From 28 to 30 October 2026, The International Institute for Justice and the Rule of Law (IIJ) convened the first in-person meeting of the High-Level Reference Group, held over three days, in Nairobi, Kenya, as part of the IIJ Initiative to Strengthen Women’s Participation and Leadership in Counter-Terrorism. Supported by the European Union and developed within the framework of the Global Counterterrorism Forum (GCTF), the meeting brought together experts and practitioners from Algeria, Australia, Austria, Belgium, Benin, Cameroon, Canada, France, Gambia, Ghana, Greece, Indonesia, Ireland, Kenya, Kyrgyzstan, Maldives, Netherlands, Nigeria, Norway, Philippines, Spain, Tunisia, the United Kingdom, and the United States.
The meeting aimed to validate findings from initial regional online consultations and inform the development of the GCTF Framework Document on strengthening women’s full, safe, and meaningful participation and leadership in counter-terrorism. Participants from law enforcement, prosecution, the judiciary, policymaking institutions, international organisations, and civil society examined structural, contextual, and institutional barriers affecting women’s recruitment, retention, career progression, and leadership, while identifying practical measures and institutional responses to advance gender-responsive approaches across counter-terrorism efforts.
The opening featured remarks from Mr. Jackson Macharia, Chief Liaison Officer, ICT-STRATCOM, National Counter Terrorism Centre (NCTC_Kenya), Kenya; Dr. Mohammed Ibrahim, Counsellor for Counterterrorism and Security (Horn of Africa), Delegation of the European Union to Kenya; Ms. Beatrice Tesconi, Programme Management Officer, EU-UN Global Terrorism Threats Facility, United Nations Office of Counter-Terrorism (UNOCT); and Mr. Paul Madden, Project Lead, IIJ.
Prof. Ben Saul, United Nations Special Rapporteur on the promotion and protection of human rights and fundamental freedoms while countering terrorism, delivered a keynote address stressing that women’s equal participation is a human right in its own right, not only a means to more effective counter-terrorism. He underlined that representation is necessary but that the real objective is institutional transformation, so that women have genuine influence over decisions. He also called for protecting women human rights defenders and civil society, assessing the gendered impacts of counter-terrorism measures, and strengthening independent oversight and accountability.
The first day focused on framing the initiative, including the relationship between counter-terrorism, the Women, Peace and Security agenda and women’s engagement in security decision-making. Participants validated the findings of the regional online consultations and, working in four regional groups (East and West Africa, the Middle East and North Africa, Central Asia, and South and Southeast Asia), identified priority barriers to women’s advancement and leadership. While contexts differ, three barriers emerged in every region: patriarchal institutional cultures, gaps between policy commitments and their implementation, and women’s presence without real decision-making power. Participants also discussed levers for change, including well-resourced and monitored Women, Peace and Security National Action Plans, transparent promotion systems, mentoring and professional networks.
The second day explored institutional responses and potential good practices, examining approaches to improving women’s recruitment, retention, and career progression, including leadership programmes, mentoring, supportive institutional policies, and mechanisms to address barriers affecting professional advancement. Discussions also highlighted the importance of collaborative support, networks, male allyship, and institutional cultures that enable women’s leadership. Participants then examined the challenges specific to law enforcement, prosecution, the judiciary, intelligence, policymaking institutions and civil society, and how institutional cultures shape women’s opportunities in each sector. Several participants generously shared their personal stories, offering moving and powerful insights into the realities behind these challenges.
Participants further explored gender-responsive approaches across counter-terrorism efforts, including opportunities to strengthen cooperation between counter-terrorism institutions, civil society, women’s organisations, and community actors. Discussions considered practical approaches in prevention, rehabilitation and reintegration, and community engagement, while emphasising the importance of safeguarding human rights and protecting civic space.
The final day focused on strengthening cooperation among Reference Group members and identifying priorities, contributors, and next steps for the development of the GCTF Framework Document. Representatives of the African Union Counter Terrorism Centre (AUCTC), the EU-ACT project and the OSCE shared their experience of building practitioner networks, and members proposed connecting existing networks and tools, for example through a shared repository, rather than creating parallel structures. Members then set out priorities for the Framework Document, including closing the gap between policy and implementation through accountability, placing leadership at the centre of the good practices, addressing digital threats and intersectionality, and measuring change beyond numbers.
Closing remarks were delivered by Ms. Beatrice Tesconi, Programme Management Officer, EU-UN Global Terrorism Threats Facility, UNOCT, and Mr. Naoufel Gaied, Executive Secretary, IIJ.
On the sidelines of the IIJ Initiative to Strengthen Women’s Participation and Leadership in Counter-Terrorism in Nairobi, IIJ Executive Secretary Naoufel Gaied, Project Lead Paul Madden, and Academic Unit Director Samna Cheibou held several bilateral meetings with the UK High Commissioner, H.E. Matt Baugh OBE, the High Commissioner of Canada to Kenya, H.E. Joshua Tabah, and the Australian Deputy High Commissioner, Mr. Chris Ellinger, joined by Prof. Ben Saul, UN Special Rapporteur on the promotion and protection of human rights and fundamental freedoms while countering terrorism. These exchanges provided an opportunity to discuss shared priorities in cooperation, exchange views on ongoing efforts to strengthen international partnerships, and reaffirm a mutual commitment to advancing inclusive and effective approaches to counter-terrorism.
The IIJ is deeply grateful to all Reference Group members, experts and partners who joined us in Nairobi. Thank you for your openness, your generosity in sharing your experience, often personal, and the energy you brought to every discussion. Your insights are the foundation of this work, and we look forward to continuing it together as we develop the GCTF Framework Document and work to strengthen women’s participation and leadership in counter-terrorism.