UN PeacekeepingDoctrine

"The first, the supreme, the most far-reaching act of judgment that the statesman and

commander have to make is to establish . . . what kind of military operation on which they

are embarking…and not mistake it for something else.”2

WHAT KIND OF MILITARY OPERATION IS PEACEKEEPING?

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Represents summary of clear-cut opinions on a specific subject.

For the military: Doctrine expresses a system of fundamentals and principles which direct activities of armed forces when executing military operational tasks.

Peacekeeping is one of many “operational military tasks.”

Doctrine provides common frame of reference for conducting tasks

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WHAT IS DOCTRINE?

Level of military planning between national strategy and unit level tactics, techniques and procedures

Why is Doctrine important? Doctrine provides a shared way of thinking about military

problems and operations, such as Peacekeeping.

It does not: Direct how specific military problems will be solved Provide specific steps to solve a problem Direct a commander to take specific action Commanders are always expected to exercise their

own judgment in carrying out their missions! 6

MILITARY DOCTRINE

Should change as the nature of warfare changes

Implementing and changing a military doctrine is highly complex and time consuming

Operational “Military Doctrine” supports political goals

Military doctrine is basis for developing military capabilities and shaping forces: Organization (Force Structure and Design), Training,

Leader Development Programs, Facilities, Materiel, and Soldiers

May be shared between several nations

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MILITARY DOCTRINE

Doctrine is not Dogma!

BOTTOM LINE

Combines elements that are timeless with elements that ebb and flow

Value is in providing a proven and commonly understood set of principles and practices for the employment of military forces in operational missions and tasks

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MILITARY DOCTRINE

Peacekeeping “Lessons Learned” have emphasized desirability of a

common “Doctrine” for Peacekeeping

UN PEACEKEEPING DOCTRINE

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DOCTRINE HELPS BRINGSTRATEGIC AND OPERATIONAL CLARITY

Stable for first 40 years (1948-1988) Consent, Impartiality & Minimum Use of Force

In flux since 1989 Peacekeeping Peace Enforcement Peacebuilding Peace Operations Peace Maintenance Wider Peacekeeping Second/Third Generation Peacekeeping Multi-Dimensional Peacekeeping Muscular Peacekeeping Complex Contingency Operations Complex Emergencies Peace Support Operations Stability and Support Operations10

UN DOCTRINE FOR “PEACEKEEPING”

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Peacekeeping Reform

• March 2000 Secretary General Initiated Peacekeeping Reform• August 2000 Ambassador Brahimi

releases report• 56 recommendations of which the development of

UN doctrine is one.• 2009 New Horizons Report Released

• Approaching 10 years since Brahimi Report• Looked at challenges to peacekeeping into the future

Lack of coherent UN doctrinal guidance for Member States

Needed to train forces for UN Peacekeeping

Peace Operations 2010 Reform Agenda

5-year effort focused on improving UN Peacekeeping in areas of: People Partnerships Doctrine Organization Resources

2007 Focus: UN Peacekeeping Doctrine Doctrine Finalized in 200812

MAJOR CRITICISM OF UN PEACEKEEPING

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UN Peacekeeping Doctrine

Dag Hammarskjold Medalposthumous award to members of peacekeeping operations who lost their lives during service with a peacekeeping operation

Part IEvolution of UN PeacekeepingPart IIPlanning for UN Peacekeeping

Integrated Mission Planning Process

Part IIIThe Art of Successful Mandate Implementation

Managing UN Peacekeeping Supporting and Sustaining Peacekeeping Transition and Exit

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2008 UN Doctrinefor UN Peacekeeping

FUNDAMENTALS OF PEACE OPERATIONS

Consent Impartiality Transparency Credibility Freedom of

Movement Flexibility and

Adaptability Civil-Military

Harmonization

Restraint and Minimum Force Objective/End State Perseverance Unity of Effort Legitimacy Security Mutual Respect

US Joint Publication 3-07.3, Peace Operations

DECISIONS FOR PEACEKEEPING

START-UPCrisis

reaches a level of

concern for internation

al community

Security Council

passes a resolution approving

SG concept

Secretary General

submits his report to

UNSC

UN conducts an assessment

of the situation

Peace agreement signed byParties to conflict

Key negotiators find a solutionPeace agreement, settlement, etc.

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Secretary General’s Reports

Provides the position of Secretary General & the Secretariat

Presented to the UN Security Council prior to resolution

Concept of operations for new missions Recommendations on changes to existing

missionsSecretary General Reports are the most important document in the UN System!!!

See http://www.un.org/Docs/sc/ and look under “Reports of the Secretary General”

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SG’s Reports on UN Peacekeeping

Framework of report - no set pattern but generally have these sections – note the concepts of peacebuilding here:

Security situation Political Developments Rule of Law Humanitarian issues Human Rights Financial aspects of mission Civilian Staffing Military strengths and nations committing to operation Recommendations to UN Security Council

INTEGRATED MISSIONPLANNING PROCESS

IMPP is outlined in new UN doctrinal manual Military Focused on Multi-dimentional Peacekeeping Initial assessments done both in the UN HQ and in

country with representatives from (not inclusive)

• Assessments form the basis of UN Secretary General Report

• Interested nations consulted

• UN Security Council votes on new or redesigned mission

UN DPKOUN DPAUN OCHAUN DFS

UN HCHRUNICEFUNHCROthers

Notional Stages of a Peacekeeping Mission

Mission Planning

Standby Phase DeploymentPhase

Sustainment Phase Liquidation Phase

Tasks During Standby & Deployment Phase:

Concept of Ops Force Size Troop Composition

Contributing Countries ROE Command, Control & Communications

Logistical Support MOUs Equipment Contracts Budget …...

Security Council Initiates

Security Council Terminates

Peace AgreementSigned

Sec Gen

Report

Five levels doctrinal guidance planned:

1.000 Series: Policy Guidance

(Capstone Doctrine Manual) 2.000 Series: Guidance for UN HQs Support to Operations 3.000 Series: Guidance on Management and Integration of

Operations 4.000 Series: Guidance for Field Operations 5.000 Series: Guidance for Support to Field Operations

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UN TEMPLATE FOR DOCTRINE DEVELOPMENT

DOCTRINEPolicy and Guidance Framework

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1.0UN PEACEKEEPING

OPERATIONSDOCTRINAL GUIDELINES

1.1MULTI-DIMENSIONAL

PEACEKEEPING HANDBOOK

GUIDELINESNOTES on PRACTICE

NOTES on KEY ISSUES

e.g.PROTECTION of

CIVILIANS

e.g.SUPPORT to

HUMANITARIANOPERATIONS

e.g.RULE

OF LAW

e.g.EXTENSION of

STATEAUTHORITY

1000 Series: “Capstone Doctrine”

Updateof 2003Version

2000 Series: HQs Support to Operations

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2.1Command & Control

And ExecutiveDirection

2.2Mission Planning

AndBudgeting

2.3Recruitment

AndForce Generation

2.4Deployment

And Mission Start-Up

2.5Political Analysis

AndBriefings

2.6Reporting, Op’nsand Management

2.7Support

AndSustainment

2.9Policy, Doctrine,

TrainingBest Practices

2.10Oversight

Auditand Inspections

2.8

Transition

Management

3000 Series: Management and Integration of

Operations

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3.1Mission

Command and Control

3.6Mission Analysis

& Reporting

3.2Core

ManagementResponsibilities

3.11Safety and

Security

3.3MissionPlanning

3.12Crisis

Management

3.13Cross-cutting

Issues

3.4 Integration and

Joint Arrange’

3.5

Political & Diplo’ Roles

3.7

Monitoring &

Evaluation

3.8Conduct &Discipline

3.9

Public Info’ &

Communications

3.10

Risk Mg’mt

Oversight Audit

4000 Series: Field Operations

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4.1Political andCivil Affairs

4.5Legal & Judicial

4.9SSR

Governance

4.13QIPs and

Reconst’ Assistance

4.2Military

4.3Observers

4.4Law Enforcement

(Police)

4.6Corrections and

Prisons

4.10Mine action

4.11Elections

4.7Human Rights

4.8DDR

4.12Civil

Administration

UN PEACEKEEPING DOCTRINEPolicy and Guidance Framework

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5000 Series: Field Operations Support

5.1Support PlanningAnd Budgeting

5.2Logistics Support

5.3Movement Control

5.4Strategic Deployment

Stocks

5.5Aviation

5.6Surface Transport

5.11Cartography

and GIS

5.16Finance

5.8Communications

and IT

5.12Records and

Administration

5.17Procurement and

ContractManagement

5.7Engineering

5.13Human Resources

5.18COE

Management

5.9Supply

5.10Property Management

5.14Training

5.19Legal

5.15Medical

Mission’s ability to successfully implement Mandate will depend on ability to maintain support of parties, local population and international community. Must develop close working relationship with major parties; must

be transparent and impartial in dealings

Must implement effective public information strategy to manage expectations and shape public perceptions to create supportive environment

Must attract and maintain highly qualified personnel

Personnel must maintain highest standards of professional conduct and discipline

Must be aware of and proactively manage impact on host country and local communities 27

PRINCIPLES FOR MANDATE IMPLEMENTATION

MAINTAINING SUPPORT FOR THE MISSION

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Initial consultation As a conflict develops, worsens, or approaches resolution, the UN is frequently involved in a number of consultations to determine the best response by the international community. These consultations would likely involve:All relevant United Nations actorsThe potential host government and the parties on the groundMember States, including States that might contribute troops and police to a peacekeeping operationRegional and other intergovernmental organizationsOther relevant key external partners