By Meherun Nesa
Introduction
In the complex world of United Nations (UN) peacekeeping, a troubling pattern has emerged that demands our immediate attention: the widespread and systemic perpetration of gender-based exploitation and abuse by peacekeeping personnel. The United Nations Organization Stabilization Mission in the Democratic Republic of the Congo (MONUSCO) serves as a stark example of how peacekeeping operations, despite their noble intentions, can perpetuate gender-based exploitation and abuse. An analysis reveals the devastating reality: as of October 2024, 272 allegations of sexual exploitation against military personnel, nearly 190 paternity claims, and countless unreported cases have left vulnerable women and children without support or justice.
As MONUSCO prepares to withdraw after 25 years, its legacy raises crucial questions about gender power dynamics, accountability, and the urgent need for reform in international peacekeeping operations. This article first shares existing UN policies that set the standard for UN peacekeeping behavior, then examines the gendered impacts and consequences of peacekeeping missions using MONUSCO as the central case study, and from there, explores what must change to ensure peacekeeping missions protect, rather than exploit, the vulnerable populations they serve. This article argues that to address systemic gender-based violence and exploitation, UN peacekeeping must transform from its conventional security-centric model to one focused on comprehensive institutional reform.
The Ethical Frameworks and Policies of UN Peacekeeping Operations
The ethical foundations of UN peacekeeping operations, though not explicitly stated in the 1945 UN Charter, have evolved through various documents and resolutions. The “Capstone Doctrine” (2008) and the Brahimi Report (2000) established core principles, including impartiality, consent of parties, and the protection of civilians. Chapter I (Article 1) of the UN Charter lays out the fundamental purposes of maintaining international peace and security, while Chapter VI focuses on the peaceful settlement of disputes. The UN has particularly emphasized gender-related policies, implementing Resolution 1325 on Women, Peace and Security (2000) and establishing a zero-tolerance policy for sexual exploitation and abuse (SEA) in 2003. This policy framework was further strengthened through initiatives such as the high-level meeting on combating sexual exploitation and abuse in 2017, the introduction of victims’ rights advocates also in 2017, and the establishment of a trust fund for victims of sexual exploitation and abuse in 2016.
National and Mission-Specific Gender Policies
In the context of the Democratic Republic of Congo (DRC), the country has adopted several relevant policies and strategies relating to gender equality, including the National Gender Policy (2009) and the National Strategy to Combat Gender-based Violence (2009). The DRC’s commitment to addressing gender-related issues is evidenced by its adoption of multiple National Action Plans for the implementation of UNSCR 1325, with the latest iteration currently ongoing. MONUSCO’s mandate has similarly evolved to incorporate provisions from subsequent thematic resolutions on Women, Peace and Security, focusing on women’s meaningful political participation and protection from conflict-related sexual violence.
Patterns of Exploitation and Abuse
Despite these comprehensive frameworks, MONUSCO has demonstrated one of the worst records regarding sexual exploitation and abuse among UN peacekeeping operations, with 272 allegations against military personnel (The New Humanitarian, 2024). This troubling pattern extends beyond MONUSCO, as evidenced by similar cases in other UN missions. In Haiti, MINUSTAH (United Nations Stabilization Mission in Haiti) peacekeepers were reported to have fathered hundreds of children, leaving women and girls to face poverty and social stigma in the Western Hemisphere’s poorest country (The New York Times, 2019). Similarly, UNMISS (United Nations Mission in South Sudan) personnel were accused of child rape (The Guardian, 2018), while MINUSCA (United Nations Multidimensional Integrated Stabilization Mission in the Central African Republic) faced widespread allegations of sexual abuse, with victims remaining silent due to fear and lack of support systems (The New Humanitarian, 2024).
Socioeconomic Impact on Host Communities
The presence of peacekeepers has created complex socioeconomic dynamics in host communities, leading to profound social disruptions. The crisis extends beyond individual misconduct, reflecting deeper systemic issues where economic disparities create what local leaders call “cash violence.” Cash violence refers to the practice of peacekeepers using their higher economic status and ability to pay more for sexual transactions, which disrupts social structures and local relationship dynamics like marriage and can lead to increased sexual violence by local men who cannot match these monetary expectations. As reported by the Gender and Security Sector (GSS) Lab of Cornell University, peacekeepers’ higher economic status has significantly impacted local social structures. A community chairman’s poignant observation that “our women used to love us naturally, but the peacekeepers introduced cash violence, thereby destroying many marital homes” highlights the devastating effects on local communities. Not only has this economic disparity led to increased transactional sex, it has, paradoxically, led to higher rates of sexual violence in some communities as local men, unable to compete with peacekeepers’ financial resources, sometimes resort to alternative, violent means.
Accountability Challenges and Paternity Cases
The lack of accountability is particularly evident in paternity cases, with nearly 190 paternity claims filed against peacekeepers in MONUSCO alone. Many more cases likely remain unreported due to fear of retribution or lack of knowledge about reporting processes. The complexity is compounded by the dual responsibility of both the UN and troop-contributing countries, leading to ineffective enforcement of child maintenance payments and insufficient support for affected women and children. This situation is exacerbated by peacekeepers often hiding their identities, making it difficult for women to report abuse or seek support.
Support Systems and Long-Term Impacts
The insufficient support for victims and children fathered by peacekeepers represents a broader failure in the UN’s post-mission responsibility. Community leaders in the Beni region of eastern DRC report a lack of access to medical care, schooling, or child support for affected families. Despite multiple alerts to MONUSCO’s disciplinary section, there has been no significant progress in addressing these issues. This situation raises fundamental questions about the responsibility of individual peacekeepers, their home countries, and the UN in addressing the needs of these children and their mothers.
Internal Harassment and Policy Gaps
The current framework reveals significant gaps in addressing harassment among UN personnel. According to the GSS report, nearly 14% of peacekeepers (both men and women) have witnessed or experienced harassment from other UN personnel, with women showing particular reluctance to approach superiors about such issues. The zero-tolerance policy, while well-intentioned, has had unintended consequences, sometimes leading to the targeting of female colleagues by peacekeepers and creating an “access gap” that prevents female peacekeepers from fully contributing to mission operations.
Reform Requirements and Future Directions
The situation demands comprehensive reform focusing on three key areas: strengthening punitive measures for misconduct, enhancing professionalization of peacekeeping forces, and developing of victim-centered health approaches. These reforms must address the immediate needs of affected communities and the structural issues enabling exploitation. This includes establishing clear accountability mechanisms that span national jurisdictions, ensuring adequate support for victims and children, and creating effective deterrents against misconduct.
Thus, the ethical challenges facing UN peacekeeping operations, particularly exemplified by MONUSCO, reveal systemic issues that require urgent attention. The recurring patterns of exploitation, insufficient accountability, and inadequate support for victims across multiple missions indicate that piecemeal reforms are insufficient. The case of MONUSCO serves as a critical reminder that peacekeeping operations must evolve beyond their traditional security-focused approach to incorporate stronger ethical frameworks and accountability mechanisms. Only through comprehensive reform that addresses these multifaceted challenges can the UN ensure that its peacekeeping operations truly serve and protect the communities they are meant to assist, while maintaining the dignity and safety of all personnel involved in these crucial missions. This evolution requires policy changes and a fundamental shift in how the international community approaches peacekeeping, ensuring that the protection of vulnerable populations remains at the center of all operations.
The opinions expressed here are solely the author’s and do not necessarily reflect the opinions and beliefs of Women In International Security or its affiliates.
About the Author:
Meherun Nesa is a Political Science PhD Student at Loyola University Chicago. She can be reached at mnesa@luc.edu.
Published February 24, 2025.