Critical Analysis of Rwanda’s Women, Peace and Security (WPS) Agenda
Abstract
This paper presents a critical analysis of Rwanda’s Women, Peace and Security (WPS) agenda, focusing on the implementation of National Action Plans (NAPs) in alignment with United Nations Security Council Resolution 1325. Rwanda has achieved global recognition for high female representation in governance and institutional reforms in the security sector. Key successes include gender-responsive budgeting, embedded gender training in military and police academies, and international deployment of Female Engagement Teams. However, critical gaps persist in women’s representation in operational roles, localized policy ownership, real-time monitoring and evaluation, and financial sustainability. This paper also expands the analysis of gender integration in the security sector using official Ministry of Defence documents and proposes targeted, evidence-based recommendations. Addressing these challenges through systemic reforms, local engagement, and regional cooperation will strengthen Rwanda’s standing as a model for inclusive peacebuilding in Africa.
1. Introduction
Rwanda’s commitment to the Women, Peace and Security (WPS) agenda is reflected in its progressive policies, institutional reforms, and the adoption of three National Action Plans (NAPs) aligned with UN Security Council Resolution 1325. The country has demonstrated significant progress in promoting gender equality through high levels of women’s representation and the integration of gender-responsive reforms in the peace and security sectors. This paper critically examines Rwanda’s strategic achievements, policy coherence, and remaining gaps, while offering recommendations for further advancement.
2. Strengths and Strategic Progress
Rwanda sets a global benchmark in gender representation, with women holding 63.8% of parliamentary seats and 45.4% of cabinet positions well above the 30% constitutional quota (Republic of Rwanda, 2015). The Third National Action Plan (NAP) on Women, Peace and Security (2023–2028) marked a significant milestone by allocating RWF 15 billion (approximately USD 13 million) to its implementation, demonstrating strong institutional commitment (Ministry of Gender and Family Promotion, 2023; Nkurunziza, 2023). In addition, Rwanda has institutionalized gender-sensitive training across its security forces, with over 4,000 peacekeepers having received such training. Female Engagement Teams are deployed as gender advisors in the field, enhancing the operational effectiveness and inclusivity of peace support missions (MOD Rwanda, 2024).
3. Women in Rwanda’s Security Sector
Rwanda has made globally notable strides in gender inclusion, not only in political institutions but increasingly within its defense and security sectors. This transformation has been guided by Rwanda’s implementation of the Women, Peace and Security (WPS) agenda and three successive National Action Plans (NAPs).
Gender Training and Deployment: Gender modules have been institutionalized in both Rwanda Defence Force (RDF) and Rwanda National Police (RNP) academies. More than 4,000 Rwandan peacekeepers have undergone gender-sensitive training, and Female Engagement Teams (FETs) have been deployed in missions like in the Central African Republic to combat gender-based violence (MOD Rwanda, 2024; UN Rwanda, 2021).
Dedicated Financial Framework: The Third NAP (2023–2028) includes a direct budget allocation of RWF 15 billion (USD 13 million) a milestone in Africa for dedicated WPS funding (Ministry of Gender and Family Promotion, 2023; Nkurunziza, 2023).
Despite these policy milestones, persistent and systemic challenges limit the full inclusion and effectiveness of women in security roles:
- Underrepresentation in Tactical and Operational Roles: While women are visible in administrative and political leadership, they remain significantly underrepresented in combat, command, and operational decision-making roles within the RDF and RNP.
- Limited M&E and Disaggregated Data: The sector still lacks real-time, gender-disaggregated data on recruitment, deployment, promotions, and training outcomes.
- Low Awareness and Local Ownership: District-level actors are poorly integrated into the WPS framework, with limited grassroots engagement.
- Sustainability at Risk: The WPS agenda remains donor-dependent, with insufficient incorporation into national development and sector-specific budgets.
4. Conclusion
Rwanda’s WPS agenda reflects global leadership in gender equality. However, sustaining this role requires bridging implementation gaps, ensuring financial ownership, and expanding women’s roles in operational peace and security. Strategic, inclusive reforms will reinforce Rwanda’s international reputation in peacebuilding.
5. Recommendations
• Increase women’s operational roles through institutional quotas and leadership mentoring.
• Develop a centralized digital M&E system with real-time, gender-disaggregated data.
• Mainstream WPS priorities in district-level planning and governance.
• Ensure WPS funding is embedded in national budget cycles.
• Establish an inter-agency WPS coordination framework with periodic reviews.
• Position Rwanda as a regional WPS training hub for South-South cooperation.
References
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Ministry of Gender and Family Promotion. (2023). Third National Action Plan on Women, Peace and Security (2023–2028).
Nkurunziza, M. (2023, September 4). Rwanda’s Rwf15bn plan to fix gender inequality in peacekeeping. AllAfrica. https://allafrica.com/stories/202309040183.html
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