Madhu Raman Acharya21 July 2014

Changing Scope and Dimension of Peacekeeping and the Participation of Nepal

IntroductionWord of welcomeOnly introducing the subject before the main speakerNepal’s perspectivesPeacekeeping: global challenges Some steps to be taken

From Nepal’s sideFrom UN’s side

(Does not represent the views so the Government of Nepal and that of the UN)

Nepal in the UN PKOLong association (since first participation in 1958- three years after UN

membership in 1955)Long experience (58 years)

Continuous contingent participation in PKO since 1974Participation in all major missions

Huge contribution40 Missions over 100,000 uniformed personnelSacrifice of 58 lives- Similar numbers injured and disabled Contributed troops and police even to UN mission even during

domestic conflict (1996-2006)Among top ten troops contributors

6th largest- 4,762 uniformed personnel as of May 2014 (DPKO)-

Nepal in the UN PKONepal has significantly invested in its capacity

Standby troops/ Equipment Peacekeeping Training Centre -since 1986

Nepal’s three security agencies (army, police and armed police) contribute personnel to peacekeeping

Excellent performance – widely acclaimed- included in Nobel Peace Prize receiving entourage of the SG

Force commanders ( 4 missions)Increasing participation of police/armed police forcesResponded to every call of the UN for deployment

Nepal in the UN PKONo caveats in deploymentFlexibility, adaptability and versatility- main characteristics of

Nepal’s peacekeepersNo vested interests (political, economic or cultural) in the

peacekeeping settingsConsiders peacekeeping as an important instrument for

solving conflicts and maintaining international peace and security

PKOs have provided Nepal wide exposure, identity and role in the global arena

Increased professionalism of Nepalese uniformed personnel

Nepal in the UN PKONon-permanent member of the Security Council twice (1969-

70, 1988-89)- also recognition of Nepal’s contribution in peacekeeping

Nepal also became member of the UN Peacebuilding Commission (2009) on account of its troops contribution

Participation in UN peacekeeping consistent with its foreign policy objectives and principles, including of the UN Charter

An important instrument in Nepal’s engagement with the United Nations activities around the world

Nepal and UN peacekeepingUN peacekeeping in Nepalese psyche

Songs and filmsShanti Sena as respected job and as an opportunityMost Nepali army and police officials have served at least in one

mission and are proud of itUN Peacekeeping gives Nepal

International platformStrong partnership with the United NationsInternational identityProfessional exposure

Nepal’s participation in major PKOsMission Year Mission Year

Sinai 1974 East Timor 1999

Lebanon 1978, 2006 Liberia 2003

Lebanon 1978 Burundi 2004

Haiti 1991, 2004 Sudan 2004, 2008, 2012

Somalia 1993 Lebanon 2008

Former Yugoslavia 1994 Chad 2008

Sierra Leone 1999 South Sudan 2011

DR Congo 1999 Mali 2013

1990

1992

1994

1996

1998

2000

2002

2004

2006

2008

2010

2012

2014

0

1000

2000

3000

4000

5000

6000

Nepal's Contribution to UN Peacekeeping Operations

Averagae number of uniformed personnel

Nepal: Current Standing(As of May 2014, DPKO)

South Sudan (UNMISS )- 1,354Congo (MONUSCO)- 1,049Lebanon (UNIFIL) - 869Darfur( UNAMID) - 603Liberia (UNMIL )- FPUs 417Haiti (MINUSTAH) - 154 Mali (MINUSMA) 149Syria (UNDOF) - 72Iraq (UNAMI)- 49 Abei, Sudan UNISFA 4Code d’ Ivoire (UNOCI)- 4Western Sahara (MINURSO) 4Middle East (UNTSO)- 4Total 4,762

Types of contribution from NepalInfantryMilitary ObserversMilitary PoliceEngineersStaff OfficersPolice AdvisorsFormed Police UnitsPolice MonitorsOthers

Peacekeeping: Some features

Most visible flag of the UNValuable instrument for maintain peace and security – other

alternates are riskier and costlierCheaper instrument - $ 7.83 billion (2013/14)- less than 0.5%

of the world’s military expenses $ 1,747 billion (2013)Still bigger than UN’s biennial budget

Peacekeeping: Important featuresMissions with various needs

Disarmament ElectionsHuman rights monitoringSupport to refugees/ returneesProtection of civilians Security sector reformRule of law

DiversificationFrom peacekeeping, to peacemaking, peace enforcement, peacebuilding

etc.

Reports GaloreBrahimi Report 2000

Concept of peace operations Highlighted need for increased political support Broadened the concept and doctrine of peacekeeping Some implemented, Others of scholarly interest,

Capstone Doctrine 2008- as a guide for UN personnelNew Horizons Report 2009

Thrust on policy measures, and capacity development, field support and oversight mechanism

Seeks to address the policy and major policy and strategy dilemmas faced by the PKOs

UN Peace Operations 2010- reform strategy for the next decade post Brahimi report

Factors contributing to success of PKOs LegitimacyExperienceImpartialityCredibility

Challenges of UN PeacekeepingToo big to manage- “overstretch”

98,755 uniformed personnel in 17 missions ( May 2014)Growing complexitiesGoing to places where there is “no peace to keep”Lack of political strategyAmbiguous mandates- divided Security Council “Mission creep”- so called Integrated Approach seeks to put

everything under PKOsLack of exit strategy- UN is stuck in most circumstances Haunted by failed mandates- Rwanda, Former Yugoslavia,

Somalia- several shortcomings still continuing

Doctrinal Challenges

UN Charter has no provision for UN peacekeepingConsent of the parties- not applicable in peace

enforcement mandates (e.g. Darfur) Impartiality (undermined in many instances) especially

in Chapter VII mandatesUse of force- for self defense and in defense of the

mandate (e.g. protection of civilians)- difficulty in maintaining uniform approach

No commensurate investment in preventive diplomacy and political capability (cheaper to prevent)

Peacekeeping cannot be a substitute for addressing he root causes of conflict

Doctrinal Challenges..

Difficulty to separate continuum of peacekeeping, peacebuilding and reconstruction

Difficulty to implement the thematic resolutions1325 on women in peace and security1612 Children in armed conflict1674 Protection of civilians

Putting “protection of civilians” in each mission’s mandate- creates false expectations – one of the causes of perceived failure of the UN

Protection mandate requires use of force which is difficult to apply under existing rules of engagement

Responsibility to Protect: Failure to apply, selectivity

Operational Challenges

UN does not have its own militaryAbsence of rapid deployment capability Poor support from member states e.g. helicoptersResources crunch Robust peacekeeping – and hybrid missionsField support challengesLack of gender and geographical balance

Top troops contributors come from South AsiaWomen still under represented

Other Challenges..

Disintegrated approach: each mission from scratch- same hurdles every time

Human rights abuses at home and at duty station- need better strategy to handle

Sexual abuse and harassment- implementation of “Zero Tolerance” policy

Safety and security of peacekeepers- peacekeeping has become more lethal

Need better consultation with troops contributing countries“Being informed is not same as being consulted”

Nepal’s issues on Peacekeeping

Better involvement in mandating of the mission, political

strategy, rules of engagement and exit strategy

Standby capacity- lack of equipment support often

delaying deployment

Need more representation of women

Need more senior level appointments for both uniformed

and civilian personnel

Nepal’s issues on PeacekeepingBetter use of Training centre- by the UN system for regional

endeavorsSafety and security concerns/ Need to exercise selectivity Need to increase civilian participation in peacekeeping

missions More efficient reimbursement procedureMore efficient vetting procedure for human rights- (DPKO

should consult before taking any action)Better oversight mechanism in purchases etc. to avoid scandals

of corruption in supplies (e.g. Darfur)

Reforming Nepal’s peacekeeping Improve standby capacity- size of army has grown Reinforce contingent-owned equipment Gove more training on host country situation, driving,

languages, UN practices, human rights etc. Improve vetting procedure and end impunity allegations on

human rights Increase capability to deploy more women- showcasing

inclusive reformsTake stern action against sexual exploitation and abuse

Measures DPKO should takeInvest in the capacity of the troops contributing countries (including

in standby equipment and training) Improve consultation with troops contributing countries (on

mandate, political strategy, rules of engagement, etc)Improve vetting procedure for human rights to avoid

embarrassment for both sides Consult with sending countries before taking any action on human

rights etc. Introduce more stringent measure for safety and security of

peacekeepers – introduce better risk analysis and rapid response mechanism

Speedier investigation into allegations against peacekeepers

Measures DPKO should takeIntroduce better strategy to deal with unfounded allegations (e.g.

cholera in Haiti) –overshadowed what Nepalese troops did in the aftermath of the 2010 earthquake

Improve partnership with regional organizations, troop contributing countries etc.

Increase senior level appointments from Nepal in UN’s missions and headquarters (military, police and civilians )No SRSG from Nepal in any of the UN’s peacekeeping missions so farNeed to appoint more force commanders, heads of police and senior

level civilians etc.

Thank You