Educating the UN Security Council: Weaponization of Rape in War
Three women and a teenaged girl from El Geneina, West Darfur, who survived rape committed by the Rapid Support Forces and allied militias between April and June 2023. Photo: 2023 Belkis Wille/Human Rights Watch
Key Points
Sexual violence is a potent international security problem rather than a standalone crime, and a manifestation of oppression.
Rape is weaponized as a strategic tool to intimidate individuals, trigger population displacement, and demoralize entire communities.
The UN's limited power in policing its peacekeeping forces makes it challenging to address sexual exploitation and abuse by UN peacekeepers.
Summary
The talk, “A Discussion on Educating the UN Security Council about the Weaponization of Rape in War,” delivered on Nov. 8, 2023, by Dr. Anne Marie Goetz, a distinguished clinical professor at the NYU Center for Global Affairs, explored the urgent need to address conflict-related sexual violence on an international scale. Serving at the United Nations between 2005 and 2014 as a Policy Director of Governance, Peace, and Security at UNIFEM and UN Women, Dr. Goetz delved into the disturbing yet crucial issue of sexual violence as a weapon of war, and proposed paradigm shifts and strategies essential for effective intervention. The talk was hosted by the NYU International Relations Society at the NYU Kaufman Management Center.
Dr. Goetz began her discussion by reframing sexual violence as a potent international security problem rather than a standalone crime. Revisiting her early years at the United Nations, where her mission was to advocate for the Security Council's intervention in cases of mass rape, Dr. Goetz highlighted the need to treat sexual violence as seriously as other war crimes, such as indiscriminate bombings, poisoning of wells, and the abduction of children. She emphasized the prevalent dismissive attitude of some Security Council ambassadors who once claimed, "Boys will be boys," perpetuating the notion that conflict-related sexual violence was merely opportunistic behavior. Citing orchestrated rape camps in Bosnia and organized mass rape in Rwanda and Bangladesh, Dr. Goetz aimed to debunk the misconception that conflict-related sexual violence is solely about individual sexual gratification. Instead, she underscored its use as a strategic tool to intimidate individuals, trigger population displacement, and demoralize entire communities.
Security Council Ambassadors were not aware of sexual violence being a deliberate tactic of war before Patrick Cameron, a Dutch peacekeeping force commander, stated that “it might be more dangerous to be a woman than a soldier in modern wars.” Challenging the prevailing narrative that “women were merely collateral damage,” Dr. Goetz noted that perception has changed, as evidenced by the inclusion of sexual violence as a recognized crime against humanity in the Rome Statute in 2000.
A Ukrainian woman walks past destroyed Russian armor in the city of Bucha. Gang-rapes, assaults at gunpoint, and rapes in front of children are among the grim testimonies collected by investigators. Photo: Atef Safadi/EPA
Next, Dr. Goetz introduced the notion of sexual violence as a manifestation of oppression, rather than an aggressive display of sexuality. She elucidated how the stigmatization of survivors, along with “war babies,” deepened societal problems and hindered community integration. Different forms of sexual violence were categorized, from ordered but isolated incidents targeting political opponents to the challenging realm of disorganized, random violence. Given examples of peacekeepers intervening to prevent sexual violence, Dr. Goetz called for rethinking the responsibilities and capabilities of UN forces. She then urged the audience to recognize sexual violence not as an aggressive manifestation of sexuality but as a tool of oppression — a crucial distinction for understanding its role in conflict.
By securing support from UN military leaders and collaborating with major international NGOs, Dr. Goetz demonstrated the importance of rallying allies to address the pervasive issue of sexual violence in conflict zones. Known for his involvement in the failed Doha talks, Zalmay Khalilzad, the U.S. then-ambassador, initially showed disinterest in addressing sexual violence in conflict zones. However, his wife, Cheryl Bernard, a RAND Corporation (an American nonprofit global policy think tank) employee, became an unexpected ally of Dr. Goetz. Acknowledging the sexual violence in Congo at a tea party for senior women at the UN led to Cheryl Bernard's dedicated support, transforming her into an extraordinary advocate for the cause. Eventually, it resulted in her husband watching "The Greatest Silence," a documentary by filmmaker Lisa Jackson, who herself survived gang rape in Washington, D.C. Khalilzad's subsequent acceptance of an invitation to a closed meeting in the United Kingdom marked a turning point. In this meeting, a landmark achievement unfolded — the drafting of UN Security Council Resolution 1820.
This resolution marked the first time the Security Council formally recognized sexual violence as a military tactic, demanding a military response to combat it. Dr. Goetz drew attention to the significance of this resolution, challenging the prevalent notion that such documents are mere pieces of paper. Instead, she underscored how this marked the beginning of a series of actions by the Security Council to normalize the acknowledgment that sexual violence is a problem requiring a collective response.
With Resolution 1820, the international community gained an institutional framework to comprehensively address sexual violence in conflicts. Dr. Goetz highlighted the establishment of an architecture that documents sexual violence, sanctions perpetrators and works towards preventing further occurrences. The resolution paved the way for leaders to collaborate on systems that prioritize the needs of victims, ensuring justice and reparations.
The final part of Dr. Goetz's speech sheds light on the challenges faced in addressing sexual exploitation and abuse by UN peacekeepers. Dr. Goetz candidly discussed the shortcomings in handling cases where peacekeepers commit heinous crimes, often leading to their return to their home countries for military tribunals that seldom deliver adequate justice. Dr. Goetz emphasized the inherent flaws in this system, calling attention to the UN's limited power in policing its peacekeeping forces, which are essentially contributions from member states. She touched upon the delicate balance the UN must maintain with contributing countries, whose reluctance to send troops might jeopardize peacekeeping missions.
The true cost of war. Photo: Omar Marques/Getty Images
When asked whether she would have done anything differently, Dr. Goetz addressed the feminist concerns surrounding the approach to the Security Council. She pointed out the inherent challenge in convincing the council, primarily focused on addressing international war crimes, that gender relations and inequalities are integral to peace and security. Dr. Goetz acknowledged the necessity of combining gender issues with broader peace and security concerns.
As the speech concluded, Dr. Goetz highlighted the unfortunate removal of language addressing sexual violence against men due to objections from some Council members. This revelation underscored the broader challenge of reshaping perceptions and garnering comprehensive support for a gender-inclusive approach to peace and security. The speech left the audience with a profound understanding of the challenges, triumphs, and ongoing efforts in the global fight against sexual violence in conflict.
This report was compiled by Zoe Yuan on November 18, 2023, and edited by Alexis Tretschok.