1.2. Trends in Legal, Policy and Institutional Reform

1.2.1. Legal Reforms

Countries in the Central African region experienced periods of conflict and instability throughout the AWD. The review has demonstrated that most countries have enacted various legal reforms concerning the participation of women in decision-making and combatting violence against women, both of which address the pillars under UNSCR 1325.

In 2019, Central African Republic1662 and DR Congo1663 renewed their commitment to fighting sexual violence in conflict. Both countries renewed their existing joint communiqué agreement with the United Nations Office of the Special Representative of the Secretary-General on Sexual Violence in Conflict, from 2012 and 2013, respectively. Central African Republic commits, among others, to engage civil society, women organisations, parliamentarians and community and religious leaders in the prevention of and response to sexual violence in conflict; develop a multi-sectoral strategy to provide access to holistic services to survivors, engaging medical, psychological and legal support; and reduce impunity by bringing perpetrators to justice and protecting witnesses.1664 DR Congo’s list of commitments include training security forces in the prevention of and response to sexual violence in conflict; allocating a sufficient budget and resources to judicial and military institutions; and ensuring timely restitution payments to victims.1665

Women’s meaningful participation in peace processes has seen progress. In Central African Republic, there has been real progress regarding women’s formal participation. In 2019, fresh peace talks led to the signing of a political agreement between the government and 14 armed groups.1666 As a result of concerted advocacy campaigns, there was the meaningful inclusion of women leaders.1667 For the first time, four women were involved as formal delegates in the 2019 peace talks, including one female combatant as a signatory.1668 The 2019 political agreement thus represents notable progress for the involvement of women in Central African Republic, who have been instrumental in achieving peace, leading their communities and influencing key leaders.1669 The resulting 2019 political agreement contains commitments on behalf of all parties to reject violence against women and children and for armed groups to abstain from committing SGBV.1670 Reportedly, there has been continued participation: women continue to take part in formal monitoring mechanisms to ensure compliance by all parties, with a reported 17% women members at national level.1671 This is an improvement compared with earlier peace processes. The consultations for the 2014 ceasefire agreement were attended by approximately 35–40% women.1672 Additionally, the 2014 agreement was signed in the presence of only two women civil society group leaders.1673 There were no women signatories, mediators and witnesses in 2008 and 2011.1674 The inclusion of women’s issues within formal peace documents is also an important aspect in fulfilling and protecting women’s rights post-conflict. In DR Congo, the 2013 outcome document between the government and the rebel group M23 contained a provision to “take into account the particular needs of M23’s female combatants.” The agreement also notes that amnesty does not cover crimes against humanity, including sexual

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violence.1675 Moving forward, the 2016 Global and Inclusive Political Agreement of the Inter-Diocesan Center of Kinshasa committed to free and fair elections with the undertaking to increase women’s political participation.1676

Cameroon Gabon Chad Congo Republic Burundi DR Congo

Figure 30 – Central Africa:

Number of women peacekeepers contributed

Percentage (%) of women peacekeepers out of all peacekeepers (men and women) contributed

118 11% 46 10% 42 3% 25 16% 22 3% 25%

Central African Republic, Equatorial Guinea, and São Tomé and Principe were not contributing any troops to UN Peacekeeping in 2020. Source: United Nations.

1.2.2. Policy and Institutional Reforms

In order to fulfil obligations under UNSCR 1325, some Central African countries have implemented a National Action Plan (NAP). Burundi, Cameroon and DR Congo all have current and up-to-date NAPs for the implementation of UNSCR 1325. Cameroon published its first NAP in 2017, covering the period 2018–2020.1677 Burundi and DR Congo published secondgeneration NAPs, for 2017–2021 and 2019–2022, respectively. Notably, DR Congo’s second NAP is comprehensive in its objectives. Among others, it includes increasing women’s political representation in peace processes and decision-making bodies to 20%.1678 Additionally, in 2015, DR Congo created a national secretariat and a provincial secretariat to better coordinate the implementation of UNSCR 1325.1679 Each country’s NAP contains frameworks identifying each priority’s corresponding activities and anticipated results, as well as assigning a responsible authority.

All countries have core national gender policies addressing women’s participation in decision-making and protection from VAW. Some have additional, more focused, plans concerning peace and security. In 2019, DR Congo, with support from the UN, adopted a new action plan for the national Policy on the Prevention of Sexual Violence in Conflict. The plan aims to reduce sexual violence committed by national police officers and contribute to the overall fight against sexual violence.1680 Additionally, Cameroon also has a dedicated national plan to combat VAW, for 2017–2021.1681 This addresses the fact that VAW is often exacerbated in crisis and conflict contexts.1682

Most countries have made institutional reforms and have carried out awareness campaigns regarding the women, peace and security agenda. Central African Republic has made notable institutional reforms concerning women’s protection and the prosecution of conflict-related violence. In 2015, the country passed laws regarding the creation of a Special Criminal Court and created a Joint Unit for Rapid Intervention and Suppression of Sexual Violence Against Women and Children within the gendarmerie and police.1683 The Court is to have jurisdiction over human rights violations and war crimes, including cases of sexual violence committed since 2003, while the Joint Unit is to respond quickly to reported cases of sexual violence.1684 The Joint Unit was inaugurated by the president in 2017 and comprises 29 police and gendarmerie officers, of whom 10 are women.1685 The Court and the Joint Unit have faced ongoing operational challenges. For example, the Court still lacks the required judges.1686 In 2018, the Joint Unit handled more than 300 complaints but few resulted in prosecution.1687 However, in 2019, the government took steps to reinforce the Joint Unit’s operational capacity, including the final appointment of staff and formalising the budget pending parliamentary approval.1688 In 2020, the Central African Republic government also established a Truth, Justice, Reparation and Reconciliation Commission.1689

Throughout the AWD, countries undertook various institutional reforms to combat VAW and increase access to justice. Across the region, police stations have put in place gender desks. For example, in Cameroon, three police stations have created gender desks for VAW prevention and care.1690 Examples of reforms to the security sector include gender training for security personnel. In 2015, Burundi delivered gender training to over 1,200 members of the army.1691 Congo Republic carried out training on GBV for 600 police officers,1692 and Cameroon has reported that 150 police officers across humanitarian zones have undergone training concerning the protection of women and children.1693 To reduce violence, in a 2017 decree Central African Republic introduced background checks and security screening for ex-combatants reintegrating into the community or the national armed forces.1694 Countries have also created specialised shelters offering protection and services to victims of sexual violence. The Humura Centre in Burundi provides services to victims of domestic and sexual violence. As of September 2019, the centre had received 878 cases of domestic and sexual violence.1695 Cameroon has also reported that four spaces for the care of women in refugee sites have been strengthened, with three new spaces created to deliver psychological services related to VAW and HIV.1696

Countries have also undertaken various campaigns concerning combatting sexual violence, such as the 2015 Break the Silence campaign in DR Congo, encouraging the reporting of sexual violence,1697 and the 2008 No to Violence Against Women in Equatorial Guinea.1698

Other initiatives have included emergency hotlines for anonymous reporting of sexual violence or referrals to related services, for example in DR Congo and Republic of Congo.