls affected by conflict are protected and upheld.

5. Draw from internal knowledge: In some cases the most useful and effective materials are internal documents developed by individuals working inside government departments who have a firm grasp of both the resolution's goals and department's work, allowing him/her to make the necessary connections between how the department operates, its mandate, and how it relates to SCR 1325.

Example of useful tools:

• UNIFEM's web portal on women, peace and security offers a "1325 toolkit" which provides resources and materials to be used to raise awareness and deepen understanding of the resolution. It includes information on the resolution's his- tory, provides workshop handouts and information on seminars, events and trainings among other helpful materials. The toolbox can be found at: http://www.womenwarpeace.org/toolbox.htm

• An example of a tool with potential, a specific target group and a clear objective is the "pocket card" being developed at FAC. The card contains important aspects of related resolutions and encourages Security Council members to integrate the mandates of 1325 in all of its country-specific and thematic resolutions. Once the pocket card is disseminated, Canada can continue to encourage SC members to make use of it and can also promote its use among Member States who lobby the Security Council.

• The RCMP has recently received a manual from the UN Department of Peacekeeping Operations (DPKO) entitled

"Handbook on United Nations Multidimensional Peacekeeping Operations". The handbook contains a section on gender mainstreaming which makes specific reference to SCR 1325 and provides practical advice for incorporating a gender perspective into peacekeeping operations and will be used by the RCMP in

its pre-deployment training.

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3.2 Factors affecting the implementation of SCR 1325:

a) Individual vs. Institutional Approach

Research findings suggest that the extent to which the goals of SCR 1325 are advanced within the government is largely dependent upon the level of appreciation for the rele- vance of the women, peace and security agenda among individual officials, rather than by a systematic and integrated government-wide approach. A coordinated implementation framework would encourage the establishment of practices and processes which would in turn provide staff with clearer direction and guidelines for the integration of the provisions of SCR 1325 in their work. It will be important to take steps to lessen the degree to which implementation is optional or discretionary. Another challenge lies in effectively fostering an awareness and commitment to SCR 1325 among geographic desks and across thematic issue areas.

• Officers are responsible for promoting and mainstreaming gender equality concerns within their individual files and should have skills and knowledge that enable them to do so. However, the research process suggested that in many cases gender equality concerns were considered a separate issue to be dealt with by designated gender experts, suggesting that the degree to which individual officers are systematically carrying out gender analysis falls short of the goals of the resolution with respect to gender mainstreaming.

• The high rate of staff turnover within many government departments presents a challenge to maintaining momentum, providing continuity, and steadily increasing the knowledge base.

• The review also found that implementation of SCR

1325 is primarily driven by women. There is a need to increase the number of men showing leadership on these issues, which requires undertaking the necessary research and analysis needed to make SCR 1325 an integral part of their work.

b) The need for sustained leadership at senior levels within the government

Many participants noted that sustained leadership and support for the goals of SCR 1325 at senior levels is essential to its full implementation, emphasizing that prioritizing gender equality relies on the political will of the decision- makers who generally reside at the top of organizations.

• Support tends to be concentrated less at the senior level and more so among those in lower level positions, and is still very much led by the designated gender focal points and advisors.

• When gender experts are not staffed at high levels, there is a very real risk that gender related information and analysis is filtered out by the time it reaches those in more senior positions.

• The more confident an employee is that those to whom they are reporting will appreciate the importance of this agenda, the more likely they will be to put forth an idea in support of the agenda.

• Bureaucrats can work within their own channels to heighten awareness and move things forward collabora- tively with partners, but the speed at which a particular agenda gets advanced is heavily determined by the political will at very senior levels.

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Funding as a Challenge

For a significant number of interviewees, funding was identified as the greatest challenge with wide felt repercussions for full implementation of the resolution. The need for increased human and financial resources in the form of flexible and sustained funding was considered by many to be essential for Canada to progress in fulfilling its commitments in this area, recognizing that without the necessary funding, Canada can lobby and apply diplomatic pressure, but its impact is very limited. The international exposure that Canada receives as a strong voice in support of the women, peace and security agenda should serve as a powerful incentive for the government to provide the necessary resources for the concrete implementation of this agenda.

• The Canadian Committee on Women Peace and Security has worked hard to raise awareness and support Canada's implementation, yet its capacity to follow-up on its initiatives is limited due to a lack of human and financial resources.

• The Human Security and Peacebuilding Program (HSP) at Foreign Affairs Canada may not be renewed after March 2005. The HSP has helped FAC to translate Canada's commitment to SCR 1325 into concrete actions internationally and has provided the flexibility needed to support initiatives on a range of different levels, ranging from diplomatic advocacy to on-the-ground initiatives. Loosing the HSP could mean loosing the opportunity to deliver on this agenda and to uphold Canada's profile as an international leader in this area.

3.3 Gaps and Challenges:

Participants identified challenges when working to address the provisions of the resolution.

Absence of a national framework for implementation:

It is still very early in the life of the resolution to determine the extent to which efforts to implement SCR 1325 have resulted in meaningful change in the lives of women and girls caught in conflict. However, assessing the impact of support to projects, the application of diplomatic pressure, the funding of trainings or the promotion of dialogue is a challenge and will continue to be a challenge in the future if there is no framework for implementation among key federal departments that has clearly defined goals, indicators and monitoring mechanisms.

Restrictions imposed by the institutional culture: The difficulty of working within the firmly set mould of government and UN bureaucracies to fulfill the commitments of this agenda presents a challenge for achieving deep and meaningful change. As with many international instru- ments that aim to bring about gender equality, supporters of the women, peace and security agenda have to find a way to insert SCR 1325 into existing bureaucratic structures where internal processes and practices can be resistant to change required to bring about greater gender equality.

The difficulty of maintaining momentum: Momentum generally follows a pattern of highs and lows. Events such as anniversaries and symposiums generate a great deal of enthusiasm and serve to heighten awareness and support for the issue leading up to the event, during the event and shortly thereafter. This momentum tends to decline, largely due to a shortage of the resources needed to sustain momentum, and follow-up on recommendations.

Funding as a Challenge

For a significant number of interviewees, funding was identified as the greatest challenge with wide felt repercussions for full implementation of the resolution. The need for increased human and financial resources in the form of flexible and sustained funding was considered by many to be essential for Canada to progress in fulfilling its commitments in this area, recognizing that without the necessary funding, Canada can lobby and apply diplomatic pressure, but its impact is very limited. The international exposure that Canada receives as a strong voice in support of the women, peace and security agenda should serve as a powerful incentive for the government to provide the necessary resources for the concrete implementation of this agenda.

• The Canadian Committee on Women Peace and Security has worked hard to raise awareness and support Canada's implementation, yet its capacity to follow-up on its initiatives is limited due to a lack of human and financial resources.

• The Human Security and Peacebuilding Program (HSP) at Foreign Affairs Canada may not be renewed after March 2005. The HSP has helped FAC to translate Canada's commitment to SCR 1325 into concrete actions internationally and has provided the flexibility needed to support initiatives on a range of different levels, ranging from diplomatic advocacy to on-the-ground initiatives. Losing the HSP could mean loosing the opportunity to deliver on this agenda and to uphold Canada's profile as an international leader in this area.

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1325 and Girls and Young Women

Although the adoption of resolution 1325 draws specific attention to the needs and experiences of women in conflict and post-conflict situations and to the importance of women's participation in peace processes, it presents certain limitations with respect to the positioning of girls and young women in issues relating to conflict, peace and security. There is no specific mention of girls in the resolution's action points directed at Member States. For example, girls are grouped together under women and girls in calls for the protection against gender-based violence and sexual exploitation and in ending impunity for these crimes. The impact of gender-based violence and sexual exploitation on girls, young women and older women can be devastating, and will be experienced dif- ferently by girls and young women due mainly to their life cycle stage. The social stigma and marginalization, sexual and reproductive health risks, and life opportunities after experiencing gender-based violence, sexual exploitation or rape are different for girls and young women.

Effectively responding to these issues and developing preventive programming strategies, such as gender sensitivity training in military and civilian peacekeeping operations, will require differentiating between experiences and needs of girls and young women, and older women. 1325 can and should be used to further examine and situate girls and young women in the broader women, peace and security agenda. 1325 can also be used to call for improved coherence between child protection and international women's equality policy. Bridging this gap would reduce the invisibility of girls and young women in human security and peacebuilding policy and programming. In order to bring girls and young women in to peace processes and peacebuilding efforts, international institutions, organizations and governments need to better understand the role of girls and young women in conflict and post conflict, moving beyond the notion of victim to include their role as active participants in war. In 2004, CIDA and Rights and Democracy co-funded Where are the Girls: Girls in Fighting Forces in Northern Uganda, Sierra Leone, and Mozambique, a comprehensive and influential study of the lives of girls during and after conflict.

Limited guidance concerning how to implement:

Although the adoption of SCR 1325 has contributed to an increased level of awareness of the issues surrounding women, peace and security, there is a shortage of knowledge and guidance concerning how to interpret and apply the provisions within the resolution and how to concretely implement initiatives that address the root causes of conflict and its impact on women and girls.

Confusion between "Gender Balance" and "Gender Mainstreaming": Within some government departments, efforts to address the concerns highlighted in the resolution remain largely focused on increasing numbers of women and achieving a greater gender balance among employees, rather trying to mainstream gender concerns by bringing gender equality perspectives to ongoing programs and policies. While efforts are needed to bring about a greater gender balance, these efforts do not necessarily translate into meeting the needs and protecting the rights of women and girls impacted by armed conflict.

1325 and Girls and Young Women

Although the adoption of resolution 1325 draws specific attention to the needs and experiences of women in conflict and post-conflict situations and to the importance of women's participation in peace processes, it presents certain limitations with respect to the positioning of girls and young women in issues relating to conflict, peace and security. There is no specific mention of girls in the resolution's action points directed at Member States. For example, girls are grouped together under women and girls in calls for the protection against gender-based violence and sexual exploitation and in ending impunity for these crimes. The impact of gender-based violence and sexual exploitation on girls, young women and older women can be devastating, and will be experienced dif- ferently by girls and young women due mainly to their life cycle stage. The social stigma and marginalization, sexual and reproductive health risks, and life opportunities after experiencing gender-based violence, sexual exploitation or rape are different for girls and young women.

Effectively responding to these issues and developing preventive programming strategies, such as gender sensitivity training in military and civilian peacekeeping operations, will require differentiating between experiences and needs of girls and young women, and older women. 1325 can and should be used to further examine and situate girls and young women in the broader women, peace and security agenda. 1325 can also be used to call for improved coherence between child protection and international women's equality policy. Bridging this gap would reduce the invisibility of girls and young women in human security and peacebuilding policy and programming. In order to bring girls and young women in to peace processes and peacebuilding efforts, international institutions, organizations and governments need to better understand the role of girls and young women in conflict and post conflict, moving beyond the notion of victim to include their role as active participants in war. In 2004, CIDA and Rights and Democracy co-funded Where are the Girls: Girls in Fighting Forces in Northern Uganda, Sierra Leone, and Mozambique, a comprehensive and influential study of the lives of girls during and after conflict.

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Developing Indicators to Monitor Progress

Indicators have not been identified across government departments to assist with tracking implementation or measuring success. There are many factors involved in the process of agreeing upon tangible and measurable goals across a wide range of stakeholders. A rolling set of indicators might be most appropriate - indicators that are sensitive to specific challenges that exist in varying contexts and can be adapted to reflect achievements and successes. The task of developing indicators could be carried out through either the Interdepartmental Working Group on Gender and Peacebuilding or the CCWPS. Civil society organizations need to be involved in determining what these indicators are so that they can in turn use the process as a mechanism for holding gov-

ernments accountable.

• Ensure that consultations in conflict affected countries that result in the formulation of CIDA's Country Development Programming Frameworks (CDPFs) aim to increase gender equality and include the participation of women and girls affected by conflict and the articulation of their needs, rights and priorities. This includes developing a strategy in countries where par- ticipatory consultation processes have not taken place at the country level such as in many fragile and failed states.

• New forms of interdepartmental cooperation and collaboration which seek to establish a more effective 3.4 Suggestions for continued and

improved implementation:

Time Bound Opportunities

• Canada as Chair of the Human Security Network: Canada is the current Chair of the Human Security Network, a thirteen-member network committed to promoting issues of human security. Canada will be Chair for one year and has identified two sets of issues that it will pursue during its leadership: 1) estab- lished human security issues that include, war affected children and small arms; and 2) emerging human security issues which include the Responsibility to Protect, HIV/AIDS and women, peace and security.

• Canada's International Policy Review: In November 2004, the Canadian government will issue a review of its development, defence, diplomacy and trade policies. The needs, rights and interests of women and girls in conflict and their participation in peacebuilding and reconstruction must be an integral and systematic part of Canada's peace and security policies.

• Beijing + 10: The Beijing + 10 meetings that will be held in March 2005 present an important opportunity for Canada to contribute to the development of deeper analysis, and the generation of new ideas and practical recommendations for implementation.

• First and foremost, the Government of Canada should actively pursue a coordinated and integrated strategy for fulfilling its commitment to implement SCR 1325. Given that the Interdepartmental Working Group on Gender and Peacebuilding encompass all of the key departments involved in the implementation of 1325, this group (with the necessary human and finan-

cial resources), could serve as a more formal implementation mechanism whereby all efforts and initiatives are documented, and lessons learned gathered and used to inform a framework for implementation.

Developing Indicators to Monitor Progress

Indicators have not been identified across government departments to assist with tracking implementation or measuring success. There are many factors involved in the process of agreeing upon tangible and measurable goals across a wide range of stakeholders. A rolling set of indicators might be most appropriate - indicators that are sensitive to specific challenges that exist in varying contexts and can be adapted to reflect achievements and successes. The task of developing indicators could be carried out through either the Interdepartmental Working Group on Gender and Peacebuilding or the CCWPS. Civil society organizations need to be involved in determining what these indicators are so that they can in turn use the process as a mechanism for holding gov-

ernments accountable.

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A dedicated officer responsible for the implementation of SCR 1325 within the

Department of National Defence (DND)

DND has a central role to play in advancing the resolution through its deployment of men and women to conflict zones where they have a direct impact on the lives of women and girls and a responsibility to fulfill Canada's commitments to SCR 1325 on the ground. DND has a wealth of facilities, contacts, experienced personnel and leadership to offer to this agenda. This fact warrants a full time staff person dedicated to overseeing the implementation of SCR 1325 internally within the department.

This position should not be exclusive to training related activities, but should be responsible for general oversight focused on ensuring the approach to military issues and peacekeeping reflects an understanding of gender inequality as a contributing factor to war as well as a factor which intensifies its impact.

A dedicated officer responsible for the implementation of SCR 1325 within the

Department of National Defence (DND)

DND has a central role to play in advancing the resolution through its deployment of men and women to conflict zones where they have a direct impact on the lives of women and girls and a responsibility to fulfill Canada's commitments to SCR 1325 on the ground.

DND has a wealth of facilities, contacts, experienced personnel and leadership to offer to this agenda. This fact warrants a full time staff person dedicated to overseeing the implementation of SCR 1325 internally within the department. This position should not be exclusive to training related activities, but should be responsible for general oversight focused on ensuring the approach to military issues and peacekeeping reflects an understanding of gender inequality as a contributing factor to

war as well as a factor which

• Ensure that Canada's commitments to SCR 1325 are reflected in its diplomacy, development and defence (3- D) integrated approach to stabilization and reconstruction, and in particular in countries upheld as models for this approach i.e. Afghanistan and Haiti.

• Conduct outreach and advocacy across thematic sectors and geographic areas in order to foster awareness and appreciation for the women, peace and security agenda.

• Additional human and financial resources should be

allocated for the CCWPS in order to strengthen its capacity to fulfil its mandate.

• In order to address the need for sustained leadership at a higher level, coordinated pressure will have to be applied from both outside and inside the government to mobilize this political will.

approach to security and development must reflect the provisions outlined in SCR 1325.

A dedicated officer responsible for the implementation of SCR 1325 within the

Department of National Defence (DND)

DND has a central role to play in advancing the resolution through its deployment of men and women to conflict zones where they have a direct impact on the lives of women and girls and a responsibility to fulfill Canada's commitments to SCR 1325 on the ground. DND has a wealth of facilities, contacts, experienced personnel and leadership to offer to this agenda. This fact warrants a full time staff person dedicated to overseeing the implementation of SCR 1325 internally within the department.

This position should not be exclusive to training related activities, but should be responsible for general oversight focused on ensuring the approach to military issues and peacekeeping reflects an understanding of gender inequality as a contributing factor to war as well as a factor which intensifies its impact.

A Women, Peace and Security Fund

If working toward full implementation of SCR 1325 is a serious priority, as the government of Canada has stated on numerous occasions, Canada must support its prom- ises with concrete strategies. Sufficient funds must be allocated specifically for this agenda. To this end, a Women, Peace and Security Fund which commits $1 million per year for three years, should be created to ensure that the Canadian government lives up to its commitment to fully implement the resolution. The Human Security Progam at FAC provides an ideal location for such a Fund. In the event that the HSP is not renewed, a Women, Peace and Security Fund should be developed elsewhere within the government, perhaps within CIDA.

The Fund will require the flexibility which allows it to be innovative and provide support to smaller grassroots organizations.

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Section 4: Snapshots Colombia and Afghanistan

A "Snapshot" of SCR 1325 in Colombia FAC and CIDA

Colombia's 40-year internal conflict has had a devastating impact on women and girls. Women represent the majority of the 2.5 million internally displaced persons (IDPs) and sexual violence and other forms of abuse have been systematically used as weapons of war against women and girls. Colombian women are taking leadership roles in peacebuilding at the local level, establishing informal agree- ments with armed actors, and forming ''peace zones'' to protect their communities. Women and girls have also played an active role as combatants in guerilla groups, and more recently with paramilitary groups in Colombia. Young women are believed to constitute 30% of FARC (Revolutionary Armed Forces of Colombia), Colombia's oldest and most powerful rebel group.⁽³⁾

Working with SCR 1325 in Colombia: The formal peace process in which the Colombian government is currently engaged with the paramilitaries fails to address the gender dimensions of the conflict or involve women in the peace process. This is largely due to a very limited knowledge of SCR 1325 at senior political levels in Colombia and a lack of genuine political will to address gender issues more broadly. Inspired by FAC's activities in relation to SCR 1325 at the multilateral level, the Canadian Embassy in Bogata decided to undertake work on SCR 1325. Although there haven't been any direct measures undertaken by CIDA to implement resolution1325, CIDA's Gender Equality Fund has undertaken a number of projects in Colombia that deal with issues raised in the resolution. These include projects that are working to strengthen the participation of women in the construction of peace with the long-term goal of increasing participation and social leadership of women in the peace process.

How are FAC and CIDA using the resolution in Colombia? SCR 1325 provides Canadian officials in

Colombia with an international instrument which can be used to demonstrate that all actors involved in the Colombian context have obligations to respect the human rights of women and girls. The resolution also allows each donor to speak the same language and seek ways of harmo- nizing their support to both civil society and the Colombian government.

Steps toward advancing the goals of SCR 1325: The Canadian embassy has only just begun work on the promotion of SCR 1325 in Colombia. To date, the main achieve- ment has been the creation of a link between the NGO Red de Paz, who is implementing a project on women peace- builders with support from the FAC Human Security Fund and FESCOL (The German Friedrich Ebert Foundation in Colombia). A one-day workshop on SCR 1325 (August 21, 2004) was provided to the women of Red de Paz who were attending a 3-day workshop on human rights and international humanitarian law within the context of the FAC project. This workshop created space for information sharing where space did not previously exist. Most of the women attending the Red de Paz workshop had not previously heard of SCR 1325. One of the activities of the workshop explored concrete ways of applying the resolution. The Embassy and FESCOL are investigating the possibility of joining forces to develop a SCR 1325 toolkit tailored to the Colombian context.

Measuring success in the Colombian context: Long term success with respect to implementing SCR 1325 can be measured by the resolution's concrete application at the local level by the corresponding levels of government and armed actors, in addition to the national government fully implementing a comprehensive strategy on women which includes elements of SCR 1325. Success will also require the inclusion of gender-equality concerns as an integral part of all peace negotiations with illegal armed groups. As the resolution is not very well known in Colombia, short-term success can be measured by a greater awareness of SCR

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1325 across government and civil society.

FAC hopes to monitor work around SCR 1325 through its partner, Red de Paz, using the NGO's network of branch- es located in more than 140 municipalities across the country. This network holds great potential for getting feedback and input from a wide cross section of people affected by Colombia's conflict. CIDA's Gender Equality Fund under- goes an annual consultation process with the local NGO and government partners that have been supported by the Fund. Results of the consultations are analyzed and conclusions and recommendations set for ensuring the Fund remains valid and responsive to the needs of women in Colombia. At the end of each Phase of the Gender Equality Fund, a full regional consultation process is implemented following a thorough evaluation. Results are built into the design of the following phase of the Fund.

Obstacles encountered when working with SCR 1325 in Colombia:

• Inhibiting effective implementation of SCR 1325 in Colombia is the lack of trust between the government and NGO community, which is characterized by reluc- tance on the part of many NGOs to participate in initiatives in which the government is involved. It has been suggested that working with NGOs and with the government concurrently, but separately, may be the most productive way to overcome this obstacle.

• A secondary factor is the lack of knowledge of SCR 1325 within the government as a whole and among NGOs. CIDA's work in Colombia is guided by priorities set by a National Development Plan which receives input from various Ministries and civil society groups.

The fact that the Department Office for the Equality of Women does not receive sufficient funding and is without the staff required to ensure gender mainstreaming throughout the Government places significant limita-

tions on what can be achieved with respect to implementing SCR 1325.

Looking ahead: Efforts to support the implementation of regional and international treaties and conventions rests with a commitment for long-term and constructive support to those institutions that have the mandate to implement them, as well as those that are well positioned to lobby for their implementation at the national level, but also at the local and community levels.

Important considerations for future work on SCR 1325 in Colombia:

• Create and diffuse materials in Spanish tailored to the Colombian conflict.

• Ensure coordination and synergy with partners at all levels, to avoid duplication, but also to influence policy, mitigate risk and increase impact through interrelated projects.

• Address the deep-seated causes of the conflict to the extent possible in current circumstances. The goal is to improve the ability of people affected by the conflict to change their situation, this will require countering scep- ticism on the part of the public and lack of transparen- cy and openness to public participation on the part of the government.

• Recognize which partner organizations have the strongest commitment to these issues and a level of accountability which allows both FAC and CIDA to apply a strategic approach to supporting the role of women in peace and security.

• Develop and support a long-term strategic approach, while balancing support to civil society and govern-

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ment, and facilitating their collaboration.

• Recognize the importance of reaching indigenous and Afro-Colombian women and girls.

• Encourage coordination among the UN agencies including UNIFEM, UNICEF, UNDP and UNFPA to work together at supporting efforts to implement the resolution.

A "Snapshot" of CIDA's experience with 1325 in Afghanistan

Following more than two decades of war and insecurity and systematic exclusion from social, economic and public life, Afghan women are faced with a complex array of imminent threats and opportunities as they seek to rebuild their role in society.

Working with SCR 1325 in Afghanistan: The donor community in Afghanistan, including the UN and World Bank, assist the Government of Afghanistan to formulate national priority programs which in turn receive support from the donor community. As a result, most of the support given by CIDA to Afghanistan is in response to programs initiated by the Afghan government.

CIDA's Interim Assistance Plan for Afghanistan (2003-05) aims to support the efforts of the Afghan government and citizens to lay the foundations for a secure and prosperous country. Key objectives include: rural livelihoods and social protection; natural resources management and security and rule of law. With the reconstruction of Afghanistan, Canada continues to press for the full participation of women in post-conflict governance and rehabilitation activities and for the creation of a government-wide gender strategy. CIDA has funded Afghanistan's first-ever Human Development Report which includes a Gender Development Index.

Measuring progress: CIDA has a Gender Equality Policy which outlines three corporate objectives: 1) to advance women's equal participation with men as decision-makers in shaping the sustainable development of their societies; 2) to support women and girls in the full realization of their human rights; and 3) to reduce gender inequalities in access to and control over the resources and benefits of development. The achievements outlined above are in support of objective 2) in the specific context of Afghanistan. Progress made with respect to implementation of resolution 1325 can be measured by the extent to which CIDA is able to promote and implement its Gender Equality policy in the context of strengthening peace and human security in Afghanistan.

Steps toward advancing the goals of 1325:

• CIDA supported the process of Constitutional Consultation with experts and civil society including women's organizations. The nine-person constitutional commission included two women. One of the vice- chairs of the Constitutional Loya Jirga was also female.

• CIDA is supporting the election process in which 40% of the voters are expected to be women. A grant was provided to the International Foundation for Election Systems to support the voter registration process in Afghanistan in coordination with CODE Inc., a Canadian company with extensive experience in voter registration in developing countries. The Project is supporting the United Nations Assistance Mission in Afghanistan's (UNAMA) voter registration campaign to a select number of sites and the procurement of equipment and materials for the process. UNAMA is committed to identifying and overcoming the barriers to women's registration and participation in elections.

Half of the 2,600 registration officers will be women and half of the 800 voter registration teams will be women. In order to provide the space needed to support their participation, women will be registered and

United Nations Security Council Resolution 1325 (2000) on Women, Peace and Security

A Civil Society Perspective on Canada's Implementation of