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