Volume 4, Issue 1 Winter 2018

NATO’s Gender Turn: From Policies to Operations Dr. Stéfanie von Hlatky and Thomas Hughes Queen’s University and the Centre for International and Defence Policy Countries, like Sweden and Canada, are announcingfeministforeignpolicies;celebrities,likeAngelinaJolieandEmma Watson, are teaming up with internationalorganizationstopromotegenderequality;andNATO,theworld’smostpowerfulalliance, isworkingtointegrateagenderperspectiveinitspoliciesandoperations.Sincetheadoption of United Nations Security Council Resolution1325(UNSCR1325)onWomen,PeaceandSecurity(WPS)in 2000, governments and international organizationshaveembarkedonajourneyofnormativechangetoaligntheir international activities with principles of genderequality, emphasizing the inclusionofwomen in conflictresolutionandpeaceprocessesinparticular.NATO’sownexperiencewith theWPSagenda tookoff inearnest justoveradecadeago,withitsfirstEuro-AtlanticPartnershipCouncil (EAPC) policy on the implementation ofUNSCR1325 in 2007. Shortly after, in 2009, NATO’smilitary branch proceeded with its own guidance byadoptingBi-StrategicCommandDirective40-1(Bi-SC40-1)onIntegratingUNSCR1325andGenderPerspectiveintotheNATOCommandStructure.

While the policies and directives are in place,implementationcontinuestobedoggedbyagenerallackof understanding of what these concepts represent andwhat they mean for NATO’s day-to-day activities. 1 ThemostusefulconceptthatNATOprovidesinthiscontextcanbefoundinthelatestiterationofBi-SC40-1wheregendermainstreaming is defined as “assessing the implicationsfor women and men of any planned action, includinglegislation,policiesandprogrammesinallareasandatalllevels”.Inanutshell,genderconsiderationsshouldbefrontofmindforanyNATOpolicymakingoroperationaltasks.Butdefinitions,nomatterhowwellarticulated,canonlytakeorganizationaltransformationsofar.

Inorder tooffera clearexplanationofwhat thisgenderturn implies forNATO, the Centre for International andDefencePolicyatQueen’sUniversityteamedupwiththeNATODefenceCollege inRome tohost aworkshop thatwoulddrawfromtheexpertiseofacademia,civilsociety,governmentandmembersofthearmedforcestodevelopa common understanding of how including a genderperspective can improve NATO’s policies, operationalplanningandmissions.2

Thepanelsweredesignedtoapproachthesubjectofgenderandsecuritythroughthelensofevidence-basedresearch.Whattheresearchdemonstratesisthattherearegender-baseddifferencesthataremanifestinconflictandthusitisimportantforpolicymakersandmilitaryplannerstosituatetheWPSagendawithinabroadersocialcontext.For example, Erik Melander’s research showed that theway masculine traits are socially constructed impactsmen’s likelihood of participation in political violence.Consequently,cultivatingagreatersenseofawarenessofthe prevalence of hypermasculine traits in communitieswhereoperations are takingplace can facilitate thepre-emptionofviolence.

Gender mainstreaming means: “Assessing the implications for women and men of any planned action, including legislation, policies and programs in all areas and at all levels” - NATO Bi-Strategic Directive 40-1 Integrating

UNSCR 1325 and Gender Perspective into the NATO Command Structure (2017)

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Otherexamples focusedontheexperiencesofwomen inconflicts in Afghanistan and Ukraine, and within NATOmilitaries. Participants noted the unintendedconsequencesofNATO’sengagementwiththeWPSagendain Afghanistan and demonstrated the importance ofongoingevaluationsofthelocalimpactsofNATO’smilitaryoperations and peacetime command structures. Theseevaluations are typically performed by Gender Advisors(GENAD), who are military officers that provide thecommander with advice on the social impact of themission, based on an understanding of local genderdynamics. Jessica Trisko-Darden examined the role ofwomen in irregular conflicts, notably Ukraine. The datashowcasedvariedrationales forwomen’sengagement inconflict. However, questions about the post-conflictenvironment remained common, indicating thatdemobilisation programmes must be responsive towomen’s needs, and reduce their vulnerability in post-conflictsocialconfigurations.

An importantword of cautionwas expressed bytheworkshop’sexpertsasthegenderperspectiveisoften

justified on the basis of improving operationaleffectiveness, which risks obscuring the overarchingequalitygoalswhicharesoughtbytheUNresolutionsthatare linked to 1325. Indeed, claiming that increasing thenumber of women can improve militaries’ intelligencecapabilitiesbecause theyarebetterable toconnectwithlocal community members is appealing from anoperational standpoint, but does little to further genderequality goals on the ground. Bearing this importantconsiderationinmind,KatharineMillerdemonstratedthatitdoesnothavetobeadichotomybutthat,instead,bothcan be mutually reinforcing. Gender equality isfundamental to the UN and NATO’s stated values. As aresult, it is key to the successful implementation of theWPS agenda, which is, in part, intended to improveoperationaleffectiveness.Consequently,thebestpracticewouldbetoensurethatbothgenderequalitygoalsandtheoperational benefits identified as part of the policy andoperationaldesignsaretreatedwithequalseriousness.

These connections were strengthened by LouiseOlsson’s examination of the NATO/EAPC Policy for theImplementationofUNSCR1325,whichidentifiedfourkeyimpactsofanimprovedresearch-policydialogue:First,itbreaksdownthemandateformainstreamingagenderedperspective into comprehensible objectives and tasks.Second, it improves NATO’s capacity to deliver theexpectedoutcomesoftheimplementationofUNSCR1325andrelatedresolutions.Third,itadvancesunderstandingoftheparticipationofwomeninconflictinahoststateand,fourth, it enhances understanding of women’sparticipationinNATOmilitaries.

WhenitcomestoNATO’sday-to-dayactivities,theformerGENADfortheInternationalMilitaryStaffJesusGilRuizechoedtheconcernsexpressedbyNinaWüstemannovertheconceptof‘gender’beingconflatedwith‘women’,withthetwotermsoftenbeingusedsynonymouslyintheHeadquarters. The present challenge with theimplementation ofUNSCR 1325at NATO is therefore toinclude more men in gender mainstreaming processes.Jesús Palomo also identified implementation challenges,

SpecialEnvoyfortheHighCommissionerforRefugeesAngelinaJolieandSecretaryGeneralofNATOJensStoltenberg.Brussels,

January31,2018.

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demonstrating that slow progress had been made ongender integration in NATO, but that a cultural shift isneeded to comprehensively advance women’srepresentationacrosstheAlliance’sarmedforces.

Figure1-DatareproducedfromUNSCR1325Reload:AnAnalysisofAnnualNationalReportstotheNATOCommitteeonGender

Perspectivesfrom1999-2013(Figure9,p.26).

The issue of women’s representation vis-à-vis menwaslinkedtobroaderconsiderationofthegenderperspective,which refers to a holistic framework including theconsideration of both men and women’s uniqueexperienceswithrecruitment,careerdevelopment,work-lifebalanceandsexualassaultandharassmentprotection.Bi-SC 40-1 defines a gender perspective as “Assessinggender-baseddifferencesofwomenandmen[as]reflectedintheirsocialrolesandinteractions,inthedistributionofpowerandtheaccesstoresources”.Theseconsiderationsare key to transforming NATO’s own organizationalculture. As Agata Szymanska argued, the elimination ofgender gaps across theorganization requires the visiblecommitment of leadership aswell as the collection andtrackingofdataonrepresentationandintegrationpolicies.

Beyond improving gender equity policies,organizations like NATO are mandated to integrate

gendered perspectives into operational planning andmissions. While operational planning guidelines can besupported by NATO, ultimately implementation is theresponsibilityofnationsastheydeploytheirtroopsundertheNATOumbrella.TheCanadianArmedForces(CAF),forexample,haverecentlychangedtheirpracticestoincludeone GENAD in each of their operational deployments.There are also GENADs at the strategic level to adviseseniormilitary leadership. The GENAD for the CanadianJoint Operations Centre, Lieutenant-Colonel GuillaumeTremblay,outlinedtheOperationalandInstitutional‘Linesof Effort’ throughwhich the CAF has integratedUNSCR1325. Significantly, strategic messaging regarding thisintegrationstressedoperationaleffectiveness,ratherthanthe normative imperative of compliance. Stéfanie vonHlatkyandHeidiHardt’sresearchonNATO’sarmedforcesdemonstrate that this focus on operational effectivenesshasincentivizedarmedforcestoimplementUNSCR1325,sotheCAFexperienceisfarfromunique.Goingforward,NATOmemberstatesandpartnersshouldconsiderhowtobetterharmonizegendermainstreamingactivitiesforbothcivilianandmilitaryorganizations.

AttendeesandparticipantsattheGender,Women,andInternationalSecurityworkshop,BaderInternationalStudyCentre,

October2017.

7.16.8

6.1

8.8

8.7

8.99.6

10.210.2

10.2

9.910

10.410.510.5

024681012

199920002001200220032004200520062007200820092010201120122013

ThepercentageofwomeninthearmedforcesofNATOmembers,1999-2013

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In sum, a number of important concepts andconsiderationsshouldbewellanchoredforNATOtomoveforward on implementing UNSCR 1325. The followingrecommendations are intended to support ongoingprogress by NATO as an organization, but are equallyrelevantfortheAlliance’smemberandpartnernations:- There needs to be consistency in the definitionsemployedasmisunderstandingspersistwithregardtothe terminologyongender: harmonizationacross theAllianceshouldbefacilitatedwithreferencestoexistingdocuments such as theEAPCPolicyon Implementing1325andtheBi-SC40-1onIntegratingUNSCR1325andGenderPerspective into theNATOCommandStructure.These foundationalconceptsshould formthebasisoftrainingapproachesattheAllianceandnationallevels;

- Understandingthegender-baseddifferencesofwomenandmenleadstoasocialanalysisthatisimportantindesigningpolicies,operationalplansandmissions.Itisnottheresponsibilityofwomenorofgenderadvisors,but rather, should become a practiced skillset, in thesamewayriskandneeds-basedanalysesareconductedregularly by policymakers and military planners.Gender advisors and gender focal points canprovideresources to assist in incorporating a genderperspective in policy and operational planning tasks,but gender literacy should be treated as a corecompetencyforanysecurityanddefenceprofessional;

- Policiesshouldbeguidedbyacleardistinctionbetweenrepresentationgoalsandtheincorporationofagenderperspective in NATO decisions and processes.Representationgoalsarelinkedwithimprovinggenderequity in security andmilitary organizations and theincreasedparticipationofwomeninconflictresolution

Endnotes 1.Lackenbauer,HelenandRichardLanglais(eds),ReviewofthePracticalImplicationsofUNSCR1325fortheConductofNATO-LedOperationsandMissions(Brussels:NATO,2013).

andpeaceprocesses.Thegenderperspectivereferstoassessing the implications of gender in policy andoperationaldesignstoimproveoutcomes;

- Furtherevidence-basedresearchisrequired,alongfourprimarylinesofenquiry:o Therecruitment,retention,experiences,andcareertrajectoriesofwomeninNATO.

o Thewayinwhichgenderadvisorsandgenderfocalpointsareusedinmissionplanningandoperations.

o Theroleofwomenandperceptionsofgenderin21stcenturyconflict.

o Theeffectofgender-basedplanningonoperationaloutcomes. The benefit of a incorporating a genderperspective is incontrovertible, but theway that itcanbemosteffectivelyleveragedismoreunclear.

- Althoughhighlightingtheimprovementinoperationaleffectiveness that can stem from appropriatelyincludingagenderperspectiveinmissionplanningandexecution should remain a central tenet of efforts toimplement UNSCR 1325, this must not be over-emphasised and nor should it be seen as a panacea.Mostsignificantly,itshouldnotcomeattheexpenseofstressing the central goal of equality, which isfundamentaltotheWPSagenda;

- A greater degree of openness and co-ordinationbetween NATO member states in their gendermainstreaming processes, ideally leading to thecollaborativedevelopmentofbestpractices.

2.ThisworkshopwasalsosupportedbyaDefenceEngagementGrantfromtheCanadianDepartmentofNationalDefence.