Special Committee on

Peacekeeping Operations

195^th & 196^th Meetings (AM & PM)

SURGE IN DEMAND CALLS FOR MORE SYSTEMATIC RESPONSE, UNDER-SECRETARY-GENERAL

TELLS SPECIAL COMMITTEE ON PEACEKEEPING OPERATIONS

 

Beginning 2007 Session, Delegates Discuss

Secretary-General’s Proposal to ‘Realign’, Restructure Department

No matter how innovative the response to the recent surge in demand for United Nations peacekeeping, or how capable the responding individuals, the present challenges facing United Nations peacekeeping required a more systematic, structural approach, Jean-Marie Guéhenno, Under-Secretary-General for Peacekeeping Operations, told the Special Committee on Peacekeeping today, as it opened its 2007 session.

With the Special Committee poised to discuss, in the coming three weeks, Secretary-General Ban Ki-moon’s proposal to establish two specialized but tightly integrated departments to manage the consolidation of responsibility, authority and resources for United Nations peacekeeping operations, Mr. Guéhenno urged delegates to keep uppermost in their minds the ultimate goal: to enable men, women and children around the world to emerge from the scourge of war.  “The responsibilities that we bear to millions of people around the world do not afford the luxury of time or trial and error in our undertakings.”

“It is on United Nations peacekeeping adaptability that we must now build,” he stressed, adding that the capacity for evolution must be turned into a vehicle for creating a stronger, more professional and more effective United Nations peacekeeping.  That objective had led to the introduction last year of an ambitious reform agenda, “Peace Operations 2010”, centred on five main areas: personnel, doctrine, partnerships, resources and organization.  Many of the new initiatives proposed in the Secretary-General’s report were part of that reform agenda to strengthen the Organization’s capacity to mount and sustain peace operations in a professional, effective and accountable way.

As last year drew to a close, nearly 100,000 men and women were deployed in 18 United Nations peace operations worldwide, of whom 82,000 were troops, police and military observers provided by contributing countries, he said.  That unprecedented level of United Nations peacekeeping activity was set to increase further in 2007, with the completion of deployments currently under way in Lebanon and Timor-Leste, as was the prospect of new peace operations, whether peacekeeping missions or special political missions.

Morocco’s representative, speaking on behalf of the Non-Aligned Movement, said the Movement had contributed more than 80 per cent of the troops for United Nations peacekeeping, and stressed the importance for the Department of Peacekeeping Operations of coordination with the troop-contributing countries.  The Non-Aligned Movement was ready to engage in in-depth analysis of the possible impact of the proposed structural changes, bearing in mind the importance of a unified mission command and the need for coherence in policy and strategy, as well as for clear command structures in the field and up through to Headquarters.

Germany’s delegate, speaking for the European Union, recommended the development of a periodic risk analysis mechanism that would include benchmarks to determine security levels and so ensure the safety and security of peacekeeping personnel.  There was also a need to strengthen the capacities of the Situation Centre in the Department of Peacekeeping Operations, which could be facilitated by the establishment of a strategic analysis cell at Headquarters, as well as an urgent necessity to address capacity shortfalls in the Department’s Military Division and to enhance planning capacities on a sustained basis.

Japan’s representative, noting that his country contributed about one fifth of the entire peacekeeping budget, said it would remain engaged in establishing, expanding and terminating peacekeeping missions.  The Secretariat needed to improve its accountability and use the resources contributed by Member States more effectively.  There remained the challenge of securing highly qualified personnel and training troops appropriately, including by addressing sexual exploitation and abuse.  Reported severe understaffing involving civilians in the field was another concern, as was the so far uncorrected imbalance in their geographical representation.  As for the proposed restructuring of the Department of Peacekeeping Operations, Japan agreed that management functions should be strengthened.

The representative of Bangladesh stressed that mission leadership should reflect the composition of its troops, while troop representation should be reflected in the Department of Peacekeeping Operations itself.  Bangladesh paid homage to the “martyrs” who had lost their lives while keeping the peace around the world, including 80 of its own nationals.  Timely reimbursement of troop contributors was also vital and Member States were urged to fulfil their obligations by paying their assessed contributions to the Organization in full, on time and without preconditions.

Prior to commencing its general debate, the Special Committee adopted its agenda and tentative work programme, and constituted its Bureau.  Aminu Bashir Wali of Nigeria was elected Chairman, and the following were elected Vice-Chairpersons:  Diego Limeres ( Argentina), Henri-Paul Normandin ( Canada), Akio Miyajima ( Japan) and Beata Peksa-Krawiec ( Poland).  Amr El-Sherbini ( Egypt) was elected Rapporteur.

Also addressing the Special Committee were representatives of Nigeria, Australia (on behalf of Canada and New Zealand), Turkey, Peru, Guatemala, Republic of Korea and Switzerland.

The Special Committee on Peacekeeping will meet again at 10 a.m. tomorrow, Tuesday 27 February, to continue its general debate.

Background

The Special Committee on Peacekeeping Operations opened its 2007 annual session this morning, during which it would, in accordance with General Assembly resolution 60/263, continue its comprehensive review of the whole question of peacekeeping operations in all their aspects and review implementation of its previous proposals.  It would also consider any new proposals to enhance United Nations capacity to fulfil its responsibilities in that regard.

Among the key documents before the Special Committee was the Secretary-General’s report “Implementation of the recommendations of the Special Committee on Peacekeeping Operations” (document A/61/668), in which he outlines issues and challenges in the year ahead, particularly in relation to the most recent surge in demand for United Nations peacekeeping and the strengthening of the Organization’s capacity to respond.  United Nations peace and security operations will be strengthened through realignment of peacekeeping headquarters to promote more efficient and accountable management, enhanced integration and capacities, coherence with peacekeeping partners and timely and effective drawdown of United Nations peacekeeping operations.  A supplementary matrix details the Secretariat’s progress in implementing each recommendation made by the Special Committee at its 2006 substantive and resumed sessions (document A/61/668/Add.1).

For some years, the Special Committee has recognized the sustained surge in United Nations peacekeeping and the need to consider how to address that demand adequately, the report states.  The Secretariat’s agenda for reform, “Peace Operations 2010”, identifies five priority areas for attention -- partnerships, doctrine, personnel, organization and resources -- and proposes to take the agenda’s implementation forward over the next five years.  The reform agenda successfully captures those areas of peacekeeping where further improvements are needed and the relationship linking safety, capacity, efficiency and accountability.  Nevertheless, immediate action is required in some areas to cope with the current peacekeeping load.

According to the report, the complexity and cope of today’s challenges demand three priorities: to structure and increase the capacity of Headquarters to plan, manage and oversee United Nations peacekeeping effectively and accountably; to make further gains in integration and coherence across the system and with non-United Nations partners, so as to increase efficiency and targeted support to post-conflict environments; and how to plan United Nations peacekeeping missions so they can be organized to downsize and transition in a timely and sustainable way.  A large, field-based organization relies heavily on coherent and clearly articulated structures, management systems and work processes to mount, sustain and oversee multiple complex operations.

The report goes on to state that the Secretary-General intends to enhance the Organization’s capacity for peace and security operations by “realigning” the Department of Peacekeeping Operations to create a Department of Peace Operations and a Department of Field Support.  The first would have responsibility to plan, direct, manage and provide political guidance to all peacekeeping operations and other field operations falling under the purview of the Department of Peacekeeping Operations, and the other would lead the integrated planning process to ensure that all components of mission planning –- policy, support, military, police and civilian elements -– work together to provide efficient and coherent support to the field and an identifiable, accountable interlocutor for Member States, as well as United Nations and non-United Nations partners.

In addition, the report explains further, the proposed Department of Field Support would provide support to United Nations field operations, including personnel, finance, procurement, logistics, communications, information technology and other administrative and general management issues, including conduct and discipline.  It would also be a service provider for other components of the Secretariat with a field presence, such as the Department of Political Affairs, in the case of special political missions.

The report states that, to strengthen the efficiency and coherence of support provided to the field and ensure effective oversight, existing Headquarters support capacities related to field operations would be consolidated and assigned to the Department of Field Support.  The realignment of Headquarters offers the potential to improve the speed and efficiency with which support is provided to the thousands of men and women in the field.  The initiative is designed to meet the sustained demand for United Nations peacekeeping more effectively, efficiently and accountably.

Other documents before the Special Committee include a letter dated 25 May 2006 from the Secretary-General to the General Assembly President, annexed to which is a draft United Nations policy statement and a draft United Nations comprehensive strategy on assistance and support to victims of sexual exploitation and abuse by United Nations staff or related personnel (document A/60/877); and a note by the Secretary-General on making the standards contained in his bulletin on special measures for protection from sexual exploitation and sexual abuse (document ST/SGB/2003/13) binding on contingent members and standardizing the norms of conduct so they are applicable to all categories of peacekeeping personnel (document A/61/645).

Statements

JEAN-MARIE GUÉHENNO, Under-Secretary-General for Peacekeeping Operations, drew attention to the increased level of interaction between the Department of Peacekeeping Operations and the Special Committee, saying it helped create a fruitful environment for exchange and review of the challenges facing United Nations peacekeeping and how best to address them.  Everyone shared a commitment to the cause, as well as a practical concern to ensure the success of the missions and the safety of the personnel.  Everyone also recognized that achieving those objectives required constantly adapting to the dynamic environment that characterized United Nations peacekeeping.

He said the shared commitment had been strongly in evidence last week during informal consultations on the Secretary-General’s proposals to strengthen the Organization’s capacity to manage and sustain United Nations peace operations.  There had also been a shared analysis of the enormity of the current challenge.  The figures spoke for themselves: the 100,000 United Nations peacekeepers deployed around the world today was the highest number in history, with the imminent possibility of significant further growth; 114 troop- and police-contributing countries had made that possible, participating in United Nations peacekeeping through individually negotiated arrangements and frameworks; the annual peacekeeping budget had more than doubled in the past five years, now standing at $5.7 billion –- a sum larger than the gross national product of many of the countries in which the United Nations worked.  Very few would have anticipated the level of increase in peacekeeping and the speed with which it had taken place over the past five years.

Delegations of the Special Committee had a particular appreciation of the strain that increase had placed on systems and personnel in the field, as well as on Headquarters, he said.  That strain had been obscured, in part, because those concerned had managed to avoid a serious crisis in peacekeeping.  Some notable achievements had been recorded in 2006, including the successful organization of elections in the Democratic Republic of the Congo and Haiti; the efficient closure of the Mission in Burundi; the start of a new phase of transition in Kosovo, including the drawdown of the Mission there; successful rapid deployments in Lebanon and Timor-Leste; and the raising to almost full strength of all the missions in Africa.

He said the ability to manage the extraordinary demands routinely faced had been largely a consequence of the dedication and efforts of United Nations peacekeepers in the field and at Headquarters, and the adaptability of United Nations peacekeeping.  Large multilateral organizations were often criticized for being rigid and static in their approach and processes, but United Nations peacekeeping was constantly evolving and developing in response to external events, a unique flexibility that had been particularly evident in the past year.

In Darfur for example, new arrangements to support the African Union Mission in the Sudan (AMIS) had been agreed, he said.  The European Union Force (EUFOR) had been deployed in the Democratic Republic of the Congo to assist United Nations and national authorities by providing additional deterrent capability during the election period, in a new form of United Nations-European Union cooperation that had become a substantial operational and strategic partnership.  Regarding the United Nations mission in Lebanon, a new mechanism -- the Strategic Military Cell -- was being tested as a means to provide additional military strategic guidance capacity to United Nations Headquarters.

In addition, he said, Headquarters staff and personnel from other missions had been deployed on short-term loan to Timor-Leste, Lebanon and Nepal and similar measures were now being undertaken for Chad, to facilitate rapid start-up of new missions.  In Haiti, an ambitious operation had been set in motion to tackle the urban violence and armed gangs that were the greatest obstacle to that country’s peaceful development.  In Liberia, a joint operational initiative between the United Nations Mission in Liberia (UNMIL) and the World Bank had resulted in the creation of a $5 million road reconstruction project, which provided employment to local communities.

He said the capacity for innovation had been a lifeline for United Nations peacekeeping in a period of sustained high demand.  That had involved new arrangements and, in many cases, new partnerships.  Some of those adaptations were specific to the political or operational realities of a particular context, while others represented new ways of working, which might be incorporated into future operations.  Adaptability offered a new way of learning and, thus, strengthening United Nations peacekeeping.  The capacity for evolution must be turned into a vehicle for creating a stronger, more professional and more effective United Nations peacekeeping, even in a period of huge operational demands.  No matter how capable the individuals and how innovative the response in particular contexts over the past years of surge, the present demands required a more systematic, structural response.

It was that consideration that had led to the introduction last year of an ambitious reform agenda, Peace Operations 2010, centred on five priority areas of attention, he said.  They were personnel, doctrine, partnerships, resources and organization.  Many of the new initiatives proposed in the Secretary-General’s report were part of that reform agenda to strengthen the Organization’s capacity to mount and sustain peace operations in a professional, effective and accountable way.

The core of the Secretary-General’s proposals was the consolidation of responsibility, authority and resources for all aspects of the planning and conduct of peacekeeping and related field operations, he said.  To manage the expanded span of activities that would involve, the Secretary-General proposed the establishment of two specialized but tightly integrated departments to manage that task: the Department of Peace Operations and the Department of Field Support.  Those proposals had been discussed extensively over the past month and detailed aspects of their effective implementation would be considered in the coming weeks.  The continued engagement of Member States was important, given the variety of perspectives and expertise.

Devoting some time to ways to advance the priorities of Peace Operations 2010 and how the Secretary-General’s proposals might contribute to that ongoing reform agenda, he said a clearer delineation of functions and lines of responsibility could help ongoing efforts to structure the Department of Peacekeeping Operations in a way that benefited performance, efficiency and accountability both at Headquarters and in the field.  The integrated operational team concept proposed in Peace Operations 2010 would be the core vehicle for the planning and conduct of all peace operations and the means of bringing together the Peace Operations and Field Support departments at all levels.  That would also reinforce efforts to put in place integrated mission planning processes to guide integrated teams, and an integrated mission planning cell expressly for that purpose was being proposed for the Department of Peace Operations.  Mission structure in the field would be further integrated through a strengthened chain of command under the authority of the Head of the mission.

He said the priority of doctrine must also stay uppermost in the restructuring process.  A doctrine of United Nations peacekeeping should ensure that, in the face of diverse operational environments, personnel and mandates, field activities should be guided by a coherent body of principles and procedures to enhance safety and effectiveness.  Under a new organizational arrangement at Headquarters, the need for doctrine became even more crucial.  Common policies, standard operating procedures and guidance would be the basis for enabling effective day-to-day cooperation by the two proposed departments.

The objectives established in the area of personnel could be assisted by the consolidation of authority, responsibility and resources for all field personnel in the Department of Field Support, he said.  That consolidation would not only improve the quality and responsiveness of direction and support from Headquarters to the field, it would also enable the strengthening of oversight and monitoring of all aspects of human resources management in the field.  A dedicated Field Support department would also enable the prioritizing of recruitment and outreach, so as to ensure that personnel appointments reflected the gender balance and geographical diversity to which everyone was committed.  Also, a consolidated field personnel capacity would assist in swiftly taking forward implementation of the proposal to establish a civilian cadre of peacekeepers, should Member States support that vital new initiative.

He also emphasized the critical importance of partnership, as well as the crucial need to acknowledge the vital operational needs that demanded urgent attention and resources.  Everyone agreed that managing current tasks and potentially taking on new ones in 2007 urgently required the reinforcement of planning, management and operational capacities across the span of peacekeeping.  It was to be hoped that the proposals to strengthen Headquarters capacity to manage and sustain peace operations contributed to, rather than distracted from, comprehensive and sustained engagement on that issue.  One area requiring substantial reinforcement and strengthening was military capacities.  Experimental initiatives, such as the current Strategic Military Cell, might be a valuable additional complement to the military component.

The police component must also be urgently reinforced, he said, noting that police deployments had increased by 30 per cent in 2006 alone, and proposing the reinforcement of the Police Division at Headquarters and, in parallel, the further expansion of the Standing Police Capacity.  It was essential to remain responsive to needs on the ground and to adapt planning and timeline assumptions to meet them accordingly.  In so doing, there was a chance to make efficiency gains by capitalizing on work to date and incorporating lessons in real time as plans moved ahead.  The restructuring of Headquarters was providing an opportunity to address one of the recommendations outstanding from the “Brahimi report”, namely to develop a holistic approach to the rule of law and incorporating all its aspects within a coherent framework –- police, judiciary and corrections.

An integrated approach to rule of law reform, however, rested on several preconditions, he said.  First, it required a basic level of security, to which United Nations military components and specialized functions, such as the Mine Action Service, contributed substantially.  Second, it required the disarmament and demobilization of former combatants.  To date, United Nations peacekeeping had not developed a coordinated approach to security sector reform.  In response to the Special Committee’s recommendation last year, a process had been initiated with United Nations partners, which had resulted in an agreement to create a “one-stop shop” at United Nations Headquarters to provide peacekeeping operations and other field operations with strategic policies and guidance, as well as specialist technical advice and information.  The support unit would be located in the Department of Peace Operations and serve as a resource for the entire United Nations system.

He concluded by reminding delegations that the death of peacekeepers was one of the strongest and saddest reminders of the responsibility to ensure that United Nations personnel received the direction, support and resources they needed to carry out the tasks assigned to them by Member States.  In 2006, 98 United Nations peacekeepers had died in the field and in 2007, there had been four fatalities to date, one of them the result of a malicious act.  The commitment and sacrifice of individual peacekeeper would hopefully spur collective engagement to respond to the demand for United Nations peacekeeping and strengthen it for the future.

Newly elected Special Committee Chairman AMINU BASHIR WALI (Nigeria), speaking in his national capacity and associating himself with the Non-Aligned Movement, said concern over the challenges posed by the continuous surge in peacekeeping in recent years should not weaken Member States’ commitment to peace and security in the world.  Nigeria subscribed fully to the principles of the Peace Operations 2010 reform agenda.

Nevertheless, bearing in mind the increasingly multidimensional nature of peacekeeping, he said the Special Committee should not limit its discussions to the five priority areas of partnerships, doctrine, personnel, organization and resources, but should also address other issues of common interest to Member States.  On the proposed realignment of the Department of Peacekeeping Operations, Nigeria supported the Secretary-General’s efforts to enhance its operational coherence, efficiency and effectiveness.  However, a holistic in-depth examination of the proposal by the Special Committee would not only enrich it, but also increase the trust and confidence of Member States in that bold initiative.

He went on to condemn in the strongest terms the kidnapping and killing of peacekeepers in the Democratic Republic of the Congo and Lebanon, saying that the perpetrators should not be allowed to escape the wrath of international law, including the International Criminal Court.  In that connection, there was a need for an enhanced consultation mechanism between the Security Council, troop contributors and the Secretariat.  Although there had been a noticeable decrease in the number of fatalities, which had stood at 96 in 2006, compared with 122 in 2005, the Secretariat should undertake a comprehensive analysis of the factors and circumstances contributing to all types of peacekeeper fatalities in the field.

The study should also provide a comprehensive assessment of how technical monitoring and surveillance could contribute to the safety and security of personnel, he said.  While recognizing the progress achieved through the establishment of joint operation centres and joint mission analysis centres in the field, it was a matter of concern that joint mission analysis cells had not been fully implemented.  Other methods of gathering intelligence should also be explored.

He said the deployment of resident conduct and discipline teams in 8 of the existing 18 field missions was a step in the right direction.  The Conduct and Discipline Team Unit had performed commendably and it should be strengthened, so that its impact could be felt in all the missions.  Nigeria welcomed the reports of the group of legal experts to be tabled before the Special Committee and looked forward to the resumption of discussions on the revised draft model memorandum of understanding between the United Nations and troop-contributing countries, as well as the draft comprehensive strategy on assistance and support to victims of sexual exploitation and abuse.  Unnecessary delay in achieving an early and amicable consensus on those important documents might have a negative effect on the credibility of United Nations peacekeeping.

Noting the progress achieved in implementing the zero-tolerance policy regarding sexual exploitation and abuse by peacekeeping personnel, he said his country had already taken steps to ensure that, through intensive training, its troops and police personnel were duly sensitized to it.  However, there were unjustifiable delays in investigating allegations of sexual exploitation and abuse.  Nigeria recommended that early action be taken to strengthen and adequately fund the Office of Internal Oversight Services (OIOS), whose duty it was to handle cases of that nature.

Stressing that an ounce of prevention was worth a pound of intervention, he said the timely identification of causes of conflict and the emplacement of preventive measures would reduce the numbers and costs of peacekeeping.  It was incumbent upon all Member States to coordinate efforts and agree on realistic measures that would increasingly make recourse to United Nations peacekeeping less frequent.  It was also necessary to support and enhance the capacity of regional institutions as a complement to United Nations peacekeeping functions.  Nigeria supported the renewed United Nations-African Union partnership cooperation.

On the related issue of disarmament, demobilization and reintegration, he said early planning and coordination, along with sustained funding, were key elements of effective programmes and international financial institutions were urged to provide “a long-term Marshall Plan” to boost them.  The need for the Department of Peacekeeping Operations and the Peacebuilding Support Office to work in tandem on disarmament, demobilization and reintegration, as well as security sector reform programmes, could hardly be overemphasized.

THOMAS MATUSSEK (Germany), speaking on behalf of the European Union, welcomed the Secretary-General’s intention to carry out a comprehensive review of the Department of Peacekeeping Operations and his vision of how the United Nations should best be organized to respond to the needs of today’s peacekeeping.  That vision included an initiative to achieve a more efficient structure and to adapt the relevant departments accordingly, taking into account the need to preserve a clear chain of command and control.  It was crucial that the reform process be completed within a reasonable time frame.  While undue haste should be avoided, it was crucial to sustain the momentum, so as not to put the effectiveness of United Nations peacekeeping at risk.

It was also necessary to focus on important operational elements that could make a difference in the field, he said, adding that he looked forward to the further development of suggestions in that regard contained in the Peace Operations 2010 reform agenda.  During the current session, the European Union intended to focus on five key priority areas for peacekeeping: enhancing the Organization’s operational capacity; strengthening the Department of Peacekeeping Operations; safety and security; peacebuilding; and cooperation with regional organizations.

Welcoming the Secretariat’s approach of developing the concept of enhanced rapidly deployable capabilities, he said the European Union looked forward to an intensified dialogue with the United Nations with a view to maximizing the possibility of employing existing high-readiness forces through strategic partnerships and other means of force generation, in appropriate circumstances.  The European Union also strongly supported further development of the Standing Police Capacity and requested the Department of Peacekeeping Operations, in consultation with troop contributors, to conduct a comprehensive review of the concept of civilian observers, in order to complement Member States’ abilities to provide personnel in addition to military observers and police.

He went on to say that important initiatives currently under way included the organizational strand of the 2010 reform agenda, the recently completed Office of Internal Oversight Services (OIOS) report on the structure of the Department of Peacekeeping Operations and, most recently, the Secretary-General’s proposals for restructuring the Department.  In taking those initiatives forward, it was important that the Secretariat continue to brief, consult and engage with Member States on an ongoing basis.  The European Union supported fully the Secretary-General’s call to address urgently the capacity shortfalls within the Department of Peacekeeping Operations’ Military Division.  However, that would not be sufficient in itself, as it was also necessary to enhance planning capacities on a sustained basis.

It was necessary also to take into account the lessons learned from the United Nations Interim Force in Lebanon’s (UNIFIL) Strategic Military Cell, as well as the recommendations of the OIOS audit of the Department of Peacekeeping Operations and important innovations in the command and control of field missions, he said.  The European Union noted with great interest the Secretary-General’s intention to establish a strategic planning capacity at Headquarters and looked forward to learning more about that step.  It also acknowledged that the development and codification of the United Nations capstone doctrine, due for completion in 2007, was an important step forward, and welcomed the initiative to implement a comprehensive and integrated approach to missions planning.  But the European Unionwas concerned that the integrated mission planning process had, so far, largely not been taken into account in mission planning.

Turning to safety and security, he said that, notwithstanding the positive developments, a mechanism of effective periodic risk analysis, including benchmarks to determine security levels, must be developed and implemented.  Such analysis would be conducted prior to establishing a mission and at every stage of the operation.  Also key was the need to intensify dialogue with troop-contributing countries, particularly after any relevant incidents in the field.  To facilitate that, the European Union recommended either strengthening the capacities of the Situation Centre or establishing a strategic analysis cell at Headquarters.   Member States and the Secretariat must make greater efforts to address an alarmingly high number of deaths from illness among peacekeepers.

The European Union also reiterated its calls for the speedy development of a framework for coordination among the Department of Peacekeeping Operations, other relevant departments and agencies, and the Peacebuilding Support Office, he said.  Operations must concentrate on their core tasks, and exit strategies must be defined from the outset of the planning process.  The European Union supported all efforts effectively to link peacekeeping with a broad peacebuilding strategy.  Disarmament, demobilization and reintegration programmes, closely synchronized with assistance for security sector reform, had become indispensable pillars of peacebuilding.  The European Union also strongly supported the establishment of the Rule of Law Coordination and Resource Group and its supporting secretariat.

He concluded by stressing the need to broaden partnerships with regional organizations in such areas as rapid deployment, shared doctrine, planning expertise and training.  Establishing a framework to make such practical cooperation operational would do much to enhance the efficiency and effectiveness of international peacekeeping.  The experience of supporting the African Union Mission in Darfur and the United Nations Organization Mission in the Democratic Republic of the Congo (MONUC) during the recent elections had highlighted the requirement for replacing ad hoc arrangements with effective coordination mechanisms between the United Nations and regional organizations, and also with donors and other partners.

SOUAD EL ALAOUI (Morocco), speaking on behalf of the Non-Aligned Movement, reiterated its position that United Nations peacekeeping was not a substitute for addressing the root causes of conflict.  Further, the Organization should consider ways to ensure that peace efforts continued without interruption after the departure of a mission, so as to facilitate a smooth transition to lasting peace, security and development.

Expressing support for the key aspects of the proposed realignment, namely, ensuring the success of missions, enhancing the safety and security of personnel, resource management and discipline, she said the Non-Aligned Movement would have preferred a detailed explanation of the proposal ahead of the session to allow for substantial discussions.  Nevertheless, its members were ready to discuss the Secretary-General’s proposal within the framework of the Special Committee, as the only United Nations forum mandated to undertake a comprehensive review of the whole peacekeeping question.

Recalling that the Brahimi report had been the catalyst for improving United Nations peacekeeping capacities in key areas, she highlighted the need to consider the current proposal in the broader framework of Peace Operations 2010.  The Non-Aligned Movement was ready to engage in in-depth analysis of the possible impact of the proposed structural changes, bearing in mind the unity of command in missions and the need for coherence in policy and strategy, as well as for clear command structures in the field and up through to Headquarters.  As the contributor of more than 80 per cent of troops to United Nations peacekeeping operations, the Non-Aligned Movement wished to stress the importance of interaction and coordination with troop-contributing countries.

It was also important to explore how the proposed restructuring could accommodate the growing demand for peacekeeping, she said.  The Special Committee should review such questions as how to ensure the unity of command and how the integrated operational team concept could prevent the consequences of dividing tasks between two entities that were supposed to work together as one.  Coherent policy, authority, responsibility and accountability must be clarified.

The Non-Aligned Movement also took note of the Secretary-General’s proposals for a separate procurement capacity and the possibility of establishing regional procurement offices, she said.  Regarding the proposal to establish a public affairs unit within the Department of Peacekeeping Operations, as well as the proposed small legal capacity in the office of the proposed Under-Secretary-General for Field Support, all proposed changes should be discussed within the framework of the key areas of the reform agenda presented last year, which was still under consideration by the Special Committee.

Turning to doctrine, she emphasized that the Non-Aligned Movement looked forward to the opportunity to debate the conceptual terminology in order to reach a common understanding and a standardized approach to terminology across the spectrum of peacekeeping.  Bearing in mind the proposed changes, the Movement wished to engage with Special Committee members in a meaningful exchange, with a view to reaching a consensus on the definition and use of such terminology as peacekeeping and peace operations.

The safety and security of United Nations and associated personnel in the field remained of paramount importance, she said, reiterating the Non-Aligned Movement’s position that well-planned and mandated missions were the best assurance against risks posed by actors outside the peace process.  They should encompass well-trained, equipped and disciplined contingents that were not deployed in a void or in situations where the political progress was either non-existent or compromised.

She reiterated the Non-Aligned Movement’s longstanding position that the primary responsibility for the maintenance of international peace and security rested with the United Nations.  The role of regional arrangements should be in accordance with Chapter VIII of the Charter and not in any way substitute for the Organization’s role or circumvent the full application of the guiding principles of United Nations peacekeeping.  However, regional contributions were important and should be provided with the necessary support, especially in Africa.

The Non-Aligned Movement continued to shoulder the surge in multifaceted peacekeeping activities and, thus, to play a crucial role in efforts to promote sustainable peace in complex conflict situations, she said, underlining the need to treat all peacekeeping missions equally.  In that connection, the Movement sought clarification on the establishment of the Strategic Military Cell for UNIFIL, with a dedicated capacity for planners, while the Military Division suffered from a lack of military planning capacity to deal on an equal footing with all other missions.

On the recruitment and selection processes for field missions and Headquarters, she said the Movement remained concerned over the Department’s staffing and structures, noting that its members were either insufficiently represented or unrepresented, particularly at the senior levels.  The Non-Aligned Movement reaffirmed its commitment to ensure that all mission personnel functioned in a manner that preserved the image, credibility, impartiality and integrity of the United Nations.  The Movement had also been a strong proponent of enhancing the triangular cooperation between troop-contributing countries, the Security Council and the Secretariat.

The ongoing debate on security sector reform should be clarified by the establishment of a coherent framework, she said.  The formulation of policies and assessment of strategies should take place under the supervision of relevant intergovernmental bodies of the General Assembly, particularly the Special Committee and the Peacebuilding Commission.  National ownership should guide strategies for security sector reform.

Meanwhile, the Non-Aligned Movement was concerned about the outstanding reimbursements owed to troop-contributing countries, which might adversely affect the capacity of that important source of United Nations peacekeeping, she said.  All Member States must present their assessed contributions in full, on time and without conditions.  In a time of sustained high demand, United Nations peacekeeping played a crucial role in paving the way towards the promotion of sustainable peace, but, in order to ensure that peacekeeping was truly successful, the national will and political engagement of Member States, together with a whole range of other parameters, were essential.

TIM SIMKIN (Australia), speaking for his own country, Canada and New Zealand (CANZ), expressed support for the thrust of the Secretary-General’s report, saying he was heartened by the continued importance attached to the implementation of the Peace Operations 2010 reform agenda and remained eager to see the detailed report on that matter.  Particularly welcome was the 2007 priority for the development of the capstone doctrine, which would facilitate the long-overdue examination of the conduct of peace operations and the principles and guidelines associated with the planning and conduct of modern complex missions.  CANZ also supported, in principle, the establishment of a core of civilian peacekeeping personnel to provide the backbone of mid-level management in field missions.

He also expressed strong support for the proposed comprehensive review of the Strategic Military Cell, in order to ascertain its relevance and feasibility for the future.  In addition, the safety component of safety and security required far more attention.  The proposal to realign the Department of Peacekeeping Operations into two separate departments merited serious consideration and, as the Special Committee worked on its various aspects, members would see where opportunities could be pursued to enhance the conduct of peace operations and ensure that sufficient mechanisms were in place to facilitate unity of command.

Urging full implementation of the review and improvements to the integrated mission planning process as soon as possible this year, he said CANZ would insist on the immediate development of Integrated Operations Teams to ensure that a new Department of Field Support was fully incorporated into the new planning and direction mechanism at the working level.  To maximize the effectiveness of the integrated mission planning process, CANZ urged timely appointment of Special Representatives of the Secretary-General, Force Commanders and Police Commissioners for any given mission.

Turning to the proposed establishment of an office of Assistant Secretary-General for rule of law and a Special Representative post to supervise the Police Adviser, he said that, while CANZ supported a holistic approach to the rule of law, given the critical importance of policing, it would be concerned by a structure that would result in the Police Adviser not having the same unfettered access to the Under-Secretary-General or the same level of influence in the senior management group as the Military Adviser.  CANZ would appreciate a clarification from the Secretariat in that regard.

He concurred with the recommendation to increase the number of officers in all sections of the Military Division and welcomed the Secretary-General’s intention to upgrade the Military Adviser’s post to the level of Assistant Secretary-General.  CANZ also noted the vital importance of the recruitment and retention of civilian staff for the Department of Peacekeeping Operations and missions, and welcomed the range of initiatives aimed at building institutional police capacity in post-conflict environments.  The Department of Peacekeeping Operations should continue to aim for full implementation of the Standing Police Capacity and expand the initial capacity in a timely manner.  The Department should also form a working group to investigate the need to create a military officers standing capacity to form the core planning and Headquarters element for a new mission, pending normal staffing.

“We must accept the reality that there is a broad spectrum of United Nations peace operations today, beyond the traditional peacekeeping missions,” he said.  Thus, it was necessary to develop a broader spectrum of peace operations.  To meet today’s challenges, it was increasingly important to collaborate closely with regional arrangements as envisaged under Chapter VIII of the Charter and, to that end, CANZ welcomed the Secretary-General’s intention to establish a dedicated capacity for partnerships within the Secretariat.  In addition, the language of Security Council resolutions on the use of force in peacekeeping operations often led to differing interpretations and inconsistencies in the rules of engagement for peacekeepers and policing elements. It was necessary to examine that issue, in order to promote a more systematic approach.

Much work had been done to implement fully the zero-tolerance policy regarding sexual exploitation and abuse, he said.  Expectations were rightly high in that regard and it was necessary to work earnestly towards full implementation of the victim assistance strategy.  The Secretariat was invited to present a draft policy on personnel and welfare in a timely manner.  CANZ also called for the empowerment of women and children and the implementation of mandates, in a manner that would effectively address sexual exploitation and abuse.

BAKI İLKİN (Turkey), supporting the European Union’s position, said his country participated in 10 United Nations peacekeeping operations and, since the Special Committee’s last meeting, had enhanced its military presence in those missions.  A Turkish engineering construction company comprising 261 military personnel and a Turkish Navy frigate with 234 personnel had recently joined UNIFIL.  The country was now the tenth largest police contributor, with 271 officers serving in eight missions.  Turkey was also contributing to United Nations-mandated peace missions within the framework of the North Atlantic Treaty Organization (NATO), the European Union and the Organization for Security and Cooperation in Europe (OSCE).

On the Department’s restructuring, he said the United Nations should not lose the momentum on that issue and should complete the process in a timely manner.  Turkey was confident that the Secretariat would come out of that process even stronger and, thus, become more efficient in responding to the challenges of today’s peacekeeping requirements.  The United Nations should further enhance its cooperation with regional organizations and establish more effective arrangements in support of its peace operations.  The enhancement of African peacekeeping capabilities deserved more attention, and Turkey welcomed the steps taken so far, particularly in furthering cooperation with the African Union.

As for rapid deployment, he expressed support for the further development of the Standing Police Capacity and for the establishment of enhanced rapidly deployable capabilities.  Turkey hoped the Peacebuilding Commission and the Peacebuilding Support Office would effectively fill an institutional gap within the United Nations system in terms of post-conflict management.  Those two bodies should interact closely and cooperate with the Department of Peacekeeping Operations.  Also, the success of the Peacebuilding Commission would depend on securing sound financial support for the Peacebuilding Fund, to which Turkey had been among the first contributors.

The training of peacekeepers was an indispensable component of successful peace operations, he said, pointing out that his country had established, in 1998, a Partnership for Peace Training Centre in Ankara.  Since its establishment, it had organized 236 courses and - seminars, providing training to almost 7,000 peacekeepers from 65 countries.  The Centre cooperated with the Secretariat’s Training and Evaluation Service and continued to align its programmes with United Nations standard training modules.

HUGO PEREYRA (Peru) said he agreed fully that there was a need to better address the explosive growth in peacekeeping operations and their increasingly complex nature, which involved military personnel, police and civilians, as well as the active participation of various agencies –- all working towards the resolution of intra-State conflicts with regional impacts.  In many such cases, social and political fragmentation, economic crisis, lack of institutions and the near-total absence of a culture of peace introduced violence and severe human rights violations into the daily lives of many populations.  Each case was unique and each required multidisciplinary action.  Thus, the Department of Peacekeeping Operations must be commended for its responses under such difficult circumstances.

Turning to the challenges facing United Nations peacekeeping, he said the first was the need for rapid-action capabilities.  That had become evident during the conflict between Israel and Lebanon last summer.  In recent years, Peru had called for the implementation of a mechanism, by which States would voluntarily put forces at the Organization’s disposal.  Other challenges concerned management coherence and the need to avoid troop reductions and hasty withdrawals.  Such actions impeded disarmament, demobilization and reintegration processes, as well as security sector reform.  Peace operations should, from the outset, contribute to the establishment of political and social institutions and to the achievement, at least minimally, of economic viability and sustainability.  A reformed security sector accompanied by quick-impact projects could lay the foundation for sustainable development.

He stressed that it was also vital to maintain strict discipline within peacekeeping operations and to ensure that all troop-contributing countries duly punished violators, especially in cases of sexual exploitation and abuse.  As for the Secretary-General’s proposal, it contained “certain unclear areas” with respect to the mechanism for the coordination of the two proposed departments and the pressing need to establish a clear, effective and responsive chain of command.  Thus, the overall proposal should be studied carefully.  Any reform must take place in an open and transparent manner, making it possible to strengthen peacekeeping operations and make their logistical control more dynamic, while providing greater security for troops and a swifter response time.

JORGE SKINNER-KLÉE (Guatemala), associating himself with the Non-Aligned Movement, said the expansion of United Nations peacekeeping and the increasing complexity of operations required common approaches and broad strategies.  A high level of planning and operational integration was needed, and the system for selecting and recruiting personnel should reflect the operations’ multifunctional nature.  It was essential to develop a coherent and functional approach to integration and coordination at all levels, including coordination among various parts of the Department of Peacekeeping Operations, agencies and other bodies, as well as between Headquarters and field entities.  Coordination with troop-contributing countries was of particular importance.

Referring to the rapid growth in the number and complexity of operations, he said the question arose as to whether the United Nations had the management capability, financial resources and political will to respond to demands.  It was necessary to adjust the supply and demand for peacekeeping, which underscored the importance of the mission that the Charter assigned to the United Nations and placed serious demands on Member States.  While it could be said that it was easy for a small, low-income country like Guatemala to make such statements, that was not the case.  With the growing demand for peacekeeping, Guatemala’s contribution to the peacekeeping budget would surpass its dues for the regular budget -– not an insignificant figure for that Government.

He said the tragic incident last year, in which eight soldiers of the Guatemalan contingent to MONUC had lost their lives, underscored the importance of security for peacekeepers.  The Department must continue to work with the Department of Safety and Security to achieve greater progress in improving security at Headquarters and in the field, prevent threats to personnel and deal with them by compiling and sharing information and reliable intelligence data.  Constant communication between the Department of Peacekeeping Operations and troop-contributing countries was also needed.  The Secretariat was expected to present details of the draft policy on the structure and functions of the joint analysis units of peacekeeping missions with a view to providing information to their different components in the context of new and existing operations.

In conclusion, he reiterated his country’s commitment to peacekeeping, noting that Guatemala was contributing military police in Haiti, special forces in the Democratic Republic of the Congo and had deployed personnel as observers in several other missions.  The country was also ready to continue working with the Secretariat to improve the peacekeeping system for the benefit of the Organization’s credibility and legitimacy in discharging one of its main functions under the Charter.

ILYAS IFTEKHAR RASUL (Bangladesh), paying homage to the martyrs who had laid down their lives while keeping the peace throughout the world, including the 80 fallen from Bangladesh, said that, in the quest for just and sustainable peace, the root causes for conflict must be addressed comprehensively.  Peacekeeping had never been easy and, over the years, it had grown remarkably, becoming more complex, multifaceted and multidimensional.  Hence, contemporary peacekeeping required a holistic approach.

The importance of the safety and security of peacekeepers could not be overstated, he said.  There was an ongoing study on the possible use of technical monitoring and surveillance means in the mission area.  Lessons must be drawn from previous security situations and, hence, the Department of Peacekeeping Operations should carry out regular evaluations of all incidents.  Bangladesh reaffirmed its support for the zero-tolerance policy regarding sexual exploitation and abuse, and any such aberration by its peacekeepers would be treated with the utmost strictness.

He welcomed continued meaningful dialogue between the Security Council, troop-contributing countries and the Secretariat in all phases of mission planning and implementation, as well as an improvement in getting memorandums of understanding signed upon deployment of contingents on mission.  Member States must fulfil their obligations by paying their assessed contributions to the Organization in full, on time and without any condition.  Also, the principle of equitable geographical distribution should be followed in filling posts at all levels, and the mission leadership should reflect the composition of the troops in a given mission.  In addition, the representation of troop contributors in the Department of Peacekeeping Operations should be proportionate to their representation in the field.

JOON OH ( Republic of Korea) said that, in the past 36 months, nine United Nations peace operations had been launched or expanded, and the tasks involved had become more multidimensional and complex.  The Republic of Korea shared the Secretary-General’s concerns that the Organization faced a real problem and that the current approach to mounting and sustaining peacekeeping operations in the field would not sustain the explosive growth in the demand for and complexity of those operations without significant change.

There was an urgent need to alleviate the strain and fatigue sustained by the Secretariat, he said.  Its working procedures should be re-engineered and its management system strengthened.  The Secretary-General’s restructuring plan was, thus, timely.  The consolidation of support functions into a single Department of Field Support would significantly improve the responsiveness and quality of support to field missions.  With clear guidelines and directives from the Secretary-General, the Department of Peace Operations and the Department of Field Support should be able to work together seamlessly.  Indeed, that structure was not all that different from the military organization that had long served many Member States.

He expressed his support for the reform initiatives promulgated in the Peace Operations 2010 reform agenda, saying his country would continue to back the Secretary-General’s initiatives to bolster the Organization’s rapid-response capacity.  The viability and merits of each option for enhanced rapidly deployable capacities should be further explored.  The Republic of Korea was pleased to see the creation of the Standing Police Capacity.

While the United Nations must be the leading global actor in planning and implementing peacekeeping operations, he said, regional organizations could effectively complement its efforts to cope with the challenges of post-conflict environments.  Partnerships with regional arrangements should be strengthened and used as extensively as possible.  Peacekeeping efforts must transition effectively into long-term peacebuilding and, to that end, coordination among the Department of Peacekeeping Operations, the Peacebuilding Commission and the Peacebuilding Support Office should be further strengthened.  At the same time, peacekeeping operations should integrate clear and explicit exit strategies to ensure that forces could be drawn down responsibly over time.

Welcoming the Secretary-General’s efforts to ensure timely consultation with Member States on all peacekeeping-related matters, he said they were particularly relevant when a new mission was being created or an existing mission expanded.  It was important to hold meetings with potential troop-contributing countries early on, as clearly demonstrated by the expansion of UNIFIL.

He said he supported the zero-tolerance policy regarding sexual exploitation and abuse by peacekeeping personnel.  While efforts to establish a better system of accountability for perpetrators was still in progress, the situation in the field indicated the persistence of the problem.  The Republic of Korea called for renewed efforts to introduce a national investigations officer and to revise the model Memorandum of Understanding.  The Republic of Korea placed a high priority on its contribution to peacekeeping and, although its capacities were now somewhat limited due to its commitments in Iraq and Afghanistan, it had decided recently to send an infantry unit of 230 troops to UNIFIL.  The Republic of Korea was also exploring ways to further increase its contribution to United Nations peacekeeping in the longer term.

TAKAHIRO SHINYO ( Japan) said that, while serving as a non-permanent member of the Security Council in 2005-2006, his country had been actively engaged in the establishment and expansion of peacekeeping missions.  As one of the major financial contributors to the United Nations that provided about one fifth of the entire peacekeeping budget, Japan intended to continue to be engaged in establishing, expanding and terminating missions through sound strategy.  Regrettably, consultations with major financial contributors had yet to be realized as part of the Security Council’s working methods and the Japanese delegation would continue to call for improvements in that regard.

Securing highly qualified personnel and training troops through the application of appropriate standards, including measures to address sexual exploitation and abuse, remained a challenge, he continued.  It was the troop- and police-contributing countries that had the primary responsibility to maintain discipline among their troops and police, and to train their detachments properly.  As a troop-contributing country, Japan took the utmost care to select highly trained troops for peacekeeping operations and considered it a serious responsibility to maintain discipline among the troops it dispatched.

As for the civilian components, field missions must now be staffed with personnel with high expertise, but it was not easy to secure them, he said.  Concerned about the reported severe understaffing in the field, Japan had co-hosted with the United Nations, last August in Asia, a seminar on peacebuilding human resources development.  Now, the country was studying the possibility of devising a scheme to train peacebuilding experts who were prepared to work in peacekeeping missions.

Regarding the Department of Peacekeeping Operations’ restructuring, he said the Secretary-General’s proposal should be reviewed in appropriate forums, including the Special Committee, from the standpoint of whether the resulting structure could respond positively to requests from missions and contribute to the effective management of United Nations peacekeeping in its entirety, and whether accountability to Member States, including in the area of financial discipline, would improve.  Japan also shared the Secretary-General’s concern about the Military Division’s current staffing with only 13 planners and encouraged the Secretariat to use existing resources to address that matter.  The relationship with other entities, including the Strategic Military Cell established last year, should also be taken into account.

In addition, he expressed concern over the as-yet uncorrected imbalance of geographical representation in field missions.  A recent report recommended that the Security Council’s Working Group on Peacekeeping hold a meeting when a mission was created or expanded, inviting troop-contributing countries and other stakeholders, including major financial contributors.  The Council should continue its efforts to strengthen interaction with major stakeholders when it made decisions on peacekeeping.  Japan encouraged Member States to make efforts to implement that recommendation, even outside the Security Council.

PETER MAURER ( Switzerland) said that the strategy of “integrated mission planning”, and notably the inclusion of humanitarian actors, was particularly important.  Integrated field missions would need equally integrated headquarters distinguished by strong coherence.  The new structure must take that objective into account and contribute to its implementation.  For that reason, Switzerland supported the Secretary-General’s proposal to ensure that staff at the Secretariat and in the field were sufficiently prepared to implement an integrated planning process.

A concerted approach also implied greater coherence with other actors within and outside the United Nations, he said.  In that context, Switzerland favoured the proposal to explore the possibility of closer partnerships at the strategic and operational levels with partners like the African Union and the Bretton Woods institutions.  Equally important was the need to strengthen and rationalize United Nations capacities with regard to the rule of law, in which the Department of Peacekeeping Operations would have a central role to play, he said.  Exit strategies were a key element of efficient transition planning.  The case of Timor-Leste had recently demonstrated how financial pressure could lead to the premature withdrawal of troops, whose return involved considerably greater costs.

Sexual exploitation and abuse was a major problem that undermined the credibility and legitimacy of United Nations forces, thus endangering a mission’s ultimate success, he said.  Switzerland favoured a vigorous policy designed to eradicate that evil, and approved of the measures taken by the United Nations so far, but it was unlikely that the problem could be solved overnight.  Regrettably, agreement had remained elusive on the revised draft Memorandum of Understanding or the comprehensive strategy on assistance and support to victims of sexual abuse and exploitation, he said.  United Nations standards of conduct should be seen as binding.  Certainty of accountability was a basis for disciplinary action or prosecution.  Accordingly, any reservations as to the binding character of those standards of conduct would undermine the proposed revisions.

Turning to the number of vacant positions in the civilian sector, now amounting to 20 per cent, he said the availability of skilled civilian staff for mission leadership, management and substantive functional tasks was essential to the proper running of peace operations.  For that reason, Switzerland supported proposals to establish a pool of 2,500 qualified individuals, to be drawn from among civilian peacekeeping operations personnel.  That pool would provide the backbone of mid-level management for field missions and pave the way for career development and greater mobility.

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For information media • not an official record