For the advancement of United Nations Security Council Resolution 1325 on Women, Peace and Security

From Commitment to Action: Women Shaping Peace and Security in Kenya

1.0 UNITED NATIONS SECURITY COUNCIL RESOLUTION 1325

The United Nations Security Council Resolution 1325 (2000) underscores women’s equal participation in conflict prevention and resolution, peacebuilding, peacekeeping and recovery.
It calls on Member States, the United Nations, civil society and the international community to promote women’s involvement in peace processes and decision-making within national and international mechanisms. The resolution addresses women’s safety in conflict and recognises their leadership in peace efforts. Since 2000, additional resolutions 1820 (2008), 1888 (2009), 1889 (2009), 1960 (2010), 2106 (2013), 2122 (2013), 2242 (2015) and 2493 (2019) have reaffirmed and expanded these commitments. In parallel, resolution 2250 (2015) on youth, peace and security addresses the role and rights of young people in peace and security contexts. Together, these resolutions affirm the essential role of women in all aspects of conflict and peace processes.

The United Nations Security Council Resolution 1325 (2000) links peace to gender equality and advocates women’s participation in peace, security and governance. Including women in peace efforts enhances dialogue and promotes sustainable, inclusive peace. Gender equality is also essential for development and peace.

Despite progress, setbacks persist. The 2024 United Nations report on women and peace and security notes that men predominantly hold power in peace and security institutions, and progress on ending impunity for crimes against women and girls remains limited and slow.1 In 2023, the number of women killed in conflicts doubled compared with 2022; cases of conflict-related sexual violence increased by 50 per cent; and girls affected by grave violations rose by 35 per cent. Public awareness remains inadequate. Member States need to do more to raise awareness and increase women’s representation in leadership roles.

1.1 Background

In 2016, the Government of Kenya established its first Kenya National Action Plan (KNAP) on Security Council Resolution 1325, demonstrating a strong commitment to implementing the Women, Peace and Security (WPS) agenda. KNAP I provided the national framework for implementing resolution 1325 and subsequent resolutions.

Notable results followed. The share of women in peace committees doubled, from 14 per cent in 2013 to 34 per cent in 2023.2 A 2018 review recommended localisation through county governments to fully implement KNAP (2016–2018) and to build an inclusive society where women’s rights are protected; this and other recommendations informed the development of KNAP II.

Kenya developed its second National Action Plan on Women, Peace and Security (KNAP II) in 2019 and officially launched it in May 2020, at the height of the COVID-19 pandemic. The plan was implemented from 2020 to 2024, incorporating lessons from KNAP I and building on earlier achievements. Like its predecessor, KNAP II strengthened women’s roles in peace and security, placing a strong emphasis on localization, resulting in the development of 19 County Action Plans by the end of 2024.

A midterm review conducted in October 2022 identified several lessons that informed the development of KNAP III. These included the importance of strong partnerships; the value of robust monitoring and reporting systems to enhance data quality; and the need for adequate and predictable financing. A key takeaway was that ministries, county governments and national agencies must prioritise the Women, Peace and Security agenda in their planning and budgeting processes to ensure sufficient resource allocation for KNAP III implementation.

Evaluations conducted in 2023 and 2024 documented progress across the four strategic pillars. Under the Participation and Promotion pillars, Kenya achieved historic milestones, including the election of seven women governors in 2022. In the National Assembly, out of 290 constituency seats, women won 29, representing approximately 10 per cent of the elected Members of the National Assembly. Following the August 2022 elections, there were 727 women MCAs (115 elected; 612 nominated).4 As of December 2024, there were five women Cabinet Secretaries out of 23.

In the security sector, women’s representation has increased:

In 2024, Major General Fatima Ahmed became the first woman to lead the Air Force. In June 2025, Brigadier Joyce Sitienei was promoted to Major General and appointed Deputy Vice- Chancellor for Strategic Studies at the National Defence University. The Ministry of Defence also adopted a Sexual Exploitation, Abuse and Harassment (SEAH) Policy in June 2025. Despite these advances, representation remains below 30 per cent minimum.

Under the Prevention Pillar, Kenya invested in women’s involvement in preventing radicalisation and violent extremism. Women Peace and Security (WPS) networks are now active in 34 of 47 counties, convening local dialogues with communities and authorities. Through support from the AU, 63 women mediators were trained, with additional locally trained mediators yet to be captured in official data. Partnerships have built capacity for grassroots organisations, enabling trust-building, sharing of experiences and problem-solving spaces. Kenya also convened Community Immersion Workshops under the PVE initiative in East Africa, bringing together youth, women, civil society organisations and local leaders to co-create resilience solutions.

Gender-sensitive early warning systems have been established in several counties, with women contributing to data collection to address specific needs, including climate-linked conflict risks. Programmes addressing GBV, harmful practices and local conflicts show impact; however, limited resources constrain expansion especially in border areas of the Horn of Africa and South Sudan undermining the commitment to leaving no one behind.

Under the Protection Pillar, Kenya has strengthened legal frameworks and set up survivor-centred mechanisms including gender desks, helplines and POLICARE. POLICARE aims to enhance the National Police Service’s capacity to prevent and respond to sexual and gender-based violence (SGBV) by establishing fully equipped centres that provide integrated medico-legal, psychosocial, forensic and legal services. It also focuses on improving investigative skills and evidence handling, as well as building networks of pro bono lawyers and volunteer counselors. However, gaps remain in referral pathways, enforcement and resourcing across the country.

Under the Relief and Recovery Pillar, gender-responsive disaster risk management has been advanced by integrating WPS principles and establishing shelters for GBV survivors. Climate induced disasters continue to devastate communities, displace families and deepen gender inequalities, disproportionately affecting women and girls. Limited engagement with disaster agencies and inadequate responses in remote areas hinder progress.

KNAP II promoted collaboration through national and county working groups and coordination platforms on WPS, GBV and women’s leadership. However, gaps in multisectoral cooperation and the absence of a unified coordination framework limited implementation. Funding relied heavily on donors, raising concerns about sustainability. Greater national investment and commitment are essential for KNAP III’s long-term success.

The KNAP II evaluation identified persistent challenges: resource constraints, limited community awareness and systemic barriers to women’s participation in peace and security. Emerging issues climate change, human trafficking and the COVID-19 pandemic further strained implementation.
Key lessons emphasised grassroots engagement, robust monitoring and evaluation, culturally sensitive advocacy and sustained political will to enable adequate resource allocation at national and county levels.

Key recommendations shaping KNAP III

• Strengthen coordination mechanisms at national and county levels to enhance collaboration across the WPS agenda.
• Develop a monitoring and evaluation framework to assess progress and guide action.
• Invest in verifiable data, with technical support from the Kenya National Bureau of Statistics (KNBS).
• Strengthen localisation by supporting County Action Plans (CAPs) in all counties and integrating the WPS agenda into local contexts.
• Reduce reliance on donor funding.
• Increase financial commitment by the national and county governments by integrating KNAP III into development blueprints and county plans.
• Deliberately engage youth and men to broaden societal support for gender equality and peace and security initiatives.
• Expand capacity building, particularly in marginalised regions, and address cultural barriers to women’s full and effective participation.

Implementation of KNAP also recognises the need to include vulnerable groups. In this document, the term refers to women, youth and persons with disabilities, consistent with official usage. This does not exclude others, including intersex persons identified in the 2019 Kenya Population and Housing Census. While the WPS agenda centres on women, men are not excluded, as the agenda’s objectives cannot be achieved without inclusive participation.

DOWNLOAD THE FULL ACTION PLAN HERE