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Legal Framework of Peace Operations. Major Dan Tran Legal Training Officer. Introduction. Peacekeeping was pioneered and developed by the UN 63 UN peace operations to date. History of peacekeeping: six phases. 1946-56: observer missions 1956-1974: first “golden age”

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slide1

Legal Framework of Peace Operations

Major Dan Tran Legal Training Officer

introduction
Introduction
  • Peacekeeping was pioneered and developed by the UN
  • 63 UN peace operations to date
history of peacekeeping six phases
History of peacekeeping: six phases
  • 1946-56: observer missions
  • 1956-1974: first “golden age”

- first armed peacekeeping operations

- UNEF I became the prototype

  • 1974-88: first lull
  • 1988-94: second ‘golden age’

- numbers increased; nature of conflicts and missions changed

- “sub-contracted” peace operations

history of peacekeeping cont d
History of peacekeeping (cont’d)
  • 1994-1999: second lull for UN peacekeeping

- but NATO, OSCE, CIS and ECOWAS stepped into the breach

  • 1999-present: the pendulum swings back

- 13 new UN operations since 1999…

- …as well as many non-UN operations (large and small)

peacekeeping today
Peacekeeping today
  • Today, about 93,500 uniformed personnel in UN missions, plus 21,000 civilians
  • About 84,000 in non-UN operations (mainly NATO in Afghanistan and Kosovo)
united nations peacekeeping
United Nations Peacekeeping
  • Peacekeeping not mentioned in UN Charter.
  • Nor is ‘Peace Enforcement’ or ‘Peace Operation’
how are they created
How are they created?
  • UN peace ops
    • By consent
    • By binding Security Resolution
  • Regional/Coalition peace ops
    • By consent
    • Regional arrangements
how are they created1
How are they created?
  • Legal Authority
    • Chapter VI Pacific Settlement of Disputes
    • Chapter VII Action with Respect to Threats to the Peace, Breaches of the Peace and Acts of Aggression
how are they created2
How are they created?

Regional Arrangements

Chap VIII, Art 52: “Nothing in the present Charter precludes the existence of regional arrangements or agencies for dealing with such matters relating to the maintenance of international peace and security as are appropriate for regional action (However this is subject to other provisions of the Charter)

classic peacekeeping chapter vi
Classic Peacekeeping: Chapter VI
  • Principles
    • Consent
    • Impartiality
    • Limited Use of Force
  • Missions include:
    • monitoring elections
    • acting as a presence
    • establishing civil administration
peace enforcement chapter vii
Peace Enforcement:Chapter VII
  • Security Council powers to deal with Threats to the Peace, Breaches of the Peace and Aggression
    • Consent
    • Impartiality
    • Limited Use of Force
regional and subregional arrangements
Regional and Subregional arrangements

Eg. African Union: Protocol Relating to the Establishment of the Peace and Security Council of the African Union

  • N.B. (eg EU/ASEAN in Aceh)
mandate interpretation
MANDATE INTERPRETATION
  • The mandate will have specified tasks but also implied tasks eg UNSCR 1244 (1999) - Kosovo: “Ensuring public safety and order”. What is reasonable and necessary to carry out this task?
  • One implication of been given a ‘task’ is that you are also given the authority to carry out that task
  • NB: Interpretation of the mandate does not IHL or other relevant applicable law eg International Human Rights law - (“…all measures necessary”!)
the un general assembly
The UN General Assembly
  • Powers are limited to recommendations (Articles 10-14)
  • Can the UN General Assembly establish a peacekeeping operation? YES
  • Uniting for Peace resolution (1950 re Korea)
  • Used to authorize UNEF I (1956) and ONUC (1960)
certain expenses case
Certain Expenses Case
  • ICJ – 1962.
  • Funding for Congo & Middle East missions.
  • Peacekeeping within power of Security Council and General Assembly though only SC can oblige action.
  • ICJ found authority for peacekeeping within Articles 10 (GA may make recommendations) and 14 (GA may make recommendations for peaceful adjustment) both in Chapter IV .
defining peace operations
Defining Peace Operations

Multiple terms -

mil. liaison/obs. missions

Conflict prevention

Peacemaking interpositional forces

Peace support

regional missions Peace enforcement

Peace making

Peacekeeping

Peace-building Humanitarian missions

  • None of the classification schemes are commonly agreed or ideal
slide20

Defining Peace Operations

  • Three different types (but these categories are not airtight by any means):
  • Conflict Prevention/Peacemaking
  • Peacekeeping Operations
    • - “Traditional” Peacekeeping Operations
    • - Peace Enforcement Operations
  • Peacebuilding

Brahimi Report, paras. 10-14

slide21

Pre-conflict

Peacemaking addresses conflicts in progress and usually involves diplomatic action to bring hostile parties to a negotiatedagreement.

Conflict prevention involves the application of structural or diplomatic measures

to keep intra-state or inter-state tensions and disputes from escalating

into violent conflict.

traditional peacekeeping
‘Traditional’ peacekeeping

Mainly based on UN Charter Chapter VI

  • Prototype: UNEF I (Suez Crisis)
  • Guiding principles:

- consent

- impartiality

- non-use of force except in self-defense

  • monitor a cease-fire, troop withdrawal and/or buffer zone
slide23

Peacekeeping Missions

  • verify compliance
  • cease-fires/withdrawals
  • primarily unarmed
  • investigate/report violations
  • lightly armed
  • Current examples:
  • UNDOF (Syria, Golan Heights), UNFICYP (Cypress)
peace enforcement
Peace enforcement
  • Mainly based on UN Charter Chapter VII (and Articles 39, 41, 42 and 47)
  • Enforcement of resolutions against

“breaches of peace and acts of aggression”, ‘as may be necessary to restore or maintain international peace and security.’

slide25

Peace Enforcement Missions

  • Forcible Separation of Belligerents
  • Establish Protected Areas
  • Enforce Sanctions/ Exclusion Zones
  • Deny Movement/ Guarantee Movement
  • Protect Humanitarian Assistance
peace enforcement1

Peace enforcement

Use of force is NOT limited to self-defense.

use of force for limited objectives (i.e. not to defeat an enemy or win a war)

PEO may involve use of force to separate / disarm warring factions

peace enforcement2
Peace enforcement
  • do not depend on full and reliable consent of all the local actors
  • The operational area will normally include civilians and req. special consideration of :
  • Militia groups, threat identification, collateral damage, civilian casualties, etc.
  • examples include Somalia in early 1990s, Bosnia, East Timor, Sierra Leone, DRC, Haiti, and Darfur
peace keeping or peace enforcement
Peace keeping or Peace enforcement?
  • line between PK and peace enforcement (PE) is increasingly blurred
  • now accepted that PK and PE are on a continuum
  • today, the line being blurred is between PK/PE on one hand, and war on the other (eg in Afghanistan)
joint pub 3 07 3

Peace-building

PEACE BUILDING -covers post-conflict actions, predominantly diplomatic, economic, legal, and security related, that support political, social, and military measures aimed at strengthening political settlements and legitimate governance and rebuilding governmental infrastructure and institutions. PB begins while PEO or PKO are underway and may continue for years.

Joint Pub 3-07.3

slide30

Peace building

  • Focus on the implementation of a peace agreement.
  • Acknowledges that peacekeeping can’t succeed unless accompanied by a viable political process:
    • keep main parties politically engaged
    • foster political inclusiveness
    • Peacebuilding operations are neutral
    • third-party interventions, in that they do not take sides among the former parties to the conflict when supporting
    • As the peace
    • process develops, this neutrality shifts away from a focus on the parties to a neutral guardianship of the peace process.
peace building
Peace building
  • also firmly consent-based, but more complex
  • implementation of comprehensive peace agreements
  • Early examples include Namibia, El Salvador and Mozambique in early 1990s
  • composed of military, civilian and police performing multiple functions
  • help to transform a society in hope of doing away with root causes of conflict (eg El Salvador)
peace building1

Examples:

Post civil war conflicts:

UNTAC (Cambodia)

UNAMSIL (Sierra Leone)

Peace building

multidimensional peacekeeping
Multidimensional peacekeeping
  • Nowadays, many operations are partially under Chapter VI and partially Chapter VII, eg

- Haiti (MINUSTAH) and Darfur (UNAMID)

- protection of civilians (Sierra Leone and DRC)

  • Also regional and subregional arrangements outside of UN structure
brahimi report
Brahimi Report
  • Review of UN peacekeeping
  • Conclusions
    • Use of force remains the foundations of peacekeeping operations
    • Peacekeepers must be able to defend themselves - ROE must be appropriately robust
    • Peacekeepers in dangerous situations should not cede initiative to attackers
    • Peacekeepers should intervene when faced with grievous breaches of humanitarian standards
peacekeeping commonalities
Peacekeeping commonalities
  • Consent.
  • Impartiality.
  • Limited Use of Force.
  • Legal Authority
peace operations publications
Peace Operations Publications
  • Joint Pub 3-07.3 Peace Operations
  • Handbook on UN Multidimensional Peacekeeping Operations (2003)
  • Multi-disciplinary Peacekeeping: Lessons from Recent UN Experience (1999)
  • UN Peacekeeping Training Assistance Teams: Advisor’s Guidebook (1996)
  • UN Peacekeeping Operations: Principles and Guidelines (2008)
  • UN Peacekeeping Training Manual

available at http://www.un.org/depts/dpko/training/

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