UNDER-SECRETARY-GENERAL FOR PEACEKEEPING ADDRESSES FOURTH COMMITTEE, HIGHLIGHTS DEPARTMENT’S PROPOSED STRUCTURE CHANGES

Press Release
GA/SPD/198

UNDER-SECRETARY-GENERAL FOR PEACEKEEPING ADDRESSES FOURTH COMMITTEE, HIGHLIGHTS DEPARTMENT’S PROPOSED STRUCTURE CHANGES

Committee Begins Comprehensive Review of Peacekeeping Operations

The Under-Secretary-General for Peacekeeping Operations, Jean-Marie Guehenno, who assumed his post on 1 October, addressed the Fourth Committee (Special Political and Decolonization) this morning on a wide range of issues, among them, planned structural changes in the Department for Peacekeeping Operations, the problem of understaffing, and the need for transparency with troop-contributing countries and for rapid and effective deployment of peacekeeping forces.

Speaking as the Committee began its comprehensive review of peacekeeping operations, Mr. Guehenno said the appointment of a third Assistant Secretary- General for Peacekeeping Operations, responsible for military and civilian police affairs, was an essential structural change in the Department. The appointment had been proposed to bolster the expanding Department and to give priority to its relations with troop- and police-contributing countries. Also, a restructuring of the Military Division had been proposed, and additional qualitative and quantitative changes were needed.

At present, he continued, roughly 400 Headquarters staff supported 58,000 field personnel. Such understaffing meant that daily emergencies took precedence over needed reform. To remedy that situation, the Secretary-General had requested extra resources on an emergency basis. He said other priorities included strengthening the Civilian Police Unit and enhancing the role of the Civilian Police Adviser.

Other priorities included the transformation of the Lessons Learned Unit into a “change-manager” that would develop mechanisms to translate lessons into peacekeeping practice; the creation of a small Gender Unit to mainstream gender perspectives systematically into peacekeeping operations, and to recruit women candidates for positions all levels; and the creation of a public information unit within the Department.

Another priority, he said, was the need for greater transparency in consultations with troop-contributing countries. It was important that mandates be clear and communicated to troop-contributing countries through the Security

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Council, along with assessments of requirements, at all levels. Such frank communication must continue throughout the life of the operation. Transparent communication between contingents was also important in other issues, such as investigations into misconduct.

He stressed the need for rapid and effective deployment of peacekeeping forces. To date, there had not been much progress in implementing recommendations of the Special Committee on Peacekeeping Operations on developing such a capacity, owing to the lack of resources in the Field Administrative and Logistics Division. The Secretary-General had outlined proposals, including a revitalization of the Standby Arrangements System using on-call lists of military and civilian police officers.

Following his statement, the Under-Secretary-General responded to questions raised by delegations concerning a wide range of issues, including rotation of personnel between Headquarters and the field; training of contingents, selection of Force Commanders and under-representation of staff from developing countries in the Department.

Speaking this morning were the representatives of Jordan (on behalf of the Non-Aligned Movement), Canada, India, Japan, Croatia, Ethiopia, Australia, Egypt, France (on behalf of the European Union), Norway, Zambia, Ghana, Portugal, United Kingdom, Bolivia, New Zealand, United Republic of Tanzania, Kenya, Côte d’Ivoire and Nigeria.

The Fourth Committee will meet again at 4 p.m. today to begin its general exchange of views on the comprehensive review of the whole question of peacekeeping operations in all their aspects.

Fourth Committee - 3 - Press Release GA/SPD/198 19th Meeting (AM) 8 November 2000

Committee Work Programme

The Fourth Committee (Special Political and Decolonization) met this morning to hear a statement by the Under-Secretary-General for Peacekeeping Operations as it began its consideration of the comprehensive review of the whole question of peacekeeping operations in all their aspects.

The Committee had before it identical letters dated 21 August 2000 from the Secretary-General to the President of the General Assembly and the President of the Security Council (document A/55/305-S/2000/809), transmitting the report of the Panel on United Nations Peace Operations, chaired by Lakhdar Brahimi, Under-Secretary-General for Special Assignments in Support of the Secretary- General’s Preventive and Peacemaking Efforts.

The recommendations of the Panel, established by the Secretary-General in March 2000, include: the extensive restructuring of the Department of Peacekeeping Operations; a new information and strategic analysis unit to service all United Nations departments concerned with peace and security; an integrated task force at Headquarters to plan and support each peacekeeping mission from its inception; and more systematic use of information technology.

Many of the proposed changes require political, financial or operational decisions from the United Nations Member States, the report states. For instance, the Panel urges the Security Council not to finalize resolutions authorizing large peacekeeping missions until Member States have pledged the necessary troops and resources; and recommends an increase in funding to strengthen the peacekeeping support staff at United Nations Headquarters.

In the area of doctrine and strategy, the Panel calls for more effective conflict prevention strategies, pointing out that prevention is far preferable for those who would otherwise suffer the consequences of war, and a less costly option for the international community than military action, emergency humanitarian relief, or reconstruction after a war has run its course. It says peacekeepers must be able to defend themselves and their mandate, with robust rules of engagement. And, it urges the Secretariat to draw up a plan for developing better peace-building strategies. Peacekeepers and peace-builders, it says, are inseparable partners, since only a self-sustaining peace offers a ready exit to peacekeeping forces.

The Panel further recommends that the Secretariat tell the Security Council what it needs to know, not what it wants to hear, when formulating or changing mission mandates.

Concerning transitional civil administration, the Panel states that a panel of international legal experts should explore the idea of an interim criminal code, for use in places where the United Nations is given temporary executive powers (as currently in Kosovo and East Timor), pending the re-establishment of local rule of law and law enforcement capacity.

In the matter of time lines, "traditional" United Nations peacekeeping operations (sent to monitor ceasefires and separations of forces after inter-State wars) should be fully deployed within 30 days; more complex peace operations, sent to help end intra-State conflicts, within 90 days.

Concerning personnel, Member States should work together to form coherent, multinational, brigade-sized forces, ready for effective deployment within those time lines; and should each establish a national pool of civilian police officers. The Panel does not call for a standing United Nations army, but says the Secretariat should establish "on-call" lists of about 100 military and 100 police officers and experts, from national armies and police forces, who would be available on seven days' notice to establish a new mission headquarters. Conditions of service for civilian specialists should also be revised so that the United Nations can attract more qualified personnel, and reward good performance with better career prospects.

Regarding speed and efficiency, the Secretary-General should be allowed funds to start planning a mission before the Security Council approves it, so that when approved it can be deployed quickly. Field missions should be given greater freedom to manage their own budgets. Additional ready-made mission "start-up kits" should be maintained at the United Nations Logistics Base in Brindisi, Italy.

In matters of funding for peacekeeping support, the Panel remarks that, after 52 years, it is time to treat peacekeeping as a core activity of the United Nations rather than a temporary responsibility. Headquarters support for it should, therefore, be funded mainly through the regular United Nations budget, instead of the current Support Account which has to be justified year by year, and post by post.

The Committee also had before it the Secretary-General’s report on the implementation of the report of the Panel on United Nations Peace Operations (document A/55/502). Questions covered include actions taken since the issuance of the Panel’s report; proposed action for implementing the Panel’s recommendations; enhancing the effectiveness of key peace and security instruments; and new mechanisms for improving system-wide integration. Other issues covered are enhancing rapid and effective deployment capacities; funding of Headquarters support to peacekeeping operations; proposed restructuring of the Department of Peacekeeping Operations; strengthening other parts of the United Nations system; and information technology and knowledge management.

Regarding the Panel’s recommendation for the strengthening of permanent United Nations capacity to develop peace-building strategies and implement supporting programmes, the Secretary-General notes that a clear division of labour has not yet emerged in the formulation of comprehensive peace-building strategies and their implementation. As a result of that lack of clarity, the Panel implied that there was a need to address the risks of competing demands on limited donor resources, potential duplication of efforts and/or gaps in key areas.

On peacekeeping operations, the Secretary-General notes that while it is within the Secretariat’s responsibility to draft rules of engagement for each operation, these are individually tailored to the mandates adopted by the Security Council. As such, the Council will have a leading role in implementing the Panel’s recommendations. In addition, as pointed out by the Panel, only 32 posts are authorized for military officers in the Department of Peacekeeping Operations, in comparison with more than 30,000 military personnel in the field. An increase has been requested in resources for the Military Division (including for the Training Unit).

With respect to new mechanisms to improve system-wide integration, the Secretary-General proposes to create the Executive Committee on Peace and Security Information and Strategic Analysis Secretariat, effective January 2001. That will be done primarily by consolidating existing resources in the Department of Political Affairs, the Department of Peacekeeping Operations, the Department of Public Information, the Office for the Coordination of Humanitarian Affairs, the Department for Disarmament Affairs, the Office of the United Nations Commissioner for Human Rights, the United Nations High Commissioner for Refugees (UNHCR) and the Department of Economic and Social Affairs.

The report says that the Office of the Special Adviser on Gender Issues/Division for the Advancement of Women will maintain close contacts with the Information and Strategic Analysis Secretariat, which should be headed by a Director reporting to the Under-Secretaries-General for Political Affairs and Peacekeeping Operations, as recommended by the Panel.

Agreeing with the Panel on enhancing rapid deployment capacities, the Secretary-General says that a first step would be to define the meaning of “rapid” and “effective”, recalling that the Secretariat was asked to deploy the United Nations Mission in the Central African Republic (MINURCA) in less than three weeks. Similar time constraints applied to the United Nations Mission in East Timor (UNAMET). Peace processes were often most fragile in the initial phases and operations must be deployed when they could make the greatest contribution. The relevant parts of the Secretariat had been asked to use the time lines proposed by the Panel as the basis for evaluating the capacity of existing systems to provide field missions with the required human, material, financial and information assets.

Regarding the restructuring of the Department of Peacekeeping Operations, the Secretary-General requests the addition of one Assistant Secretary-General as proposed by the Panel. The additional post is a necessary investment to ensure high-level availability, effective management of the Department, shared responsibility and mutual back-up. It will also enable greater and more frequent interaction with field missions, including extended visits and deployment as heads of mission start-up teams. Another request is that the rank of the Civilian Police Adviser be upgraded to the D-2 level and that the Adviser no longer report to the Military Adviser, but rather to the Assistant Secretary-General for Military and Civilian Police Affairs.

The Secretary-General agrees that the Panel’s proposal of a distinct unit responsible for operational planning and support of public information components is warranted. While he does not favour creating new capacities in the Department of Peacekeeping Operations that might otherwise already exist in the United Nations system, there might be certain instances where proximity to the daily decision-making processes overrides the benefits of central support structures providing assistance to the Department through the integrated mission task force mechanism.

Also before the Committee was the resource requirements for the implementation of the report of the Panel on United Nations Peace Operations (document A/55/507), which states that the Department of Peacekeeping Operations would be substantially reinforced and restructured and other departments supporting peace operations would be strengthened.

It states that recommendations of the Panel that are ready for implementation as of January 2001 include: establishment of the Executive Committee on Peace and Security Information and Strategic Analysis Secretariat; strengthening of the Electoral Assistance Division of the Department of Political Affairs; and strengthening of the Office of the United Nations High Commissioner for Human Rights in its ability to implement tasks arising from the Panel’s recommendations.

The report presents the consequential changes in resources that would be required to the programme budget for the biennium 2000-2001 and to the support account for peacekeeping operations for the period 1 July 2000 to 30 June 2001. The change for the regular budget for the biennium 2000-2001 would amount to $7,527, including an increase of 35 posts. The change in the peacekeeping support account for the period 1 July 2000 to 30 June 2001 would amount to $14.678 million and includes an increase of 214 posts.

Proposals in the report would result in ongoing costs in the 2002-2003 of $71.4 million, of which $12 million would relate to the regular budget and $59.4 million to the support account. The proposed additional ongoing requirements for the biennium 2002-2003 for the regular budget are equivalent to 0.47 per cent of current regular budget appropriations. For the support account, they are equivalent to 1.43 per cent of current levels of peacekeeping costs.

Also before the Committee was the report of the Special Committee on Peacekeeping Operations (document A/54/839), which summarizes that body’s general debate on 11, 14 and 15 February, and the work of its open-ended working group.

In the report, the Special Committee stresses the importance of consistently applying the standards for establishing and conducting peacekeeping operations, and the essential need to respect the principles of consent of the parties, impartiality and non-use of force, except in self-defence. It reaffirms that regional arrangements and agencies can make an important contribution to peacekeeping within the appropriate mandate and legal scope. No enforcement action should be taken without Security Council authorization.

According to the report, the Special Committee recognizes the increased role of civilian police components in peacekeeping operations and stresses that they should be adequately reflected in the structures of the Department of Peacekeeping Operations. The Secretariat should urgently develop, in close cooperation with Member States, a comprehensive set of policies on civilian police activities, which should be articulated through the civilian police guidelines.

On the safety and security of United Nations and associated personnel, the Special Committee urges Member States that had not yet done so to become parties to the Convention on the Safety of United Nations and Associated Personnel, and calls for the completion of a general and comprehensive review of security requirements.

Regarding logistics and procurement, the Special Committee stresses the importance of timely, efficient, transparent and cost-effective procurement of goods and services in support of peacekeeping operations. It invites the Secretariat to explore means of enhancing the Organization's logistic readiness, particularly through a broader use of the logistics base in Brindisi, Italy, and reserve stocks.

Expressing concern over delays in reimbursing troop-contributing countries, the Special Committee notes that such delays cause hardship to all troop and equipment contributors, especially the developing countries. All Member States must pay their assessed contributions in full, on time and without conditions, with the permanent Security Council members bearing special responsibility.

Other recommendations contained in the report relate to: consultations between troop contributors and the Security Council; mechanisms for consultations and transparency; selection of personnel; standby arrangements and rapid deployment; status of forces and status of mission agreements; and other practical proposals aimed at enhancing the peacekeeping capacity of the United Nations.

The Committee also had before it the report of the Secretary-General on the implementation of the Special Committee's recommendations (document A/54/670), which states that events of the past year have reaffirmed the central role of United Nations peacekeeping within the international community's wider efforts to advance peace. United Nations peacekeeping activities included the creation of the United Nations Interim Administration Mission in Kosovo (UNMIK) and the United Nations Transitional Administration in East Timor (UNTAET); deployment in the Democratic Republic of the Congo; and a major expansion of the United Nations Mission in Sierra Leone (UNAMSIL).

The report states that the Secretariat is continuing to strengthen coordination with specialized agencies and regional organizations. In the Central African Republic, United Nations efforts towards security, elections and institutional reform were complemented by the efforts of the World Bank and the International Monetary Fund (IMF) to promote economic stabilization and growth. Other examples include the joint assessment mission led by the World Bank in East Timor and the joint approach to donors for East Timor by the World Bank and the United Nations through the Tokyo Conference. There is also close cooperation between UNMIK and the World Bank.

Several operations exemplify partnerships with regional efforts, according to the report. New or expanded United Nations operations in Kosovo, East Timor, Democratic Republic of the Congo and Sierra Leone, together with ongoing operations in Bosnia and Herzegovina, Georgia and Tajikistan, exemplify such partnerships with regional efforts, whether taken through or outside the established institutional framework of a regional organization. These experiences have testified to the continuing primacy of the Security Council.

Also, according to the report, ground-breaking efforts in terms of cooperation with regional arrangements have been undertaken in UNMIK, where the United Nations operation is collaborating with the European Union and with the Organization for Security and Cooperation in Europe (OSCE). Both organizations are working under the authority of the Special Representative of the Secretary- General. This experience may provide useful guidance for other joint efforts with regional organizations in the future.

The report says that the United Nations is also coordinating efforts with the Organization of African Unity (OAU) to establish a regular forum of African and non-African States for strengthening cooperation in various capacity-building areas. Proposals for the terms of reference for such a group were circulated on 19 April 1999, and a number of comments have been received. These arrangements will be finalized in consultation with the OAU, the Group of African States at the United Nations and donor countries.

However, the Secretary-General warns that regardless of the arrangements made within any particular mission, cooperation between the United Nations and regional organizations inevitably poses considerable challenges. These relate, among other things, to the differences between respective mandates and financial and logistical resources, as well as separate channels of communication with Member States. In this regard, the Secretariat has widely circulated a lessons- learned report on cooperation between the United Nations and regional organizations.

Regarding consultations with prospective troop contributors, the Secretary- General states that they start at the earliest stage of the planning process. As the planning advances, troop contributors are informed of the parameters of the operation and personnel requirements. Regular meetings with troop contributors are chaired by the President of the Security Council when a mandate is to be renewed or changed. Reports about particular missions are available to the contributors.

The Secretary-General states that the process of formalizing the new structure of the Department of Peacekeeping Operations is nearing completion. The new division of responsibilities appears to be helpful in responding to current needs, although the rapid increase in workload has proven to be a major challenge to departmental staff.

On the subject of the standby arrangements system, the Secretary-General notes that, as of December 1999, 87 Member States are participating in it -- 32 of which have signed a memorandum of understanding, 11 within the past year. Although discussions are continuing regarding the need to overcome deficiencies in the standby system, contributions from most Member States still have response times of 30 days or more. This can place severe limitations on the capacity to urgently deploy resources.

Following the Special Committee's recommendations, chief administrative officers are regularly informed about changes to United Nations rules and procedures and are consulted with on potential changes. In selecting contributors to missions, the Military Planning Service uses the standby arrangements system database. Similarly, through the use of a well-managed vendor database containing carefully screened companies, the Procurement Division recently started sending bid invitations to all vendors registered for the product category being sought.

Fundamental principles and rules on the observance by United Nations forces of international humanitarian law were finalized and issued on 6 August 1999 as a Secretary-General's bulletin, the report states. The text resulted from discussions between the Secretariat, the Member States and the International Committee of the Red Cross (ICRC). The draft text was circulated to Member States at the end of June 1999. The Office of Legal Affairs and the Department of Peacekeeping Operations then jointly convened a meeting with Member States for a final exchange of views on the text.

Currently, the report states, it is necessary to develop new public information strategies and capacities; fulfil requirements for experienced and skilled staff; and ensure essential technical and material support for public information needs. Closer cooperation with governments and organizations in that regard might include specific standby agreements or service packages for radio and television broadcasting in mission areas, or identifying qualified public information personnel. Contributions to the Trust Fund for Public Information in Peacekeeping Operations would also be welcome.

The Secretary-General states that the Department of Peacekeeping Operations is still in the process of conducting a general and comprehensive review of security matters. Due to the upsurge in peacekeeping, the Department has been obliged to redirect staff involved in these efforts to other pressing needs. Nevertheless, some of the key requirements in enhancing personnel security have been highlighted and -- to the extent that financial and human resources allow -- are being implemented in the new missions. They include the deployment of the appropriate number of security officers, pre-deployment training, and provision of necessary logistical support. Continued strengthening of the Office of the United Nations Security Coordinator would also enhance security.

According to the report, rapid deployment capacity is being strengthened by identifying the staff serving in existing field missions who can be deployed at short notic, and training understudies to assume the duties of the designated staff. However, this has at times imposed an unmanageable burden upon staff at Headquarters, particularly when start-up of more than one mission had to be explored concurrently. The Secretariat has also repeatedly sought to obtain full staffing for the rapidly deployable mission headquarters (RDMHQ), but could not get the necessary support to realize this concept. Two support account positions were approved for the RDMHQ and the additional six posts were to be filled through redeployment within the Secretariat, which proved to be impossible.

With respect to reimbursements for troop costs and contingent-owned equipment, the Secretary-General states that it is United Nations policy to pay all troop-contributing countries at the same time, in order to ensure equal treatment of all governments. The timing of the payments for troop reimbursement and contingent-owned equipment, however, depends upon the receipt of assessed contributions.

According to the report, over the last 12 months, considerable efforts have been made to process the backlog of claims. However, a number of constraints beyond the Secretariat's control contribute to delays in processing the backlog. These include delays in the receipt of essential supporting documents from troop- contributing countries; the cash flow situation in the Special Account for Peacekeeping Activities; and, in a few instances, the need for additional appropriations by the General Assembly. With regard to the payment of compensation for death and disability, only 30 of the 564 claims submitted prior to 19 May 1997 are outstanding.

During the past year, concerted efforts have been made to complete liquidation of missions closed prior to December 1997, and this exercise is expected to be finalized in the current fiscal year. As for the missions closed after January 1998, procedures have been instituted to allow for the preparation of their liquidation well before termination of the mandates. As a result, it has been possible to conduct the liquidation of the United Nations Transitional Administration for Eastern Slavonia, Baranja and Western Sirmium (UNTAES) and the United Nations Preventive Deployment Force (UNPREDEP) within the initial liquidation time frame.

The Committee also had before it a letter dated 12 July 2000 from the Permanent Representative of Namibia to the United Nations addressed to the Secretary-General (document A/55/138-S/2000/693), transmitting the Windhoek Declaration and the Namibia Plan of Action on Mainstreaming a Gender Perspective in Multidimensional Peace Support Operations, adopted at the seminar organized by the Lessons Learned Unit of the Department of Peacekeeping Operations and the Office of the Special Adviser on Gender Issues and Advancement of Women from 29 to 31 May 2000 in Windhoek, Namibia.

Also before the Committee were a letter dated 18 July 2000 from the Permanent Representative of Japan to the United Nations addressed to the Secretary-General (document A/55/161-S/2000/714), transmitting, through its annex, the G-8 Miyazaki Initiatives for Conflict Prevention, adopted by the G-8 Foreign Ministers at their meeting in Miyazaki, Japan, on 13 July 2000. In addition, the Committee had a letter dated 1 August 2000 from the Chargé d'affaires a.i. of the Permanent Mission of Japan to the United Nations addressed to the Secretary- General (document A/55/257-S/2000/766), which transmits the G-8 Communiqué Okinawa 2000, which was adopted at the Kyushu-Okinawa summit meeting held in Okinawa, Japan, from 21 to 23 July 2000, of which the relevant paragraphs were 72 through 81, entitled "Toward a 21st century of great world stability".

Statement by Under-Secretary-General

JEAN-MARIE GUÉHENNO, Under-Secretary-General for Peacekeeping Operations, began by giving tribute to his predecessor, noting that he had assumed the office less than two months ago. He said that he attached great importance to the four major reports that had been produced in the past year. It was only by learning lessons from past operations that future performance could be improved. For that reason, he had been learning from his colleagues at Headquarters and had visited the Missions in Sierra Leone, Kosovo and Bosnia and Herzgovina. Those visits strengthened his resolve to make sure that the courageous men and women in the field received all the support they needed to do their jobs.

To improve peacekeeping operations and their support, the Special Committee had made over 80 explicit recommendations in all areas, he said. In today’s statement, though, he would comment on more general concerns to discuss priorities, as he saw them.

The first of those priorities, he said, was the need for well-conceived and clearly-defined peacekeeping mandates, planned and conducted according to the bedrock principles of the Organization. Peacekeeping was about keeping the peace, not waging wars. But, in some cases, a credible military deterrent was needed, under a unified command and unambiguous mandate, while avoiding the use of peacekeepers as war-fighting forces. In addition, a well-conceived operation should assist a country to make a transition from conflict to sustainable peace and development. In that vein, disarmament, demobilization, and reintegration programmes were essential. Success in those areas required close cooperation between the Department and the other parts of the United Nations system, with lessons taken from past experiences.

Another priority, he said, was the need for greater consultation and transparency with contributing countries. In that area, again, it was important that mandates be clear and communicated to troop-contributing countries through the Security Council, along with assessments of requirements, at all levels. Such frank communication must continue throughout the life of the operation. Dialogue helped maintain trust, when risks were made clear. Transparent communication between contingents was also important, not only concerning developments in the theatres, but on also other issues, such as investigations into misconduct. Such communication would unify command and strengthen the feeling of involvement of all concerned.

The need for effective management capacities, he said, was necessary to improve performance in all areas. To do that, there was, first, a need to strengthen the Department and reform its structure. For that purpose, qualitative as well as quantitative changes needed to be made. At present, roughly 400 Headquarters staff supported 58,000 field personnel. That ratio, less than 1 per cent, was significantly less than both governmental and non-governmental organizations. Such understaffing meant that daily emergencies took precedent over needed reform. To remedy that situation, the Secretary-General had requested extra resources on an emergency basis. Further studies would be undertaken in the coming months to determine the total level of resources needed for the Secretariat to adequately carry out its peacekeeping tasks.

Structural changes that he currently considered essential, included a third Assistant Secretary-General for Military and Civilian Police Affairs, which had been proposed to bolster that expanding area and to give priority to the relations between the Department and troop- and police-contributing States. A significant restructuring of the Military Division had also been proposed, in which senior officers would be designated to specific areas, such as mission planning, force generation and management. Strengthening of the Civilian Police Unit and enhancing the role of the Civilian Police Adviser were also priorities. In addition, the creation of a small civil law advisory unit was needed to provide operational support for those civilian police.

His restructuring priorities, he said, also included the creation of a public information unit within the Department, and the transformation of the Lessons Learned Unit into the change-manager of the Department, which could develop the necessary mechanisms to translate lessons into peacekeeping practice. And, finally, in order to mainstream gender perspectives systematically into peacekeeping operations, he supported the creation of a small gender unit in the Department, to ensure that the gender aspect was tailored to particular peacekeeping operations, taking into account cultural diversity. Efforts would also be made to recruit women candidates for positions at all levels.

Concerning human resources at the Department, he said that there was, both at Headquarters and in the field, an impressive range of experience, but the Department could do more to make the best of it. For a more effective human resources management policy, he considered field experience of great importance, and therefore considered greater rotation between Headquarters and the field a top priority. The field gave a sense of purpose and reminded staff of the centrality of human lives and human hopes in peacekeeping operations. As for senior field personnel, the Secretary-General had already called for a senior appointments group that would assist in selection, training and briefing.

Another priority in the area of human resources, he said, was enhancing security arrangements in the field. Security considerations must be central to the planning of operations and constantly reviewed. Meetings that focused on security would take place in the coming spring, and a study would be submitted to the Special Committee for review. In that area, he also noted that the Secretary- General’s report on the security and safety of peacekeeping personnel would be taken up shortly by the General Assembly.

Obtaining adequate civilian staffing was also important, he said, especially in such specialized areas as public information and civilian police. Measures had already been taken to allow retired police officers to serve in peacekeeping operations, but a comprehensive approach was needed in the whole area. For that reason, the Secretary-General had recommended the creation of a recruitment authority. In the meantime, he had asked the Department to evaluate the effectiveness of such an authority for the Mission in Kosovo, and how it might be delegated to additional missions, while assuring adherence to the existing legislative framework, geographic and gender distribution, and transparency and fairness in the selection process.

He said another priority was the need for rapid and effective deployment of peacekeeping forces. The Special Committee noted that Member States shared responsibility in developing such a capacity, and called for increased contributions to the Standby Arrangements System, a review by the Secretariat of staffing procedures, and other measures. To date, there had not been much progress in implementing such recommendations, because the lack of resources in the Field Administrative and Logistics Division. The Secretary-General had also outlined a series of proposals concerning rapid deployment, which included a revitalization of the Standby Arrangements System using on-call lists of military and civilian police officers. It also included the provision of specialized units for logistics, an enhanced capacity to provide training assistance for troop and police contributors, and the formulation of a comprehensive logistics strategy for consideration by the General Assembly in 2001.

In conclusion, he said that some of the measures to improve the United Nations peacekeeping performance required new resources, others required the more effective use of existing ones and a rearrangement of priorities. Many of the initiatives described would take time, being subject to political decisions. For that reason, it was essential that the rationale for such measures was understood. Beside the operational and technical problems, there was also the problem of political will required from the parties involved in a conflict, as well as from all the members of the Organization.

It was essential to keep in mind the collective responsibility for peacekeeping operations, while at the same time recognizing that the sovereign decision to participate in an operation was the particular commitment of a Member State, he said. Collective responsibility meant a true partnership between all Member States. As part of that, Member States needed to fulfil their commitments in a timely manner. And the Secretariat needed to uphold its commitment to transparency of information. Colleagues in the field deserved full support to meet their difficult challenges. And success in pursuing the cause of peace required a truly collective endeavour.

Questions and Statements by Delegates

ZEID RA’AD ZEID AL-HUSSEIN (Jordan), on behalf of the Non-Aligned Movement, asked about guidelines for the investigation of misconduct by peacekeepers in the field.

Mr. GUÉHENNO said, in response, that in order to protect unity, any decision on repatriation must remain with the Force Commander. However, investigations into cases of misconduct could be conducted both by the United Nations and national authorities, provided there was consultation.

Responding to the same representative regarding rotation of United Nations officials between the field and Headquarters, he said there were certain constraints, as well as different principles to be reconciled. Two of those principles were geographical distribution and competitiveness. Staff who had joined Headquarters through competitive exams did not want to compete with others who had not. It was only fair, however, to recognize experience gained in the field. The issue of rotation was linked with the restructuring of the Department. Extensive field experience would give a unit head credibility when he wanted to make changes. Rotation was a matter of adjusting the rules and adapting to concerns.

On the selection of Force Commanders, he said that, in the case of the United Nations Mission in Ethiopia and Eritrea (UNMEE) and UNAMSIL, the Force Commanders were well known, since they had had experience in previous operations. Their performance was known and there had been no need for interviews.

Asked by the same representative about the status of the rules of engagement, he said mission-specific rules could not be developed in consultation with Member States due to time pressures. Operational material must be prepared very quickly and sometimes there was no time for consultation. That problem could be addressed, but a second reason for non-consultation was the need to insulate the process from political pressure. A third reason concerned the security and safety of mission personnel on the ground.

He added that the Department shared its thinking with Member States, even at an early stage. The sample rules of engagement had been made available to Member States for training purposes and would continue to be made available.

Regarding the status of the bulletin on observance of international humanitarian law, he said it was the Secretary-General’s responsibility to issue it. He had been very careful in preparing it to ensure that its contents were in accordance with existing instruments of international humanitarian law. On non-compliance with status of forces agreements, he said the compendium on non-compliance had now been completed and was being reviewed in the Secretariat for submission to Member States.

Asked why the Lessons Learned Unit had not yet been merged with the Policy Analysis Unit, he said the process was a major transformation. The merger would be an instrument to effect change in the Department and ensure that experiences gained in all parts of the Department were integrated, so that the planning of a mission did not have the problems encountered in the past. A member of the Unit would be seconded to the planning of each new mission to ensure there was no disconnect between studies made in the Unit and the actual planning. The Unit’s studies must be concrete and action-oriented.

Regarding reimbursement of troop-contributing countries, he said the current outstanding amount was high because of administrative arrangements requiring review. Progress had been made with the help of the Office of Internal Oversight Services. In addition, there was insufficient cash flow due to non-payment of assessed contributions, as well as negotiations of memoranda of understanding for contingent-owned equipment.

MICHEL DUVAL (Canada) commended the interim report, particularly its focus on the restructuring of the Department of Peacekeeping Operations and the dialogue with troop-contributing countries.

YASHVARDHAN KUMAR SINHA (India) asked how many peacekeepers there were in the field.

Mr. GUÉHENNO replied that there would be an in-depth study on management issues of the Department, which would be essential in defining staffing levels. There were 404 staff at Headquarters, with 55 on the regular budget and the rest on the support account. Figures released every month comprised only military and police personnel. Civilians deployed in the field resulted in the figure mentioned in the statement.

Asked to justify the upgrading of the post of Civilian Police Adviser, he told the delegate that he had looked into the work of the Civilian Police Unit, including such monitoring function as its role in the United Nations Mission in Bosnia and Herzegovina (UNMIBH). The interaction between Civilian Police, the judiciary and other sectors was extremely sensitive, requiring a very senior person with great experience and breadth of authority to deal with such matters. He should also be able to brief Member States.

TAKAHISA KAWAKAMI (Japan) said he had taken note of the priorities listed, and concurred on the need to strengthen the Office of the Under-Secretary-General, as well as to transform the Lessons Learned Unit and Policy Analysis Unit into a Doctrine and Best Practices Unit. He also agreed there was need for a third Assistant Secretary-General.

JELENA GRCIC POLIC (Croatia) expressed disappointment that none of the previous speakers had commended the Under-Secretary-General on the formation of a Gender Unit in the Department of Peacekeeping Operations.

BERHANEMESKEL NEGA (Ethiopia) said that, as a traditional troop-contributing country and host to a major United Nations peacekeeping mission, his country attached great importance to peacekeeping operations. While consultations between the Department and troop contributors was very important, it was essential to hold consultations with the various departments of the United Nations and host countries.

Mr. GUÉHENNO, responding to his question on cooperation between the United Nations and the Organization of African Unity with regard to UNMEE, said the Department would welcome an exchange of personnel between the secretariats of the two organizations, but it would be difficult at the current stage, due to insufficient staff.

RODERICK SMITH (Australia) agreed with many of the priorities listed by the Under-Secretary-General, particularly the restructuring of the Department, enhancing rapid deployment and the need for full and timely payment of assessed contributions by Member States.

HOSSAM ZAKI (Egypt) stressed the need for the Military Adviser to have direct contact with the Secretary-General. It was necessary for the Adviser to be able to address military questions in a frank, clear manner without political issues coming into play. There was also a need for an overall review of the provisions for drawing up memoranda of understanding regarding contingent-owned equipment and those relating to troop-contributing countries.

Mr. GUÉHENNO said, in response, that the Military Adviser would continue to provide advice directly to the Under-Secretary-General and to the Secretary- General in a frank, professional manner regarding military situations. The appointment of an additional Assistant Secretary-General was not aimed at second- guessing his advice. Regarding the memoranda of understanding and contingent- owned equipment, he said the technical aspects were being studied.

JEAN-CLAUDE BRUNET (France), on behalf of the European Union, said it was increasingly clear that the chronic understaffing in the Department of Peacekeeping Operations could not continue, if the Department was to respond to the Special Committee’s recommendations.

KNUT TORAASEN (Norway) associated himself with the representative of Croatia’s statement on gender. He also asked about the implications of HIV/AIDS in the field, and how the Department was following up on that issue.

Mr. GUÉHENNO replied that peacekeeping operations could be used to promote awareness of HIV/AIDS. That was one positive side to the issue.

JOHN MUSONDA (Zambia) asked whether the post of Civilian Police Adviser was being equated with that of Military Adviser. Why was the Military Adviser ranked lower than a Force Commander?

Mr. GUÉHENNO replied that the Military Adviser’s rank had been a D-2 position for years. Force Commanders in the field could be of varying ranks, depending on whether they were two-star or three-star generals.

Asked why an Assistant Secretary-General for Military and Civilian Police Affairs was required and why he must be a civilian, he told the delegate that it was a general principle that the military was accountable to civilian control. It was the same in any ministry of defence.

Regarding non-representation in the Department of people from the developing world, he said the Secretariat always tried to ensure geographical balance. That issue would be examined as appointments were made.

YAW ODEI OSEI (Ghana) said that Jordan had adequately covered the issues of Ghana’s concern as a troop-contributing country. He wanted to highlight, though, the importance of the disarmament, demobilization, and reintegration programmes. The UNAMSIL demonstrated that, without such programmes, ex-soldiers are potentially a threat to the peace process and security.

Mr. GUÉHENNO agreed that long-term solutions did depend on the success of such programmes.

FERNANDO ANDRESEN GUIMARAES (Portugal) agreed that the Secretariat should tell the Council what it needed to know, not what it wanted to hear. How could that be better accomplished?

Mr. GUÉHENNO said that there was a duty to confront the Security Council with its responsibilities and to make sure that requirements and contributions were accounted for, along with the political will to address the challenge. The proposed two-staged resolutions -- a framework resolution, and then another resolution adopted when the resources were actually secured -- would clarify things. There were no general answers, though. Each situation needed to be addressed as clearly and bluntly as possible, which was his style in any case.

MATTHEW TAYLOR (United Kingdom) supported the comments of the European Union made by France. It was true that Member States needed to provide support that would allow the job to be done properly. If adequate support were given, however, the highest standards would have to be met. He welcomed the frankness of today’s discussion, and asked for comments on the bulletin on humanitarian law, training, the use of the word “doctrine” as related to the Lessons Learned Unit, and the in- depth study of peacekeeping operations.

Mr. GUÉHENNO said that it was a duty of the Secretary-General to issue the bulletin on aspects of humanitarian law derived from international treaties. If training were performed on the military side of an operation, the Department would be in a much better position to support the various contingents. The word “doctrine,” in relationship to the Lessons Learned Unit, meant guideline principles that did not always have to be redefined. Finally, the in-depth study of peacekeeping operations should be conducted by an external unit, for reasons that included objectivity.

ALBERTO SALAMANCA (Bolivia) commented that training was essential for civilians.

Mr. GUÉHENNO said that the question of training, including that of civilians, was important because of the range of competencies required to make operations effective. Some of the talents needed were developed in the field and that was why there was also a career management angle to the matter.

JACK STEER (New Zealand) agreed with the general thrust of the mid-term report; its changes seemed to be a sound basis for strengthening the Department. He was also happy to hear that the Lessons Learned Unit would be enhanced and that gender mainstreaming was supported. He paid tribute to the personnel of the Department.

M. MANGACHI (United Republic of Tanzania) said that he was concerned about coordination and harmonization of the training programmes. He was interested in creating reserves of people who knew the requirements of peacekeeping operations, in a way that allowed every country to participate on an equitable basis.

Mr. GUÉHENNO said that training of peacekeeping forces would never be done by the Secretariat because of the resources required. What the Secretariat must do was to make sure that all training was compatible and coordinated, and that depended on staffing and resources, especially if texts were to be made available in many languages.

HAGGAI OLANG-DULO (Kenya) said that, in relation to resources expected from troop-contributing countries, there were concerns over the wet lease arrangement, concerns echoed by the Security Council mission to Sierra Leone.

Mr. GUEHENNO said that he knew the wet lease arrangement had advantages and disadvantages, but at the moment he did not know enough about the matter to comment further. He would pursue the matter, however.

BERNARD TANOH-BOUTCHOUÉ (Côte d’Ivoire) said he was impressed by the frankness of the briefing, particularly regarding the lack of political will, which was the crux of the matter. The desperate appeal by the Secretary-General for troops for Sierra Leone was met with excuses. If the field forces were lacking, everything done at Headquarters was futile. How could it be assured that all countries would contribute to field operations?

Mr. GUÉHENNO agreed with the point made and said that the means to act effectively was essential. Solidarity was needed for that to be accomplished.

HASSAN ISHAYA ISAH (Nigeria) said, as a major troop contributor, Nigeria looked forward to the implementation of plans for the support of field operations. He asked what the Secretariat was doing to make the results of boards of inquiry available to Member States, as the need for transparency demanded, especially regarding the deaths of peacekeepers and other issues in Sierra Leone.

Mr. GUÉHENNO said that the study on the May incidents in Sierra Leone had not yet been completed. When it was, it would be shared with Nigeria, as those studies, though internal, were always shared with Member States that were involved.

That being the final question, Mr. Guéhenno thanked the delegates for their participation and hoped that such frank discussions would continue on a regular basis during his tenure.

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