FINANCIAL, ADMINISTRATIVE STREAMLINING ENHANCE OVERALL PEACE-KEEPING EFFORTS, UNDER-SECRETARY-GENERAL FOR PEACE-KEEPING OPERATIONS TELLS FOURTH COMMITTEE

13 November 1995

Press Release
GA/SPD/75

FINANCIAL, ADMINISTRATIVE STREAMLINING ENHANCE OVERALL PEACE-KEEPING EFFORTS, UNDER-SECRETARY-GENERAL FOR PEACE-KEEPING OPERATIONS TELLS FOURTH COMMITTEE

19951113 Peace-Keeping Draft, Report of JIU also Introduced

The streamlining of financial and administrative procedures have improved the United Nations' ability to respond to situations in the field, according to Ismat Kittani, Under-Secretary-General for Peace-keeping Operations, who addressed the Fourth Committee (Special Political and Decolonization) today as it began its consideration of peace-keeping operations.

During the past year, Mr. Kittani said the capacity to establish and manage the 17 peace-keeping operations had been enhanced in a number of ways. The Office of Planning and Support had been strengthened and the Military Advisor's Office and the Office of Operations had also been modestly enhanced, mostly with military officers made available on a short-term basis by Member States at no cost to the Organization. If the United Nations was to develop an experienced staff, however, the skeletal structure should be comprised of core posts.

Regarding peace-keeping training, he said regional workshops had been conducted in Europe and Latin America and more were planned for Asia and Africa next year. The United Nations had also established training assistance teams to assist interested countries in developing training programmes. Stand-by arrangements were continuing to be developed. "Building on this relatively new, but promising, system will remain a priority, and I take this opportunity to encourage all Member States to participate", he added.

Another improvement concerned progress made in organizing and developing "peace-keeping start-up kits" at Brindisi, Italy, he continued. The kits, which were assembled from assets coming out of recently closed operations, contained the basic equipment and supplies to initiate and sustain the non- military components of a peace-keeping operation until its own systems were

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operative. Plans were also well-advanced for the development of a rapidly deployable headquarters team comprised of personnel skilled in military and civilian headquarters functions.

Francesco Mezzalama, the inspector of the Joint Inspection Unit, introduced its report on the relationship between humanitarian assistance and peace-keeping operations. He said the report, which included 11 recommendations, suggested ways to reduce frictions, minimize overlaps and increase the efficiency of missions' peace-keeping and humanitarian components.

Due to the increasing complexity of emergency situations, there was a need to pay special attention to the increasing role of non-governmental organizations. The Secretary-General's special representatives should be responsible for coordinating peace-keeping missions' political, military and humanitarian components, he added. Speakers this morning urged all Member States to pay their contributions to the peace-keeping budget in full and on time. They supported the enlargement of the membership of the Special Committee on Peace-keeping Operations and enhancement of the United Nations' preventive diplomacy and rapid reaction capabilities. They also endorsed the Secretary-General's new proposals to enhance the capacity for peace-keeping and conflict prevention in Africa.

The representatives of Spain (on behalf of the European Union), Algeria, Brazil and Togo made statements. The representative of Canada introduced the draft resolution on peace-keeping operations.

The Committee will meet again at 3 p.m. Tuesday, 14 November, to continue its general debate on the question of peace-keeping operations.

Committee Work Programme

The Fourth Committee (Special Political and Decolonization) met this morning to begin its consideration of the whole question of peace-keeping operations in all their aspects. It had before it the annual report of the Special Committee on Peace-keeping Operations and the Secretary-General's report on improving preparedness for conflict prevention and peace-keeping in Africa.

The Committee also had before it a letter from the Netherlands (A/49/886) containing a preliminary study on the United Nations rapid deployment brigade as well as letters from Ukraine and Austria. A draft resolution on peace-keeping operations was expected to be introduced.

By the terms of the draft resolution on peace-keeping operations (A/C.4/50/L.10), the Assembly would urge Member States, the Secretariat and relevant United Nations bodies to take all necessary steps to implement proposals, recommendations and conclusions of the Special Committee on Peace- keeping Operations. It would recommend that should any of the proposals contained in the resolution result in budgetary implications for the bienniums 1994-1995 and 1996-1997, such additional costs be accommodated within appropriation levels approved by the Assembly for those bienniums, in accordance with the Organization's financial rules and regulations.

The Assembly would also decide that the Special Committee should continue its efforts for a comprehensive review of the whole question of peace-keeping operations in all their aspects, and that it should review the implications of its previous proposals and consider new ones to enhance the United Nations capacity to fulfil its responsibilities in the field.

In addition, the Special Committee would be requested to consider expanding its membership, analyzing all available options. Its Chairman would be invited to consult with interested States and to submit specific recommendations to the next Assembly session. The Special Committee would also be asked to submit a report on its work to the next session of the Assembly.

The resolution is sponsored by Argentina, Canada, Egypt, Japan, Nigeria and Poland.

The report of the Special Committee (A/50/230) discusses the definition and implementation of peace-keeping mandates; consultation with troop contributing countries; command and control; and safety and security for peace-keepers. The section on enhancing the capacity of peace-keeping operations examines planning, organization and effectiveness; training; rapid deployment and stand-by arrangements; public information; finances; and cooperation with regional organizations.

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Noting the qualitative and quantitative changes in peace-keeping operations and the new challenges they faced, the report states that many missions had been successful but others had suffered setbacks. While peace- keeping remained one of the key United Nations instruments for solving conflicts and maintaining international peace, the Organization could and should make more use of preventive diplomacy and peace-making on a case-by- case basis.

In the report, the Special Committee stresses that the principles and purposes of the Charter should be strictly observed when defining and implementing peace-keeping operations. Respect for the principles of sovereignty, territorial integrity and political independence of States and non-intervention in matters that are essentially within the domestic jurisdiction of any State was crucial. The consent of parties, impartiality and the non-use of force except in self-defence were particularly important.

Further, the report states that peace-keeping operations should be conducted in accordance with certain factors, including a clearly defined mandate, objectives, command structure and secure financing. A congruence between mandates, resources and objectives when formulating and implementing peace-keeping mandates was also relevant in certain ongoing cases involving intra-State conflicts in which all the parties might not have given their full and continuous consent. Such consent was crucial to the success of peace- keeping operations. The necessary resources must be made available when existing operations are given new or additional mandates.

New arrangements for consultation and exchanges of information with troop contributors, set out by the President of the Security Council on 4 November 1994, should be held sufficiently in advance of Council decisions which could affect existing operations, the report states. Consultations between prospective troop contributors and the Secretariat should be held whenever possible before the Council decides on a particular mission's mandate.

Support is expressed in the report for the Secretary-General's efforts to strengthen, within existing resources, the planning, organization, coordination and policy and analysis process of peace-keeping operations. The Special Committee recommends the appointment of a special representative for larger operations, with authority over all components, to coordinate various activities within a structure involving close cooperation at all levels.

The problems of command and control had often negatively influenced the performance and efficiency of peace-keeping operations, according to the report. Military forces could not function properly if they received operational directives from different sources. Unity of command and control of operations was essential. It would be useful for the Department of Peacekeeping Operations (DPKO) in cooperation with Member States, to reach an

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agreed definition of the different kinds of command relationships applicable to peace-keeping operations. It was necessary to delegate to the United Nations, and, where appropriate, the special representative, force commander or head of mission, the appropriate financial and administrative autonomy to allow them to fulfil their mandate effectively, while ensuring the measures related to responsibility and accountability were strengthened.

The Special Committee urges the Secretariat to intensify its efforts to improve safety and security for peace-keepers and to ensure the physical well- being of United nations personnel. It expresses grave concern at all acts and forms of violence against United Nations peace-keeping personnel.

In the section which examines the planning, organization and effectiveness of peace-keeping operations, the Special Committee urges the Secretary-General to assign, without prejudice to the authority of the mission for operational matters, a qualified representative under the direct authority of the head of the Office of Internal Oversight Service, to each large mission or a visiting representative to smaller missions, to review performance and compliance questions.

The Special Committee underscores the importance of protecting information used by peace-keeping operations in the performance of their mandated activities and urges the Secretariat to provide appropriate training to personnel responsible for the handling and management of information. The increasingly important participation of civilian police in peace-keeping operations, needed to be managed more efficiently, through increased administrative and planning resources.

There had been progress in the past year to strengthen the Training Unit in the DPKO, particularly in the preparation of training assistance teams to work with troop contributors in developing national training programmes for peace-keeping personnel. The Special Committee asks the Secretary-General to develop the concept further and study the feasibility of attaching training assistance teams to the headquarters of missions.

The Special Committee calls on the Secretary-General to complete the elaboration of a code of conduct for United Nations peace-keeping personnel, consistent with applicable international humanitarian law. It strongly supports his initiative to institute pre-mission training for mission headquarters staff and it urges him to continue to coordinate all Secretariat training efforts.

On the issue of rapid deployment and stand-by arrangements, the Special Committee expresses deep concern at continuing and protracted delays between the establishment of peace-keeping mandates and their subsequent deployment. It invites the Secretary-General to continue to develop and promote a system of stand-by arrangements. The system should be reinforced and extended to

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other important elements, including headquarters components, transport capacity and civilian personnel, such as police. It also urges the Secretary- General to develop a rapidly deployable headquarters team of personnel skilled in essential military and civilian headquarters functions. Special attention should be given to improving the capacity to respond rapidly and effectively to emergency situations in Africa.

Adequate financial resources and support were crucial to the effectiveness of peace-keeping operations, according to the report. Underlining the importance of the Secretary-General's efforts and action by Member States to reform budgetary procedures and methods for managing and providing logistic support for peace-keeping operations, the Special Committee stresses the importance of implementing streamlining procedures to help reduce delays in reimbursements of troops. The report of the Secretary-General on improving preparedness for conflict prevention and peace-keeping in Africa, (document A/50/711) discusses issues related to preventive diplomacy, peacemaking, peace-building, and peace-keeping in Africa. The section on peace-keeping covers such areas as personnel and training and stand-by arrangements, planning and financing, and cooperation with the Organization of African Unity (OAU) and subregional organizations. The report also contains proposals to enhance the capacity for conflict prevention and peace-keeping in Africa.

In the report, the Secretary-General states that the key to enhancing preparedness to prevent conflict in Africa "lies first and foremost with the countries of the continent". Member States outside the region could assist, especially if practical solutions and the resources required to implement them were clearly identified. The United Nations stood ready to participate in this process.

The report states that the OAU has made significant progress in recent years in building its capacity to maintain peace and security. While it would not be wise to establish a rigid model for cooperation between the OAU and the United Nations, certain principles for such cooperation could include agreed mechanisms for consultation, respect for the primacy of the United Nations and a clearly defined division of labour.

The Secretary-General calls for the strengthening of the capabilities of the OAU and the institutionalization of mechanisms to increase cooperation with the United Nations. The report contains four proposals to accomplish this: the posting of a United Nations liaison officer at OAU headquarters to help ensure effective coordination of the efforts of the two organizations; sending a technical team on a short-term visit to assist the OAU Mechanism for Conflict Prevention in organizing a situation room; establishing a staff exchange programme to assist the OAU to strengthen its mechanism and to reinforce collaboration between the two organizations; and routine sharing of peace-keeping training information from United Nations Member States.

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The report further states that Africa's preparedness for peace-keeping depends initially on the willingness of African governments to contribute troops. The next step is to identify any gaps in the areas of training and equipment and the third step is for the international community to assist in meeting those requirements. African governments should make known their capacity and needs through the stand-by arrangements system.

For peace-keeping to be effective and lead to lasting conflict resolution, the Secretary-General continues, it must frequently include components of economic and social development, the promotion and protection of human rights, and good governance and institution-building. To achieve this goal, the report lists a series of recommendations including the strengthening of African participation in United Nations stand-by arrangements and the compilation of the specialized and heavy equipment needs of African participants; the promotion of bilateral "partnerships" to match troops with equipment; and the sharing of information by concerned States, with their agreement, regarding their participation in the stand-by arrangements with the OAU.

The Secretary-General concludes that, in the final analysis, the success of preventive diplomacy, peacemaking, peace-keeping and peace-building in Africa, irrespective of the level of preparedness and cooperation, depends on the political will of the parties in the conflict to resolve their differences peacefully. It also depends on the political will of Member States, and, in particular, of the Security Council, to support such operations and ensure that they are provided, from the outset, with the human, material and financial resources necessary for the implementation of their mandates. The report states "it is only on this basis that these instruments for conflict resolution and management can be effective in the post-cold war era".

The Committee also has before it a letter from the Netherlands to the Secretary-General (A/49/886) containing a preliminary study on a United Nations rapid deployment brigade. The study states that the brigade is primarily intended for deployment at short notice in operations of a limited duration. The primary objective would be to prevent and contain impending crises and humanitarian emergencies. The brigade would not only be able to adequately perform the required tasks, but it must also be able to protect itself and, if necessary, to take deterrent and locally decisive action.

Another document before the Committee is the report of the Joint Inspections Unit entitled "Investigation of the relationship between humanitarian assistance and peace-keeping operations" (A/50/572). The report deals mainly with the coordination of activities of the United Nations organizations and agencies involved in complex emergencies wherein humanitarian operations and peace-keeping operations are performed simultaneously by United Nations systems personnel. The report tries to

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define the notion of humanitarian assistance, and suggests ways to reduce frictions, minimize the overlaps and increase the efficiency and effectiveness of the components of the operations.

It contains 11 recommendations including the issuance of a Secretary- General's Bulletin which would clearly define the evolving functions and services of the Department of Humanitarian Affairs (DHA), both at Headquarters and at the field level, in consultation with humanitarian agencies; the protection by the United Nations of civilians on all sides at all times, in complex emergencies; the strengthening of the channel of negotiations to avoid, contain or solve conflicts; and the encouragement of the participation of non-governmental organizations and academic institutions in emergency situations.

Other recommendations include improved cooperation and coordination between humanitarian and peace-keeping personnel; the establishment of a human rights presence parallel to the Office of the Humanitarian Coordinator at the field level; and additional resources to strengthen the structure and capabilities of DHA.

The report recommends that Member States should proceed expeditiously to ratify the Convention of the Safety and Security of United Nations and Associated Personnel. The Secretary-General could report to the General Assembly on the state of ratification and implementation of the Convention. The role of the White Helmets could be extended to provide a deterrent and symbolic protective cover in their working relationship with humanitarian operators.

Introduction of Draft Resolution

The Vice-Chairman of the Special Committee for Peace-keeping Operations, DAVID KARSGAARD (Canada) introduced the draft resolution and the report of the Special Committee.

Statement by Under-Secretary-General for Peace-keeping Operations

ISMAT KITTANI, Under-Secretary-General for Peace-keeping Operations, said since this time last year, an observer mission had been established in Tajikistan, a major operation had been deployed in Haiti, and the expanded Angola operation had gotten underway. The operation in Mozambique, a success for which Member States could be proud, had achieved its mandate and had been withdrawn. In Somalia, United Nations peace-keepers had been withdrawn and a political mission sought a settlement while humanitarian efforts continued where possible.

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He said there were at present some 60,000 military and civilian personnel serving under the United Nations flag in 17 operations. During the past year, the capacity to establish and manage these operations had been enhanced in a number of ways. By streamlining financial and administrative procedures, the Organization had "improved its ability to respond to situations in the field". Over the past two years, a sound skeletal staff structure had been developed in the Department of Peace-keeping Operations (DPKO) and progress had been made in the past year in "placing a bit of flesh on the skeleton".

Furthermore, Mr. Kittani said the Office of Planning and Support, especially in the areas of mission planning, field administration and logistics, and training, had been strengthened. The Military Advisor's Office and the Office of Operations had also been modestly enhanced. Much of this had been accomplished with military officers made available on a short-term basis by Member States at no cost to the Organization. While this was greatly appreciated, the practice was only a stop-gap solution. If the United Nations was to develop an experienced staff which could provide continuity and institutional memory, the skeletal structure should be comprised of core posts.

Regarding peace-keeping training, he said since last year, regional workshops had been conducted in Europe and Latin America and workshops were planned in early 1996 for Asia and Africa. The United Nations had also established training assistance teams to assist interested countries in developing training programmes and training trainers. Such teams were made up of experienced peace-keepers, provided by Member States on an as-needed basis.

The Under-Secretary-General said the pilot training programme in Haiti for the headquarters staff of the United Nations Mission in Haiti (UNMIH) assisted in the early integration of political, military, humanitarian and administrative personnel into a cohesive team. A similar model was used in September for the headquarters staff of the United Nations Angola Verification Mission (UNAVEM III) and the results were encouraging.

He said the DPKO's lessons-learned unit, while modestly staffed, was now operational. In addition to conducting seminars, the unit would coordinate the preparation and analysis of after-action reports and relevant research. Also, stand-by arrangements were continuing to be developed. "Building on this relatively new, but promising, system will remain a priority, and I take this opportunity to encourage all Member States to participate", he added.

Another improvement concerned progress made in organizing and developing "peace-keeping start-up kits" at Brindisi, Italy, he continued. The kits, which were assembled from assets coming out of recently closed operations,

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contained the basic equipment and supplies to initiate and sustain the non- military components of a peace-keeping operation until its own systems were operative.

On the rapid deployment of peace-keepers, Mr. Kittani said plans were well-advanced for the development of a rapidly deployable headquarters team comprised of personnel skilled in military and civilian headquarters functions. Also, the Secretariat looked forward to working with Member States in carrying out new initiatives to enhance the capacity of the United Nations to respond quickly when necessary. The Secretary-General had made proposals to enhance the capacity for conflict prevention and peace-keeping in Africa and support was needed from Member States to make these ideas a reality.

JAVIER PEREZ-GRIFFO (Spain) on behalf of the European Union, said this year's draft resolution represented a step forward in increasing efficiency. The European Union provided over a third of the contributions to peace-keeping operations and was committed to United Nations peace-keeping and multilateral action. It was regrettable that the dire financial situation of the Organization was still not improved. It was particularly disturbing to those members that paid their assessments. All States must pay their dues in full and on time.

Preventive diplomacy and peacemaking were particularly important, he continued, as well as the post-conflict consolidation of peace. Peace-keeping remained one of the key instruments to contribute to international peace and security. Further efforts were needed to strengthen the Organization's capacity in this regard. The European Union welcomed the proposal to establish a rapidly deployable headquarters capability, and the initiative of stand-by arrangements. Increased transparency was of crucial importance to maintain support for peace-keeping operations. The United Nations had a clear role to play in encouraging and facilitating training and other capacity- building to enhance the preparedness of African countries and organizations to participate in conflict prevention on their continent. The European Union supported the proposals of the Secretary-General in this regard.

He said there was a need for more effective coordination of the humanitarian, political and military components of peace-keeping missions. Progress was also needed on a code of conduct for peace-keeping personnel, the strengthening of the DPKO's lessons learned Unit, better management of operations, more effective use of civilian police components, the need to ensure the safety of United Nations personnel, and a strong public information capacity with peace-keeping operations.

FATEH ZEGHIB (Algeria) said the United Nations must abide by the principle of respect for state sovereignty and non-interference in the internal affairs of its Member States as set forth in the Charter. Only by

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observing these principles could peace efforts obtain the consent, support and cooperation of the countries and parties concerned and achieve the desired results.

He said no peace-keeping operations or humanitarian programmes should be permitted to interfere in the internal affairs of any country, or, more specifically, to use force and get embroiled in the conflict. Peaceful settlement of disputes through good offices, mediation and negotiation should be the primary means for the Organization in peace-keeping operations. Negotiation was the only effective way to obtain lasting peace. The use of force sharpened contradictions and caused serious consequences, bringing about long-term damage to peace. Preventive diplomacy and the promotion of economic development could play a positive role in diffusing tensions.

Paying outstanding contributions in full and on time, he continued, should be the first and foremost step in providing the needed resources for peace-keeping. The time was ripe for reviewing the current composition of the Special Committee on Peace-keeping Operations, which should be expanded to reflect the concerns and interests of all troop-contributing countries.

HENRIQUE VALLE (Brazil) said peace-keeping operations should be an impartial, multilateral, mediational presence intervening in a dispute with the consent of the parties and upon their request. The Special Committee could play an important role in rethinking all aspects of peace-keeping operations. The membership of the Special Committee did not reflect the actual universe of troop contributors and many delegations wanted its membership enlarged.

He said the level of outstanding contributions to the financing of peace-keeping operations continued to remain a problem. The reasons centered on the inability and unwillingness of some Member States to pay their dues in full, on time and unconditionally. The best way to provide a sound and lasting solution to the financial situation of the Organization was to observe the principle of equitable taxation with equitable representation.

BAYEDZE DAGOH (Togo) said the United Nations was doing its best to live up to its role as a guarantor of peace. There had been both successes and failures. The failures must prompt the Organization to consider the best way to shoulder its responsibilities. An Agenda for Peace and its supplement contained relevant ideas for future work in preventive diplomacy, peace- keeping and peace-building. It was always better to prevent war than to try to put an end to it. Special attention should be given to rapid deployment and preventive diplomacy.

He said the General Assembly should play a more prominent role in implementing Chapter VI of the Charter which deals with good offices and mediation. Efforts made by Member States to carry out peace-keeping

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operations were enormous. Yet there were still major difficulties including the decrease in offers from Member States of troops and resources for operations. The United Nations must have the appropriate means for action to enable it to promptly and effectively carry out operations.

Togo welcomed proposals to enhance coordination of peace-keeping and humanitarian work, and post-conflict peace-building. Special attention should be given to Liberia, which was one of the forgotten emergencies. More aid for the recovery and rebuilding of this country could make a great contribution to the new peace process. He expressed support for continued and enhanced cooperation between the Organization of African Unity (OAU) and the United Nations, and the recommendations of the Special Committee.

FRANCESCO MEZZALAMA, the inspector of the Joint Inspection Unit (JIU), introduced its report, which he said dealt mainly with coordination of United Nations organizations and agencies involved in complex emergencies where humanitarian and peace-keeping operations were performed simultaneously by the Organization's personnel. That interrelationship was different from traditional humanitarian assistance efforts and required harmonization of the Organization's political, humanitarian, military and logistical endeavours. The report included 11 recommendations to reduce frictions, minimize overlaps and increase the efficiency and effectiveness of the components of operations.

He said some of the recommendations proposed to clarify the roles and activities of different actors at Headquarters and in the field, who were directly or indirectly responsible for implementing Security Council decisions on peace-keeping that had humanitarian implications. Because of that linkage, the report recommended closer interaction with the Council on a regular basis and stresses the importance of preventive diplomacy in complex emergencies. Humanitarian efforts could play a useful role linked to and coordinated with peace-keeping and peace-building, with strict safeguard of their non-political character.

Given the increasing role of non-governmental organizations in complex emergencies, he said the report underlines the need to pay special attention to their involvement in crisis situations and recommends the improvement of their cooperation with other partners, specifically with the Department of Humanitarian Affairs (DHA).

Because of the nature of complex emergencies of complex emergencies, the Secretary-General's special representative, in accordance with his mandate, should be responsible for coordinating the political, military and humanitarian operations. The humanitarian coordinator, the resident coordinator, and the United Nations force commander, as well as the High Commissioner for Human Rights, should all report to the Secretary-General's special representative, without prejudice to their respective mandates and internal proceedings vis-a-vis their headquarters. That way, the channel of communication and chain of command could be clearly followed, he added.

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