Safety and Security Challenges in UN Peace Operations

1 J U LY 2 0 1 5 Safety and Security Challengesin UN Peace OperationsPROVIDING FOR PEACEKEEPING NO. 10 HAIDI WILLMOT, SCOTT SHEERAN, AND LISA SHARLANDABOUT THE AUTHORSHAIDI WILLMOT is on leave from the UN Department ofPeacekeeping : SHEERAN is a Senior Lecturer at the University ofEssex on leave, and currently a member of the NewZealand Permanent Mission to the United : SHARLAND is an Analyst with the Australian StrategicPolicy : authors would like to thank those UN Secretariatofficials from the Department of Safety and Security andthe Department of Peacekeeping Operations , who wereinterviewed and provided feedback on this paper.

2 Theyalso would like to thank colleagues who have served in UNpeacekeeping Operations and special political missions fortheir insights. And they would like to thank diplomats fromseveral permanent missions to the UN in New York whooffered their thoughts on the issues. Finally, they would liketo thank the team at the International Peace Institute,including Adam Smith, Paul Williams, Alex Bellamy, AdamLupel, Marisa McCrone, and Lamii Moivi Kromah. While the authors are indebted to all who engaged withthem, any errors remain their own. All authors write in theirpersonal capacity and the views expressed herein do notnecessarily reflect those of their respective Sheeran s input was based on research and inter -views conducted prior to December 2014 in preparing hischapter for Anna Powles, Negar Partow, and Nick Nelson(eds.)

3 , United Nations Peacekeeping Challenges : TheImportance of the Integrated Approach(Ashgate,forthcoming 2015).Cover Photo:A peacekeeper with theUN Organization Stabilization Mission inthe Democratic Republic of the Congo(MONUSCO) walks towards thewreckage of a UN vehicle that was hitthe previous year in an ambush by theAllied Democratic Forces (ADF) rebelmilitia near Beni, Democratic Republicof the Congo. March 13, 2014. UNPhoto/Sylvain : The views expressed in thispaper represent those of the authorsand not necessarily those of theInternational Peace Institute. IPIwelcomes consideration of a widerange of perspectives in the pursuit ofa well-informed debate on criticalpolicies and issues in PublicationsAdam Lupel, Director of Research andPublicationsMarisa McCrone, Assistant ProductionEditorSuggested Citation:Haidi Willmot, Scott Sheeran, and LisaSharland, Safety and SecurityChallenges in UN Peace Operations , New York: International Peace Institute,July 2015.

4 By International Peace Institute, 2015 All Rights .. iiiExecutive Summary.. 1 Introduction .. 3 IMPORTANCE OF Safety AND Security EVOLVING Security ENVIRONMENTS afety and Security in the UN System .. 7 HISTORY MANAGEMENT AND OPERATIONAL STRUCTUREThe Challenges of Safety and Security inPeace Operations .. 12 POLITICS AND DIPLOMACY ORGANIZATION policy PLANNING Operations PERSONNEL RESOURCES AND CAPABILITIES INFORMATION LEGALR ecommendations ..34 AbbreviationsAMISOMA frican Union Mission in SomaliaAUAfrican UnionC34 Special Committee on Peacekeeping OperationsDFSD epartment of Field SupportDPAD epartment of Political Affairs DPKOD epartment of Peacekeeping OperationsDRCD emocratic Republic of the Congo DSSD epartment of Safety and Security EUEuropean UnionEUFORE uropean Union ForceHOMHead of Mission IASMNI nter-Agency Security Management Network ICCI nternational Criminal CourtICRCI nternational Committee of the Red Cross IEDI mprovised Explosive Device ISAFI nternational Security Assistance ForceMINUSCAU nited Nations Multidimensional Integrated Stabilization Mission in theCentral African

5 RepublicMINUSMAU nited Nations Multidimensional Integrated Stabilization Mission in MaliMINUSTAHU nited Nations Stabilization Mission in HaitiMONUSCOU nited Nations Organization Stabilization Mission in the Democratic Republicof the CongoNATON orth Atlantic Treaty OrganizationPCCP olice-Contributing CountrySOFAS tatus of Forces Agreement SOMAS tatus of Mission AgreementSRSGS pecial Representative to the Secretary-General TCCT roop-Contributing Country iiiUNUnited NationsUNAMAU nited Nations Assistance Mission in AfghanistanUNAMIU nited Nations Assistance Mission for IraqUNAMIDU nited Nations-African Union Mission in DarfurUNDOFU nited Nations Disengagement Observer Force UNISFAU nited Nations Interim Security Force for AbyeiUNMILU nited Nations Mission in LiberiaUNMIKU nited Nations Interim Administration Mission in KosovoUNMISSU nited Nations Mission in the Republic of South SudanUNMOGIPU nited Nations Military Observer Group in India and PakistanUNOCIU nited Nations Operation in C te d'IvoireUNSMSU nited Nations Security Management System UNSOMU nited Nations Assistance Mission in SomaliaUNTSOU nited

6 Nations Truce Supervision Organization 1 Executive SummaryEnsuring the Safety and Security of personnel inUnited Nations (UN) Peace Operations is vital forfulfilling the organization s duty of care. It also hasa strategic impact, including on the efficacy ofmandate execution, force generation, the evolutionof Peace Operations , and sustaining the relevance ofthe UN in the maintenance of international peaceand the tragic bombing of the UN headquartersin Iraq in 2003, a concerted effort has been madeacross the UN system to improve and strengthensecurity arrangements.

7 However, too often, Security issues are perceived as primarily technicalmatters, and they are not prioritized as strategicallyand politically important. The increasingly volatileenvironments into which UN Peace Operations aredeployed and the demanding tasks being mandatedrequire immediate and serious consideration ofsecurity issues. Effective Security is about protecting UNpersonnel while enabling,not limiting,operationalactivity. Those involved need to take up thischallenge to save lives, restore the Peace , andbetter achieve the goals of the UN. To that end, theorganization (including member states, the UNSecretariat, and other UN entities) should take thefollowing and diplomacy:The Safety and securityof UN personnel must be understood as a collectiveresponsibility that requires a shared approach tounderstanding the Security situation andimproving the mandating, resourcing, planning,and execution of Peace Operations .

8 The responsi-bility extends across the Security Council, theGeneral Assembly s Fifth Committee (Adminis -trative and Budgetary), the Special Committee onPeacekeeping Operations (C34), troop- and police-contributing countries (TCCs/PCCs), host states,and the Secretariat. Each body should also helpensure the accountability of the others. Regularsituational awareness briefings to the SecurityCouncil and a robust dialogue on Peace operationsamong key actors would help achieve this goal. Keyissues include adequate resourcing, calibratedacceptance of risk, improved planning, proactivemanagement, and enhanced cooperation on thepart of the host UN s duty of care extends to the aftermath ofa Security incident, when it is incumbent on thosein a position to hold to account, through allpossible means, those who perpetrated an attackagainst the UN.

9 Holding to account both states andindividuals helps deter potential perpetrators,builds confidence in prospective contributors,upholds the inviolability of the UN peaceoperations instrument, and demonstrates a respectfor those who have risked their lives in the serviceof : Safety and Security issues need tobe approached holistically. Disaggregating thesecurity of military, police, and civilian personnelleads to inefficiency and fails to appreciate theimpact of broader mission activities on the safetyand Security of the whole UN for the Security of the spectrum ofUN personnel (military, police, and civilian)should be consolidated under the UN Departmentof Safety and Security (DSS).

10 policy :The UN needs a comprehensive policy oncrisis management, applicable across all peaceoperations and country teams. It should beaccompanied by a mandatory regime of crisismanagement simulation exercises. The organiza-tion needs to introduce measures that allow forexpedited human resources and procurementprocesses in crisis situations. And a clear articula-tion of the accountability and the command andcontrol of senior leaders at UN headquarters and inpeace Operations is necessary at the policy :The existing UN Security models areunder increasing pressure in high-threat environ-ments.