center of excellence evolving modern peace operations col (ret) peter leentjes center of excellence...
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Center of Excellence
EVOLVING MODERN EVOLVING MODERN PEACE OPERATIONSPEACE OPERATIONS
Col (Ret) Peter LeentjesCenter of Excellence inDisaster Management and Humanitarian Assistance
Center of Excellence
PEACE OPERATIONS
Examine a ModelExamine a Model Establish the EnvironmentEstablish the Environment Discuss Evolution in the 90sDiscuss Evolution in the 90s Principles and PoliciesPrinciples and Policies Challenges and OptionsChallenges and Options
Center of Excellence
Definition
“A complex emergency is a humanitarian crisis in a country, region or society where there is a dramatic disruption in the
political, economic and social situation, resulting from internal or external conflict or natural disaster, seriously disrupting the population’s capacity to survive and the national authorities’
capacity to respond, and which requires a consolidated multi-sectoral international response”
IASC of the United Nations
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ModernComplex Emergencies
DisasterResponse
HumanitarianAssistance
PeaceOperations
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DisasterResponse
HumanitarianAssistance
PeaceOperations
Range of Military Activity
Support
Combat
Security ComplianceOperations
Support Security
ModernComplex Emergencies
Center of Excellence
DisasterResponse
HumanitarianAssistance
PeaceOperations
Range of Civilian Activity
Support
CM
Humanitar
ianMitig
ation
ModernComplex Emergencies
Center of Excellence
ModernComplex Emergencies
DisasterManagement
HumanitarianAssistance
PeaceOperations
Civil - Military Coordination
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PEACEKEEPINGPEACEKEEPING
Pragmatic Solution - No Legal BasisPragmatic Solution - No Legal Basis
For 40 + years peacekeeping was:For 40 + years peacekeeping was:
– Based on resolution of interstate conflictBased on resolution of interstate conflict
– Conducted post an agreementConducted post an agreement
– Separated Forces or Monitored AgreementsSeparated Forces or Monitored Agreements
Classic or Traditional PeacekeepingClassic or Traditional Peacekeeping
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FEATURES OF CLASSIC FEATURES OF CLASSIC PEACEKEEPINGPEACEKEEPING
• Interstate ConflictInterstate Conflict
• Governments Functioning and in Control Governments Functioning and in Control
• Government Infrastructure intactGovernment Infrastructure intact
• Military and Police Structures operatingMilitary and Police Structures operating
• Judicial Systems in placeJudicial Systems in place
• International Rules operableInternational Rules operable
• Minimum Contact with PopulationMinimum Contact with Population
• Minimum Involvement with Civilian Minimum Involvement with Civilian AgenciesAgencies
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Traditional peacekeepingTraditional peacekeeping Implementation of Complex Agreements and Implementation of Complex Agreements and
SettlementsSettlements Preventive DeploymentPreventive Deployment Observation of a Non-UN Peacekeeping ForceObservation of a Non-UN Peacekeeping Force Co-deployment with Regional Peacekeeping ForcesCo-deployment with Regional Peacekeeping Forces Provision of Humanitarian AidProvision of Humanitarian Aid Peace EnforcementPeace Enforcement
EVOLUTION OF PEACEKEEPING EVOLUTION OF PEACEKEEPING CHALLENGESCHALLENGES
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FEATURES OF MODERN FEATURES OF MODERN PEACEKEEPINGPEACEKEEPING
• Intra-state ConflictIntra-state Conflict
• Governments ineffective or not in controlGovernments ineffective or not in control
• Factional Political Groupings & LeadershipFactional Political Groupings & Leadership
• State Infrastructure broken downState Infrastructure broken down
• Judicial & Police Breakdown Judicial & Police Breakdown
• Military factions & WarlordsMilitary factions & Warlords
• Weapons proliferationWeapons proliferation
• There are no RulesThere are no Rules
• Intermingled with PopulationsIntermingled with Populations
• Full Range of Civilian Agencies / NGOsFull Range of Civilian Agencies / NGOs
NEW YORK TIMES““Rethinking and retrenchment are in Rethinking and retrenchment are in order ... There should be a shift back order ... There should be a shift back towards more limited objectives towards more limited objectives likelike
policing cease-fires”. “UN peacekeeping policing cease-fires”. “UN peacekeeping does what it can do very well. It makes does what it can do very well. It makes
no sense to continue eroding it’s no sense to continue eroding it’s credibility by asking it to do what it credibility by asking it to do what it
cannot”.cannot”.
New York Times - 1996New York Times - 1996
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“ “Traditional peacekeeping operations Traditional peacekeeping operations of the kind deployed during the Cold of the kind deployed during the Cold
War are unlikely to be repeated. War are unlikely to be repeated. Peacekeeping today requires not only Peacekeeping today requires not only
re-thinking the means but also the re-thinking the means but also the methods of implementing mandates methods of implementing mandates
set out by the Security Council.set out by the Security Council.
Secretary-General Kofi AnnanSecretary-General Kofi Annan
19981998
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CHAPTER VI Peaceful settlement of disputesPeaceful settlement of disputes The Council provides assistance at the request of the The Council provides assistance at the request of the
partiesparties Council has authority to investigateCouncil has authority to investigate Investigation is not normally military until accord is Investigation is not normally military until accord is
arranged – then military assess role a peace operation arranged – then military assess role a peace operation could playcould play
A PKO under Chapter VI is part of the peaceful resolution A PKO under Chapter VI is part of the peaceful resolution of the disputeof the dispute
PKO assists in consolidating the peace and building PKO assists in consolidating the peace and building confidenceconfidence
Forces are lightly armed for self defenseForces are lightly armed for self defense
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As a result there are conditions to a Chapter As a result there are conditions to a Chapter VI operation:VI operation:– Consent of the parties is requiredConsent of the parties is required– A cease-fire needs to be effectiveA cease-fire needs to be effective– A comprehensive agreement should be signedA comprehensive agreement should be signed– Parties assist the deployment of the forceParties assist the deployment of the force– Parties sign a SOFA (this is very important to Parties sign a SOFA (this is very important to
establish the status of the forces – there is no other establish the status of the forces – there is no other legal basis under Chapter VI)legal basis under Chapter VI)
– Self-defense ROE are developedSelf-defense ROE are developed
CHAPTER VI
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CHAPTER VII“The Decision to Use Enforcement Power” Conflict is ongoingConflict is ongoing High risk that conflict may start againHigh risk that conflict may start again Parties are not in agreementParties are not in agreement Rogue elements are not included (increased risk to UN forces Rogue elements are not included (increased risk to UN forces
– force protection)– force protection) Risk of external interventionRisk of external intervention Presence of other national forces in the areaPresence of other national forces in the area Risky internal situation – violence / human rights abuses / Risky internal situation – violence / human rights abuses /
banditry / weaponsbanditry / weapons Self defense insufficient to protect deployed forcesSelf defense insufficient to protect deployed forces A legal basis to protect deployed forces is needed (SOFA A legal basis to protect deployed forces is needed (SOFA
cannot be agreed)cannot be agreed)
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CHAPTER VII“The Use of Force”
Chapter VII Chapter VII – does not tell you to use force activelydoes not tell you to use force actively– is not combat operation is not combat operation
Provides the full range of options including up to Provides the full range of options including up to and including enforcement powersand including enforcement powers– Declaration that the conflict represents a threat to Declaration that the conflict represents a threat to
international peace and securityinternational peace and security– Non use of force options –ie sanctionsNon use of force options –ie sanctions– Use of Armed force – if necessary and as a last resortUse of Armed force – if necessary and as a last resort
Establishes the legal context for intervention and Establishes the legal context for intervention and the use of forcethe use of force
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CHAPTER VI / VII CHECKLIST
Chapter VI Chapter VII
•Parties request assistance•Commit to peaceful resolution•Political will of the parties•Consent to the operation•Effective cease-fire•Comprehensive agreement•Parties assist the deployment •Signature of SOFA
PKO assists in consolidating the peace
•Conflict is ongoing•Risk of renewed conflict high•Parties not in agreement•Risky internal situation•Rogue elements not included•Risk of external intervention•Presence of foreign forces•Self defense judged insufficient•Legal basis for intervention needed•SOFA
PKO enforces the will of the SC
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PEACE CONFLICT WAR
PEACEKEEPING ENFORCEMENT
Chapter VIChapter VI Chapter VIIChapter VII
Pacific Pacific Settlement of Settlement of
DisputesDisputes
Chapter VIII: Regional ArrangementsChapter VIII: Regional Arrangements
Action with Respect Action with Respect to to
Threats to the Peace, Threats to the Peace, Breaches of the Peace, Breaches of the Peace,
and and Acts of AggressionActs of Aggression
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Separation of Forces
Truce Supervision
PEACE CONFLICT WAR
Supervision of Elections
Restore Civil Institutions
Preventive Deployment
Civil Police Operations
Economic Assistance
Transition Assistance
Demining
Protection
Disarmament
Human Rights Monitoring
Collective Enforcement
Gross Violation ofHuman Rights
Peace Restoration
Regional Enforcement
Ecological Disaster
Humanitarian Aid
Multi-dimensional - Failed State Operations
Safe Areas
Co - Deployment
PEACEKEEPING ENFORCEMENT
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Separation of Forces
Truce Supervision
PEACE CONFLICT WAR
Supervision of Elections
Restore Civil Institutions
Preventive Deployment
Civil Police Operations
Economic Assistance
Transition Assistance
Demining
Protection
Disarmament
Human Rights Monitoring
Collective Enforcement
Gross Violation ofHuman Rights
Peace Restoration
Regional Enforcement
Ecological Disaster
Humanitarian Aid
Multi-dimensional - Failed State Operations
Safe Areas
Co - Deployment
PEACEKEEPING ENFORCEMENT
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1990 ISSUES
Wider Range of TasksWider Range of Tasks Change in the Composition and Needs of Change in the Composition and Needs of
Missions Missions Only the Traditional Model of Only the Traditional Model of
Peacekeeping AvailablePeacekeeping Available
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SECURITY COUNCILATTEMPTS TO RESOLVE THE
PROBLEMS IN THE 90’s
• A wider application of the peacekeeping model
• Development of hybrid mandates
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PEACE CONFLICT WAR
Separation of Forces
Truce Supervision
Preventive Deployment
Civil Police Operations
Economic Assistance
Supervision of Elections
Restore Civil Institutions
Transition Assistance
Demining
Protection
Disarmament
Human Rights Monitoring
Humanitarian Aid
Multi-dimensional - Failed State Operations
Collective Enforcement
Gross Violation ofHuman Rights
Peace Restoration
Regional Enforcement
Ecological Disaster
Safe Areas
Co - Deployment
PEACEKEEPING ENFORCEMENT
Center of Excellence
PEACE CONFLICT WAR
Separation of Forces
Truce Supervision
Preventive Deployment
Civil Police Operations
Economic Assistance
Supervision of Elections
Restore Civil Institutions
Transition Assistance
Demining
Protection
Disarmament
Human Rights Monitoring
Humanitarian Aid
Multi-dimensional - Failed State Operations
Collective Enforcement
Gross Violation ofHuman Rights
Peace Restoration
RegionalEnforcement
Ecological Disaster
Safe Areas
PEACEKEEPING ENFORCEMENT
Co - Deployment
Center of Excellence
PEACE CONFLICT WAR
Separation of Forces
Truce Supervision
Preventive Deployment
Civil Police Operations
Economic Assistance
Supervision of Elections
Restore Civil Institutions
Transition Assistance
Demining
Protection
Disarmament
Human Rights Monitoring
Humanitarian Aid
Multi-dimensional - Failed State Operations
Collective Enforcement
Gross Violation ofHuman Rights
Peace Restoration
RegionalEnforcement
Ecological Disaster
Safe Areas
PEACEKEEPING ENFORCEMENT
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Chapter VII Tools Comprehensive Mandate Comprehensive Mandate Clear Military TasksClear Military Tasks Robust Force Structures (Equipped and Robust Force Structures (Equipped and
Trained)Trained) Effective Command and Control StructureEffective Command and Control Structure Authority to Use Force AppropriatelyAuthority to Use Force Appropriately
– Robust Rules of EngagementRobust Rules of Engagement
Legal Basis for InterventionLegal Basis for Intervention
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WHAT CAN THE UN DO?
Classic PeacekeepingClassic Peacekeeping Chapter VI Reinforced with Chapter VI Reinforced with
Chapter VII elementsChapter VII elements
Any Operation with Sustained Any Operation with Sustained Combat Operations – this requires a Combat Operations – this requires a coalition of the willing / lead nation / coalition of the willing / lead nation / multi national forcemulti national force
WHAT CAN THE UN NOT DO?
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CHAPTER VII - ENFORCEMENTOPERATIONAL PROBLEMS
UN has no Combat Operations CapabilityUN has no Combat Operations Capability LogisticsLogistics
– no combat logistics systemno combat logistics system– contractor based supportcontractor based support
Authority over National ForcesAuthority over National Forces– authority uncertainauthority uncertain– inadequate command & control stuctureinadequate command & control stucture– nations reaction to forces under threatnations reaction to forces under threat
Different CulturesDifferent Cultures– military culturesmilitary cultures– leadership & managerial backgroundsleadership & managerial backgrounds– training standardstraining standards
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The UN may authorize a region / coalition to The UN may authorize a region / coalition to conduct the missionconduct the mission– To a regional organizationTo a regional organization– A coalition of the willing (MNF)A coalition of the willing (MNF)– A framework / lead nation in a coalitionA framework / lead nation in a coalition– To a Nation capable of executing the missionTo a Nation capable of executing the mission
The UN may decide to mange the missionThe UN may decide to mange the mission– Form a UN multi-national forceForm a UN multi-national force– Designate a framework / lead nation conceptDesignate a framework / lead nation concept
OPTIONS FOR UN MANDATES
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WHY AUTHORIZE
The operation has a high risk of combat The operation has a high risk of combat operations taking placeoperations taking place
UN missions take a long time to deploy and UN missions take a long time to deploy and deployment time is criticaldeployment time is critical
Support for funding cannot be generatedSupport for funding cannot be generated A region or coalition offers forcesA region or coalition offers forces
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UN MANDATED OPERATIONS COALITION OF THE WILLING / MNFCOALITION OF THE WILLING / MNF
– UN mandate authorizes the missionUN mandate authorizes the mission– Lead nation generates the forcesLead nation generates the forces– Lead Nation appoints Force commanderLead Nation appoints Force commander– Participating Nations pay all costsParticipating Nations pay all costs– Lead Nation coordinates & provides day to day political directionLead Nation coordinates & provides day to day political direction– Lead Nation coordinates & provides ROELead Nation coordinates & provides ROE
UN FORCE UN FORCE – UN sponsored missionUN sponsored mission– UN generates the forcesUN generates the forces– UN appoints Force CommanderUN appoints Force Commander– Mission paid by assessed contributionsMission paid by assessed contributions– Political direction by UN (through DPKO)Political direction by UN (through DPKO)– UN ROEUN ROE
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PEACE CONFLICT WAR
Separation of Forces
Truce Supervision
Preventive Deployment
Civil Police Operations
Economic Assistance
Supervision of Elections
Restore Civil Institutions
Transition Assistance
Demining
Protection
Disarmament
Human Rights Monitoring
Humanitarian Aid
Multi-dimensional - Failed State Operations
Collective Enforcement
Gross Violation ofHuman Rights
Peace Restoration
RegionalEnforcement
Ecological Disaster
Safe Areas
PEACEKEEPING ENFORCEMENT
TYPICAL COALITION / MNF MANDATE
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PEACE CONFLICT WAR
Separation of Forces
Truce Supervision
Preventive Deployment
Civil Police Operations
Economic Assistance
Supervision of Elections
Restore Civil Institutions
Transition Assistance
Demining
Protection
Disarmament
Human Rights Monitoring
Humanitarian Aid
Multi-dimensional - Failed State Operations
Collective Enforcement
Gross Violation ofHuman Rights
Peace Restoration
RegionalEnforcement
Ecological Disaster
Safe Areas
PEACEKEEPING ENFORCEMENT
TYPICAL UN PKO FORCE MANDATE
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CHANGING PRECEPTS
Limitations onLimitations on– ResourcesResources– Political effortPolitical effort– Military sacrificeMilitary sacrifice
Revision of principlesRevision of principles–SovereigntySovereignty–ConsentConsent
Impartial statusImpartial status
Broader range of tasksBroader range of tasks
Time constraintsTime constraints
Humanitarian Basis Humanitarian Basis for Interventionfor Intervention
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CONSENTWho Gives Consent?
International BodiesInternational Bodies– UN Security CouncilUN Security Council
– UN General AssemblyUN General Assembly
TCNsTCNs
Third PartiesThird Parties
Parties to the Conflict Parties to the Conflict Military OrganizationsMilitary Organizations Military FactionsMilitary Factions Local CommandersLocal Commanders WarlordsWarlords
ProvidesProvidesLegitimacyLegitimacy
Strategic LevelStrategic LevelEnvironmentEnvironment
Operational & Operational & Tactical Level Tactical Level EnvironmentEnvironment
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NO MILITARY SOLUTION
Blunt instrument Blunt instrument of political power of political power
End state can only End state can only be political, economic be political, economic and social in natureand social in nature
Military can Military can
–temporizetemporize
–maintain situationmaintain situation
–reduce levels of violencereduce levels of violence
–induce complianceinduce compliance
ExpensiveExpensive tool tool
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SUPPORT OPERATIONS
MILITARYMILITARYOPERATIONSOPERATIONSM
ILIT
AR
MIL
ITA
RYY
CIV
ILIA
CIV
ILIA
NN
CRISISCRISIS STABILISATIONSTABILISATION
ECONOMICECONOMIC& SOCIAL& SOCIAL
LIFELIFESUPPORTSUPPORT
OPERATIONAL PHASES
LIFELIFESAVINGSAVING
POLITICALPOLITICAL
5 to 10 years?
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UNITED NATIONS UNITED NATIONS PEACEKEEPING MISSION STRUCTURE PEACEKEEPING MISSION STRUCTURE
SRSG
Deputy SRSG
Human Rights Component
Military Force Humanitarian Component
Election Component
Police Component
Administrative component
Observer Force
National Authorities UN SG
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COALITION OR LEAD NATION COALITION OR LEAD NATION PEACEKEEPING MISSION STRUCTURE PEACEKEEPING MISSION STRUCTURE
Military Force
Coalition NCAs
SRSG
Deputy SRSG
Human Rights Component
Humanitarian Component
Election Component
Police Component
Administrative component
Observer Force
UN SG
Component
Component
Component
Component
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ReconstructionHuman Rights
Military Role in Peace Operations
SRSG
Deputy
ElectionsHumanitariansCIVPOLMilitary Force
Primarymilitarymission
securitytraining supportsecurity / protection / transport
security on sites / protection / transport / medicalemergency medical
assistance to the election process
Development
secure environment / engineering /transport / materielassistance to the reconstruction process
Manage the mandate
Coordinate effort of components
Provide unity of effort
assistance to long term development
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REQUIREMENTS REQUIREMENTS FOR A FOR A
SUCCESSFUL SUCCESSFUL PEACE OPERATIONPEACE OPERATION
LegitimacyLegitimacy– Consent -at key levelsConsent -at key levels– Legal BasisLegal Basis
CredibilityCredibility– Credible ForceCredible Force– Achievable Mandate and Military PlanAchievable Mandate and Military Plan
Operating EnvironmentOperating Environment– Signed AgreementSigned Agreement– End State with achievable goalsEnd State with achievable goals– Integration of Effort with other ComponentsIntegration of Effort with other Components
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SUMMARY OF CHANGESSUMMARY OF CHANGES
Chapter VII Operations will be the normChapter VII Operations will be the norm Multi-dimensional, Multi-national OperationsMulti-dimensional, Multi-national Operations Focus on Integrated Political, Economic and Social Focus on Integrated Political, Economic and Social
SolutionsSolutions Integration of Tasks under One MandateIntegration of Tasks under One Mandate Full Range of Civilian InterventionFull Range of Civilian Intervention New Coordination MechanismNew Coordination Mechanism Broader Range of Military TasksBroader Range of Military Tasks Complementary Roles for ComponentsComplementary Roles for Components