Professional Documents
Culture Documents
in contributing countries
Sabrina Karim
Department of Political Science, Emory University
Kyle Beardsley
Department of Political Science, Duke University
Abstract
Sexual exploitation and abuse (SEA) is an endemic problem in UN peacekeeping missions. It is not only a gross human
rights violation, but also threatens to challenge the legitimacy of the peacekeeping mission and undermines the promotion
of gender equality in host countries. We examine if the composition of peacekeeping forces along two dimensions – the
proportion of women and the records of gender (in)equality in the contributing countries – helps explain variation in SEA
allegations. Analysis of mission-level information from 2009 to 2013 indicates that including higher proportions of both
female peacekeepers and personnel from countries with better records of gender equality is associated with lower levels of
SEA allegations reported against military contingents. We conclude that substantial reductions in SEA perpetrated by
peacekeepers requires cultivation of a value for gender equality among all peacekeepers – improving the representation
of women may help but still stops short of addressing the root of the problem.
Keywords
gender, peacekeeping, sexual exploitation and abuse, UN
SEA in peacekeeping missions is a major problem for both the representation of women in missions and the
multiple reasons. Engaging in such practice is a gross norms and practices related to gender equality in the force
human rights violation on the part of peacekeepers that contributing countries can potentially shape the proclivity
leaves individual survivors traumatized. In addition to for SEA. In order to examine these expectations, we col-
the obvious physical and psychological trauma inflicted lected data on the number of SEA allegations reported
on the survivors, SEA may be especially damaging to the to the UN, the proportions of women in each mission,
human security of the communities to which peacekeeping and measures of gender equality in contributing countries
missions deploy and is a source of mistrust between local from 2009 until 2013. We find that the inclusion of
populations and the peacekeeping missions. As the local higher proportions of female peacekeepers does have an
population experiences this abuse, they may find the peace- association with fewer SEA allegations, as does the inclu-
keeping mission less beneficial and therefore less legitimate. sion of more personnel from countries with better records
SEA also hinders the promotion of gender equality of gender equality. We conclude that substantial reductions
locally.2 If peacekeepers are supposed to promote gender in SEA perpetrated by peacekeepers requires cultivation of
equality, as a part of enhanced mandates that invoke UN a value for gender equality among all peacekeepers –
Security Council Resolution (UNSCR) 1325, then SEA improving the representation of women can help but still
significantly hampers these efforts. In many multidimen- stops short of addressing the root of the problem.
sional missions, a large component of the peacebuilding
activities involves promoting gender equality through the
UNSCR 1325 mandate (Kronsell, 2012; Olsson, 2009; Sexual exploitation and abuse (SEA) in
Olsson & Tryggestad, 2001), which means that if peace- UN peacekeeping missions
keeping personnel are involved in activities that violate The UN’s record on SEA is checkered. Allegations about
gender equality, locals may not take these programs seri- peacekeepers’ involvement in widespread sexual miscon-
ously. Moreover, such behavior and activity only serve to duct initially emerged in the UN mission in Cambodia
perpetuate patriarchal structures within the host country. (1993) and was followed by reports from Bosnia and
For example, there is anecdotal evidence that this beha- Herzegovina, Haiti, the Democratic Republic of Congo
vior by peacekeepers may foster the growth of an illicit (DRC), East Timor, Liberia, and Sierra Leone. Despite
sex industry and its associated problems (Atwood et al., the fact that many allegations emerged before 2000, it
2011; Jennings, 2010; Kronsell, 2012). In order for the was not until 2003 that the UN Secretary-General
promotion of gender equality to have any effect, peace- announced a zero-tolerance policy that forbade peace-
keepers must lead the way by example. keepers from exchanging money, food, help, or anything
Up until now, prevention of SEA by peacekeepers has of value for sex.3 And, it was not until 2005 that the
not been studied in depth quantitatively. One exceptional Department of Peacekeeping Operations (UN DPKO)
study has looked at the conditions under which SEA might established the Conduct and Discipline Team to train
be more or less likely. Nordås & Rustad (2013) find that peacekeepers about the new policy, to enforce it, and
SEA is more frequently reported in situations with lower to conduct investigations of violations of it.4 In 2007 the
levels of battle-related deaths, in larger operations, in more policy was extended to all UN personnel (not just peace-
recent operations, the less developed the country hosting keepers) and the Conduct and Discipline Team within
the mission, and in operations where the conflict involved UN DPKO became the Conduct and Discipline Unit
high levels of sexual violence. This work has helped charac- within the UN’s Department of Field Support. This
terize the important structural conditions that create a bet-
ter opportunity for SEA abuses to occur.
3
We consider whether the composition of mission per- The ‘zero-tolerance policy’ bans almost all sexual activity between
UN peacekeeping personnel and local women in order to prevent
sonnel might also affect the levels of SEA in UN peace-
‘sexual exploitation’. The bans do not only prohibit any ‘exchange
keeping missions. Our arguments and analysis focus on of money, employment, goods or services for sex’ but also ‘strongly
two factors related to mission composition. Specifically, discourage sexual relationships between UN staff and beneficiaries
of assistance since they are based on inherently unequal power
dynamics’.
4
For more details, see UN General Assembly, A Comprehensive
2
Gender equality is defined as the belief that men and women are Strategy to Eliminate Future Sexual Exploitation and Abuse in
equal in society in all roles and responsibilities. Below it is United Nations Peacekeeping Operations, A/59/710, 24 March
measured as the presence of women in public society and the legal 2005, prepared by Prince Zeid Ra’ad Zeid Al-Hussein. See Stern
and institutional protections for women in a country. (2015) for an assessment of the ‘Zeid Report’ a decade in progress.
102 journal of PEACE RESEARCH 53(1)
60
allegations until 2006, over a decade after indications of
an endemic problem arose.
40
allegations are still a major problem for peacekeeping
operations (OIOS, 2015). For example, there exists a high
level of transactional sex between peacekeepers and local
20
women. The OIOS report cites a representative study
by (Beber et al., forthcoming), who found that over
one-fourth of women aged 18 to 30 in greater Monrovia,
Liberia have engaged in transactional sex with a peace-
0
2007 2008 2009 2010 2011 2012 2013
keeper and about half of the sexual transactions that occur
in Monrovia are with UN personnel. While transactional Military Police
sex is only a form of SEA (Kanetake, 2010; Simic, 2009;
Simm, 2013), there are clear power dynamics associated Figure 1. SEA allegations in military and police units
with peacekeepers and local women. Moreover, when
men engage in transactional sex, they may be more prone combat requires the privileging of hegemonic masculi-
to commit sexual abuse or rape (Dunkle et al., 2006). nities – aggressiveness, courage, obedience, patriotism,
Figure 1 presents a graph of the level of SEA over stoicism, and loyalty – over feminine behavior. Enloe
time, demonstrating that SEA is still a problem in both (1990) highlights the problems that militarism creates
military and police contingents despite the UN’s zero- for male sexuality and misconduct, and observes that sex-
tolerance policy. Although the numbers of reported SEA ual misconduct by security forces is common in areas
offenses in 2012 and 2013 were much less than those with military bases or other large congregations of secu-
from 2007 to 2009, 30 reported military offenses in rity sector officials.
2013 still indicates a problem.5 Moreover, the count of In addition to the general link between militarized
military SEA allegations increased by more than 50% masculinity and SEA in the security sector writ large,
from 2012 to 2013, with a mean of two allegations per an additional link pertains to peacekeeping forces. With
mission in 2013. With fewer deployed personnel, allega- the evolution of more complex and multidimensional
tions against police personnel are lower than military peacekeeping operations,7 peacekeeping asks soldiers to
allegations, with a mean of just under 0.5 allegations per do work that might normally be done by civilians – for
mission in 2013. Despite the apparent decline, it is example, promote human rights and organize elections.
important to note that SEA allegations are almost cer- That soldiers are expected to do what some consider to
tainly a gross undercount of actual SEA offenses because be more mundane work might contribute to ‘identity
most victims do not feel comfortable reporting (Csaky, crises’ that are manifested in sexual exploitation and
2008; Jennings, 2008). abuse (Whitworth, 2007; Carreiras, 2010).8
Moreover, Higate & Henry (2004) have argued that
sexual relationships in missions are central to men’s identity
Explaining SEA through militarized in missions, and that men construct their identity in rela-
masculinity and patriarchy tion to local women. With sexual relationships so tied to
SEA in the context of security forces may be a major male peacekeeper identities, Martin (2005) has suggested
symptom of militarized masculinity, an aggressive form that a ‘hyper-masculine’ culture that encourages tolerance
of masculinity needed for warrior culture to flourish for extreme sexual behaviors has evolved within peacekeep-
(Enloe, 1990).6 Sjoberg & Via (2010) note that effective ing missions. Indeed, for a long time, the military (and
peacekeeping missions) has shrugged off misbehavior as
normal for male-oriented institutions. For example, in
5
These trends are consistent with those reported in Stern (2015),
who similarly finds that progress is being made to reduce SEA
7
offenses but also that much remains to be done. See the Report of the Panel on United Nations Peace Operations
6
It is important to keep in mind that SEA can be committed by (2000) or the ‘Brahimi Report’ (http://www.unrol.org/doc.aspx?n
women as well as men – it is a problem that is not unique to male ¼brahimiþreportþpeacekeeping.pdf).
8
offenders even if it is, in part, a manifestation of male dominance See Bolkovac & Lynn (2011) for an account of human trafficking
in security institutions. in peacekeeping operations in Bosnia.
Karim & Beardsley 103
Cambodia in the early 1990s, the UN Special Representa- reproduces social mechanisms that exert male domi-
tive of the Secretary-General Yasushi Akashi responded to nance over women.
NGO concerns about sexual misconduct by UN peace- A connection exists between patriarchy and the
keepers by saying ‘boys will be boys’ (Simm, 2013). physical security of women; previous work suggests that
Militarized masculinity, however, does not fully cap- there is a link between norms of gender equality and
ture the patterns of SEA in UN peace operations when reduced levels of abuse against women (Hunnicutt,
considering that, on a per-personnel deployed basis, SEA 2009). It is possible that when men believe that they
allegations are actually more prevalent among UN civil- can and even have the right to dominate women, they
ian personnel (OIOS, 2015). Moreover, Nordås & Rus- may be more abusive towards them. Cohen, Green &
tad’s (2013) findings – that variation in the vulnerability Wood (2013) argue that patriarchy is a necessary but
of local populations to exploitation, as well as the poten- insufficient condition for sexual violence, especially as
tial for mission oversight, well explain patterns of abuse – it relates to the security forces. To some extent, all soci-
suggest that SEA also arises from a form of opportunism. eties are patriarchal, but variation exists in the level of
With multiple potential origins of SEA by peace- and various forms of patriarchy in different societies,
keepers, we examine separately the dynamics within mil- which means there may also be variation in the level
itary and police components.9 On the one hand, of sexual violence that occurs across countries. On aver-
personnel in police components are less ‘militarized’ than age, individuals from more patriarchal societies mea-
personnel in military components (Smith, Hold & sured in terms of the practices of gender equality
Durch, 2007) and face less of a gap between their roles within the state may be more likely to hold patriarchal
as UNPOL officers and their roles as police officers in values and thus more prone to commit SEA or at least
their home countries. That is, military personnel face less willing to denounce it.
greater exposure to institutionalized hyper-masculinity We contend that the problem of SEA in peacekeeping
and a greater disconnect between their expectations as sol- operations has roots in both militarized masculinity and
diers and their expectations as peacekeepers. On the other patriarchy. If there is variation in the level of patriarchy
hand, personnel in police operations have greater access to across societies and if military institutions adopt a heigh-
and engagement with local populations, resulting in tened sense of hyper masculinity, then one expectation is
greater opportunities for SEA of local communities. Pat- for security forces that come from more patriarchal coun-
terns of SEA are thus likely to vary across the police and tries to be more likely to commit SEA. Consequently, we
military components of peacekeeping operations. expect the composition of peacekeeping missions, to the
While militarized masculinity and general opportu- extent that it relates to the norms of gender equality
nism in security institutions may play an important role among the personnel, to well inform the levels of SEA
in the perpetration of SEA by peacekeeping personnel, accusations against the missions.
we still need more explanatory power in order to account
for the variation in SEA across individuals and across
missions. Not all soldiers engage in the SEA of locals.
Two approaches: Increasing women’s
Thus, we also focus on patriarchal beliefs as an important representation and improving gender equality
factor that makes some individuals more prone to com- While a number of suggestions have been made to
mitting exploitation and abuse than others. Patriarchy is reduce the levels of SEA such as increasing recreational
a social system in which males dominate nearly all activity among peacekeepers, physically barring them
aspects of life, and it implies the institutionalization of from interacting with locals, and more drastic penalties
male rule and privilege and is dependent on female sub- for committing SEA (Jennings, 2008), we focus on two
ordination.10 It is a social system that produces and ways to mitigate SEA related to reducing patriarchy
and militarized masculinity through the composition
of the forces: increasing the proportion of female
9
Note that our larger argument about patriarchy and gender equality peacekeepers and increasing the proportion of peace-
may pertain to civilians as well. However, we are unable to test keepers that have had substantial exposure to the prac-
whether the argument on UN civilians holds, due to a lack of data. tice of gender equality. The former mechanism has
10
While we recognize there are numerous theories on patriarchy in
been touted as a means to change the patriarchal and
the feminist literature, we opt for this simple definition, which
allows us to set gender equality and patriarchy as converses. When hyper-masculine norms that may perpetuate SEA in
individuals hold more gender-equal beliefs, they are less patriarchal peacekeeping missions, but we posit a number of rea-
and vice versa. sons why such expectations should be bounded. We
104 journal of PEACE RESEARCH 53(1)
suggest that a more holistic approach to enhancing present to possibly report the infractions or more proac-
gender equality within and through peacekeeping mis- tively confront the potential offenders with the moral
sions can more substantially address the underlying argument for why abuse is wrong. In his report on SEA
causes of SEA. This would include both increasing the to the UN General Assembly, Prince Zeid argued that a
representation of women in peacekeeping operations higher number of female peacekeepers was required to
and, perhaps more importantly, enhancing the norms facilitate an environment that discouraged sexual exploi-
of gender equality among all peacekeeping personnel tation and abuse. Bridges & Horsfall (2009) have argued
regardless of sex. that the presence of women can have a deterrent effect –
UN officials have suggested that increasing the num- women may police their male counterparts and deter
ber of female peacekeepers may have an effect in reduc- such behavior when they are present. This explanation
ing SEA (Bridges & Horsfall, 2009; Hull et al., 2009).11 assumes a general solidarity among women in a cross-
A possible connection between increasing women’s rep- cultural context. That is, female peacekeepers will take
resentation in peacekeeping missions and SEA offenses actions to mitigate patriarchy in the mission, because
might be expected from a number of different angles. they believe it hurts local women and gender equality
Most straightforward is the expectation that men are the in the mission.
predominant – though not the sole – SEA offenders, so These latter claims could be critiqued, however, from
increasing the representation of women simply shrinks the position that women entering the security sector
the pool of likely offenders. This approach to attenuating might not in fact be well characterized as feminine, and
SEA offenses, however, is quite limited because the pro- even those that are might not be able to much affect the
portion of women in peacekeeping missions is very low, male-dominant culture, because that culture is likely to
especially for military contingents, and is unlikely to curtail their influence (Kronsell, 2012; Valenius,
increase in the near future (Crawford, Lebovic & Mac- 2007). SEA may often be well hidden from female group
donald, 2015; Karim & Beardsley, 2013, 2015), and members, reducing the opportunities for improvements
women are often not deployed to the missions with the in intragroup accountability (Kronsell, 2012). And even
most vulnerable local populations (Karim & Beardsley, if SEA abuses are observed, female group members might
2013, 2015). Such an approach aimed at trying to not be more likely than their male counterparts to report
reduce the pool of potential perpetrators also overlooks them because country loyalty could trump loyalty to
the potential for women to perpetrate sexual violence local women (Jennings, 2008). Additionally, women face
or SEA (Sjoberg & Gentry, 2007). pressures in the job and may feel intimidated to report
Less straightforward is the expectation that including any misconduct, especially because women must over-
more women can mitigate the combination of militar- come gender biases to prove that they are team players
ized masculinity and patriarchy within groups that foster (Lutz, Gutmann & Brown, 2009). Even more impor-
sexual misconduct. If SEA abuses are symptomatic of a tantly, relying on increasing the proportion of women
male-dominant culture in the missions, we then need a in missions as the primary vehicle to address SEA places
connection between the participation of women and the burden onto the small numbers of women deployed
changes in the mission culture. One such argument con- and overlooks the potential for both women and men to
tends that the women being included are both highly value gender equality (Kronsell, 2012; Simic, 2010).
feminine and influential in diluting the militarized mas- Overinvestment in improving the representation of
culinity with their femininity. For example, Simic (2010: women places the entire burden on the women – the
193) reports that Comfort Lamptey, a gender adviser in men who comprise the vast majority of personnel mem-
the UN DPKO, argued that ‘the presence of more bers are oddly taken out of the equation.
women can actually help dilute a macho approach to Aside from improving the representation of women in
peacekeeping’. missions, another solution arises out of a focus on gender
Another strand of argument connecting the inclusion mainstreaming and prioritizes the recruitment of indi-
of more women to reductions in SEA offenses could viduals with strong values for gender equality. When
stem from an expectation that men will be less likely more individuals in missions believe in gender equality,
to engage in abusive actions when more women are patriarchal and hyper-masculine norms within the mis-
sion may be mitigated. If values for gender equality vary
across men (and women), and if they can be enhanced
11
For a critique of this position, see Simic (2010) and Jennings among male (and female) peacekeepers, then men and
(2008, 2011). women can share in the reform process – an especially
Karim & Beardsley 105
important policy objective, because men will likely com- Table I. Missions and allegations (military and police)
prise the majority of peacekeeping personnel for the fore-
Non-zero SEA allegations Zero SEA allegations
seeable future. We expect that as peacekeeping missions
consist of personnel with higher esteem for gender equal- MINURCAT (Chad) BINUB (Burundi)
ity, we should observe fewer instances of SEA abuse MINURSO (Western Sahara) UNAMA (Afghanistan)
within those missions. MINUSTAH (Haiti) UNDOF (Israel–Syria)
It is worth noting that these two approaches are not MONUC/MONUSCO (DRC) UNIFIL (Lebanon)
UNAMID (Darfur) UNIOSIL (Sierra Leone)
mutually exclusive. Increasing the proportion of women
UNFICYP (Cyprus) UNISFA (South Sudan)
while also recruiting more individuals with higher values UNMEE (Ethiopia/Eritrea) UNMIK (Kosovo)
for gender equality can be done simultaneously. Our UNMIL (Liberia) UNMIN (Nepal)
purpose is not to pit one mechanism against the other, UNMIS (Sudan) UNTSO (Middle East)
but rather to evaluate the individual success of each UNMISS (South Sudan)
approach with regards to mitigating SEA.12 UNMIT (Timor-Leste)
UNMOGIP (India/Pakistan)
UNOCI (Ivory Coast)
Research design UNOMIG (Georgia)
of income in the host countries, as noted below, to that the state is committed to protecting women’s
account for differences in economic dependence across rights; moreover, these institutions may, in turn,
missions.17 further improve the norms and practices of gender
In order to test whether missions with a stronger rep- equality. Indeed, existing scholarship has used legal
resentation of women tend to commit SEA at lower standards as a measure of violence against women
rates, the first explanatory variable is the proportion of (Htun & Weldon, 2012). To measure the institutional
women in the military (or police) contingents. The and legal protections for women, we use a physical
UN DPKO reports these for each mission on a monthly security of women indicator that provides information
basis, and we choose the maximum monthly ratio as the on whether the legal and institutional infrastructures
yearly indicator. are oriented in such a way to prevent sexual exploita-
We use country-level characteristics of the contribut- tion and abuse of women.21 This indicator provides
ing countries to approximate the extent to which the an idea about how much of a potential problem sexual
societies from which the peacekeepers originate practice abuse and violence is in the home country and the gov-
and value gender equality. Melander (2005b) and Hud- ernment’s degree of acceptance of abuse and violence
son et al. (2012) similarly use country-level characteris- institutionally.
tics related to observable indicators of gender equality We aggregate these measures to the mission-year
to measure societal gender norms and find that countries level, forming separate measures for the military and the
that do well on observable indicators of gender equality police contingents. We take weighted averages of the
tend to have less propensity for violent conflict.18 respective contributing-country characteristics, where
We focus on measuring two dimensions of gender the weights are the proportions of total military or
equality in the contributing countries. First, the visible police personnel in the mission that were contributed
presence of women and girls in society is an important by each country.
factor because it both indicates the lack of sex-specific We recognize the ecological inference problem of
constraints on women and allows men (and women) ascribing group characteristics (practice of gender equal-
to observe that women are just as capable as men in ity in contributing countries) to components of the
many societal tasks. To measure the public visibility groups (peacekeeping personnel from the countries). But
of girls and women in society, the proportion of women it gives us an observable implication that can be tested,
in the labor force helps indicate the value placed on such that failure to confirm the expectation should lead
women seeking gainful employment. It is possible that us to call into question whether or not peacekeepers that
as more women are present publicly in roles that were come from countries with strong records on gender
traditionally considered for men, egalitarian values may equality are actually more likely to hold egalitarian values
be more widespread in society.19 In addition, the ratio than peacekeepers that come from countries with weaker
of girls to boys in primary school provides a measure of records. We should further emphasize that this assump-
early gender differentiation in societal participation, tion is not a statement about all peacekeepers from each
such that patriarchal societies are expected to exhibit country and does not preclude the likelihood that some
lower values on this indicator.20 peacekeepers from countries with poor records regarding
Second, the degree to which there are legal institu- gender equality can be quite egalitarian in their beliefs or
tional protections for women is indicative of another that some peacekeepers from countries with strong
potential dimension of patriarchy in society. Legal records of gender equality can be quite patriarchal in
institutions are important because they demonstrate their beliefs. Additionally, we do not deny that individ-
uals that are more prone to militarism and patriarchy
17
self-select into the military or police professions, and
Additionally, including a measure of the population sizes of the
thus that peacekeepers from countries with strong
host countries – which might relate to access to the peacekeeping
missions – does not show this to be a relevant variable in records on gender equality are still quite prone to exhibit
explaining the variation in SEA across missions. behaviors and profess beliefs that are consistent with
18
We note that there are many different theories and indicators that patriarchy and militarized masculinity. Our argument
may be used to measure the level of patriarchy in society. See for is that, while gender hierarchies may be stronger among
example Bjarnegård & Melander (2011); Caprioli & Boyer (2001);
Caprioli (2000, 2003, 2005); Melander (2005a,b).
19
Carreiras (2006) makes a similar argument.
20 21
Data on these two measures come from the World Bank and are This comes from the WomenStats Database of Hudson et al.
lagged one year. (2012).
Karim & Beardsley 107
peacekeepers than among others outside the security sec- PKO abuses might account for the findings – such
tor in their home countries, the peacekeepers from those norms would also be reflected in the previous year’s alle-
countries with better gender-equality records will have gation counts.24
higher values for egalitarianism than peacekeepers from
countries with poorer records. Our aggregate indicators
are intended to capture this variation. Findings and discussion
In estimating the regression models, we use standard
errors that are robust to clustering on each mission We find some support for the expectation that a greater
because of the possibility that observations are not inde- representation of women in peacekeeping missions
pendent across the years of the missions.22 We also con- decreases the propensity for SEA allegations. Although
trol for the size of the mission because larger missions the relationship is consistently negative in all of the
have more opportunities for personnel misconduct and models, it is not robustly statistically significant across
possibly also have different types of contributing coun- the various specifications, as seen in Tables II and III.25
tries involved than the smaller missions. We also control It is possible that the increases in the proportion of
for the per capita GDP in the host country in order to women in missions have yet to reach a high enough
account for variation in the local levels of human- threshold to produce a robust measurable treatment
security vulnerability and institutional infrastructure to effect with such a small sample; at present we can only
hold peacekeepers accountable, and also because local tentatively conclude that increasing the proportion of
GDP per capita is plausibly related to composition of the women in missions substantially reduces levels of SEA
peacekeeping forces.23 Finally, we control for the level of in missions. Figure 2 depicts the relationship between
sexual violence in the preceding war, by using Cohen’s the proportion of women in missions and military SEA
(2013) four-point index of wartime rape severity. This allegations for one of the models.26
variable captures the vulnerability of the population to Similarly, the relationship between the proportion of
sexual violence and also the severity of sexual violence women in the police contingents and the police SEA alle-
in the most recent season of fighting. Peacekeeping com- gations is statistically significant in some but not all of
positions might be structured to more intentionally the model specifications, as seen in Table IV. Figure 3
address issues of sexual abuse and exploitation when indicates that the substantive significance of the repre-
there have been high rates of egregious abuses in the sentation of women in the police contingents trails that
recent past. found for the military contingents.27 Increasing the pro-
For further exploration, we control for the weighted portion of women from 0% to 5% in military compo-
average of the GDP per capita (in constant US dollars, nents reduces the expected counts of SEA allegations
from the World Bank) in the contributing countries and
the weighted average of the Polity combined 21-point
index. The former allows us to parse out the levels of eco- 24
We also ran models that separated out each of the variables into a
nomic development in the contributing countries as dis- between-effects variable (the unit-level means for the variables) and a
tinct from other contributing-country characteristics within-effects variable (the ‘de-meaned’ variables), similar to the
related to the practice of gender equality. The latter approach by Bell & Jones (2015). We find that our primary-school
indicator is significantly robust (p < 0.01) for both within and
allows us to parse out the levels of political liberalization between effects, while the others only have robust between-effect
in the contributing countries. In another robustness relationships.
check, we control for the lagged count of SEA allegations 25
Although our testable hypotheses are directional, we follow
in the previous year in order to additionally account for convention and report statistical significance in terms of a two-
correlated errors in which high levels of previous allega- tailed test (p ¼ 0.1 in a two-tailed test is equivalent to p ¼ 0.05 in
a one-tailed test).
tions are likely to be followed by other years with high 26
This figure comes from the model with the weighted average of the
levels of allegations. This specifically helps reduce the primary school female ratio balance as the measure of contributor-
possibility that different norms in whether to report level egalitarianism (Model 1 in Table II). The plot reflects a
military contingent of 10,000 personnel and a local GDP per
capita of $1,000, with other variables held at their means.
27
This figure comes from the model with the weighted average of the
22
The results are robust with regular standard errors. primary school female ratio balance as the measure of contributor-
23
We considered controlling for the population size of the host level egalitarianism (Model 10 in Table IV). The plot reflects a
country but did not find it to be a relevant variable, and the results police contingent of 1,500 personnel and a local GDP per capita of
remained robust with its inclusion. $1,000, with other variables held at their means.
108 journal of PEACE RESEARCH 53(1)
0 0.02 0.04 0.06 0.08 0.1 which means that a drop in just a few allegations per year
Proportion of women in the PKO military contingents can be significant. In percentage terms, an increase in the
average ratio of girls to boys in primary school from 0.7
Figure 2. Expected SEA allegations in military contingents, by to 0.9 decreases the expected count of SEA allegations
representation of women in contributing countries against military personnel by more than half, as does
p ¼ 0.039 in a two-tailed test. an increase in the average percentage of women in the
labor force from 40% to 55%.
by more than half, while the same increase in police com- With regard to police personnel, only one of the mea-
ponents only reduces the expected counts by about 10%. sures of the gender-equality records of the contributing
The empirical results also reveal a strong relationship countries – the measure of the proportion of women
between two of our measures of gender equality in the in the labor force – well explains SEA allegations within
contributing countries and lower SEA allegations in mil- the police contingents (Table IV). Figure 7 depicts the
itary units (Tables II and III). We see strong and consis- substantive relationship, which is relatively strong. As the
tent support for the argument that contingents from proportion of police personnel from contributing coun-
countries with better records of gender equality – espe- tries with strong participation of women in the labor
cially when defined in terms of visibility – experience force increases, the expected count of allegations against
lower levels of military SEA allegations. When military police contingents decreases sharply. An increase in the
contingents consist of more personnel from countries average percentage of women in the labor force from
with high ratios of girls in primary school and high rates 40% to 55%, which we observed above to halve the
of the participation of women in the labor force, the expected counts of accusations for military components,
expected counts of SEA allegations are substantially decreases the expected counts of accusations for police
lower and the relationships are statistically significant. components by more than two-thirds. We do not, how-
We also observe some but inconsistent support for the ever, find much evidence in terms of either substantive
expectation that SEA allegations are lower when the legal or statistical significance for strong effects on police SEA
protections of the physical security of women are better allegations of the average ratios of girls to boys in primary
(when the index approaches 0). This variable is statisti- school enrollments in the contributing countries or the
cally significant in Model 6, and it remains positive in average physical security index.
Models 3 and 9 but does not attain statistical signifi- The smaller sample size for missions involving police
cance. Figure 4 depicts the relationship between the contingents could explain some of the inability to con-
weighted average of the girl-to-boy ratio in primary firm our expectations for police contingents, although
school enrollments in the contributing countries and it is important to note that the sign of the coefficients for
military SEA allegations. Figure 5 shows the relationship the primary-school ratio and physical-protection-of-
using the labor-force-female-ratio balance, and Figure 6 women variables are in the opposite direction from what
uses the physical-security-of-women index (higher values we expected. It is also possible that military contingents,
indicate less security).28 more so than police contingents, experience the type of
militarized masculinity that would contribute to higher
28 rates of SEA. If, as discussed above, militarized masculi-
These figures come from Models 1, 2, and 3, respectively. As
above, the plots reflect a military contingent of 10,000 personnel, a
nity is not as strong in police contingents, because police
local GDP per capita of $1,000, and other variables held at their personnel are less exposed to institutionalized militariza-
means. tion and their peacekeeping roles better match their roles
110 journal of PEACE RESEARCH 53(1)
8 10
1
4 6
0.5
2
0
2
8
1.5
6
1
4
0.5
2
0
0
40 50 60 70 80 40 50 60 70 80
Weighted average of the contributing countries’ Weighted average of the police contributing countries’
female labor participation female labor participation
Figure 5. Expected SEA allegations in military contingents, by Figure 7. Expected SEA allegations in police contingents, by
female labor force participation rate in contributing countries female labor force participation rate in contributing countries
p ¼ 0.023 in a two-tailed test. p ¼ 0.003 in a two-tailed test.
Expected count of SEA for military contingents
reports of rape allegations.31 This gives an idea of the level of contribute to changing the contingent culture. While
militarized masculinity within the institution. Compared to inconclusive, this evidence calls for further caution
countries that did not have any SEA allegations, countries against strategies that highly emphasize improvements
that were accused of SEA allegations tended to have media of the representation of women in security forces as a
reports of their militaries involved in rape at home. vehicle to mitigate SEA allegations. Looking more closely
Finally, Table V includes the proportions of female at the MONUC/MONUSCO mission, the evidence
peacekeepers contributed by each country from our data- does seem to indicate that personnel from contributing
set. Here, there does not seem to be much difference countries with better records of gender equality may not
among countries with or without allegations based on engage in SEA to the same level as those from TCCs with
the proportion of female peacekeepers in each troop- poorer records of gender equality.
contributing country. For countries such as South Africa
or Uruguay, which both have proportionately higher
than average ratios of women sent to the mission, the
Conclusion
presence of female peacekeepers does not seem to make We find that missions that consist of more military per-
a difference in terms of reducing SEA allegations. sonnel from countries with better records of gender
In fact, South Africa has the highest proportion of equality – better records on primary school education for
female peacekeepers sent to the mission – and is one of girls and women’s labor force participation – tend to
the highest contributors of women to UN peacekeeping experience fewer counts of SEA allegations. These find-
missions (averaging nearly 15%) (Karim & Beardsley, ings are consistent with the logic that gender equality
2013, 2015). However, South Africa has the highest is a value that both women and men can hold, and that
number of allegations in all UN missions, including the increases in the extent to which it is held by mission per-
MONUC/MONUSCO mission. This may suggest that sonnel may reduce some of the pernicious manifestations
women in the South African contingents do not much of patriarchy and militarized masculinity such as SEA.
We also find some evidence to support the expecta-
tion that variation in the representation of women on
31
We collected the data by looking through media headlines from peacekeeping missions helps shape the counts of SEA
each country for the years 2007–13. We searched media headlines
allegations. Indeed, a holistic approach to improve gen-
in LexusNexus and searched for key terms such as rape and the
country’s military. It was outside the scope of this article to collect der equality within and through peacekeeping missions
these data for the entire dataset above. Future projects could collect should include improvements in the representation of
these data on a wider scale. women in the missions, which can yield additional
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