Statement by Mr. Alain Le Roy, Under-Secretary-General for Peacekeeping Operations to the 2011 substantive session of the Special Committee on Peacekeeping Operations

  • 22 February 2011

Madam Chair, Distinguished Members of the Special Committee,

  1. I am honoured to have been invited once again before the Special Committee on Peacekeeping Operations and to open this Committee’s annual debate on the whole question of peacekeeping operations in all their aspects.

Introduction and Operational Context

  1. UN peacekeeping is a unique global partnership. It brings together the General Assembly, Security Council and Secretariat in a combined effort to maintain peace and security globally. Its bedrock lies in the legitimacy of the Charter and in the wide range of contributing countries that participate and provide precious resources. It brings together military, police and civilian capabilities in an integrated system that is flexible and adaptable. And perhaps most importantly, it relies every day on the bravery, ingenuity and adaptability of tens of thousands of men and women drawn from around the world, representing the cause of peace.
  2. For all these reasons, UN peacekeeping has, for decades now, been deployed into highly challenging environments. And it will continue to be tested by political and security challenges on the ground. Today, we face many trials around the world. And thus, even while we acknowledge the many strengths of peacekeeping, we are collectively entrusted with ensuring the continual improvement of the unique global partnership. It is the people we are sent to assist who ask, rightly, that peacekeeping be as effective as it possibly can be. And of course, we ask this of ourselves.
  3. We share a common stake despite the different roles that we play. UN peacekeeping is privileged over other international instruments in that we have this deliberative body, the Special Committee, where military, policing and diplomatic expertise is brought to bear and the international community can collectively reflect on and respond to the constantly evolving challenges we confront. I am particularly encouraged to see the strong momentum and keen desire on the part of all member states represented here to build on the successful outcome of last year’s session. The report of the Secretary-General to this Committee outlines the progress the Secretariat has made in fulfilling your agenda, and speaks also to areas we might further explore together. I believe that we must make 2011 the year when we collectively begin to demonstrate the operational impact of the Special Committee’s efforts on policy development and peacekeeping reform in key missions on the ground.
  4. The past decade was marked by exponential growth in the number and size of peacekeeping operations, and finally, we are seeing a consolidation of this trend overall, although demands for police continue to grow. Under-Secretary-General Malcorra and I view this overall consolidation as a period in which we should look to strengthen and fine tune our systems, not having to continually seek and deploy new resources into new missions at the same pace. Together with you, we should seek to understand the challenges faced during the surge, draw common lessons, and prepare peacekeeping for the future. I believe this spirit has guided our interactions with the Special Committee.
  5. Yet we must bear in mind that while in numerical terms, the rate of growth of UN peacekeeping seems to be slowing, the complexity of UN peacekeeping remains incredibly high. We will continue to navigate a myriad of fast-moving and politically sensitive situations on the ground. Let me briefly review the challenges in some of our more difficult missions that we faced over the past year.
  6. In Darfur and the Democratic Republic of the Congo, UNAMID and MONUSCO have experienced challenges in the implementation of their mandates, particularly in the protection of civilians across vast areas, and in responding to threats from spoilers. Difficulties related to the consent of the host Governments, divergence on strategy by the international community or inadequate capabilities have at times compounded those challenges.
  7. The January 2010 earthquake in Haiti highlighted how fast missions can move from relative stability to crisis. This experience underscored once again the critical need for contingency planning, rapidly deployable reserve capacities, flexible and efficient support arrangements and effective mechanisms for cooperation and interoperability with partners. The controversies surrounding the first round of presidential elections in November highlighted again the fragility of political stability in Haiti; the second round, scheduled for 20 March 2011, requires our full attention.
  8. The preparations for the presidential election in Côte d’Ivoire presented formidable challenges, most of which UNOCI helped national authorities to overcome. In anticipation of the related security and political challenges, an additional 500 peacekeepers were deployed prior to the 31 October 2010 election. An additional company and two military helicopters were deployed prior to the 28 November 2010 presidential run-off round to further reinforce UNOCI. Following the outcome of the second round, UNOCI took a principled stand, in accordance with the commitments signed by all the parties. The ensuing acute political crisis poses, as we all know, serious risks to the stability of Côte d’Ivoire.
  9. In Sudan, UNMIS successfully supported the parties to the Comprehensive Peace Agreement, and the Sudanese people, in peacefully holding the referendum on the future of Southern Sudan. The outcome of the referendum has set the stage for the establishment of a new independent state, and the United Nations stands ready to assist in whichever manner it is requested to help ensure this momentous process continues in a peaceful and stable process. The planning for a future mission in South Sudan offers the opportunity to put into practice the reforms and innovations that have been discussed within this Committee as well as the lessons learned from recent peacekeeping experiences.
  10. As challenging as these four missions were, they represent but a portion of the operational demands put on UN peacekeeping last year. In Chad, MINURCAT reconfigured its presence in the country before starting its final withdrawal at the end of the year. During this process, it organised the transfer of its activities related to the protection of civilians to the Government and the United Nations Country Team. In Timor Leste and Liberia, our missions are charting the path for their transition out, even as they work intensively with the host governments to ensure the hard-won peace is maintained and peacebuilding proceeds effectively. In Lebanon, UNIFIL continued to play a critical role in providing confidence in their area of operations. In Afghanistan, DPKO and DFS continued to support UNAMA in carrying out its mandate to support electoral processes and peacebuilding efforts, amidst a very challenging security environment. Elsewhere, our traditional missions continued their important role in helping to maintain confidence through their presence, so as to enable the search for more lasting peace to continue.
    (A more detailed overview was to be provided by ASG Atul Khare later that week.)

Agenda Before the Special Committee

  1. I applaud the highly productive session of this Committee last year. The Secretary‑General put before the Membership a multifaceted agenda to strengthen UN peacekeeping — the “New Horizon” initiative — focused on policy development, capability development, field support, and planning and oversight. Many initiatives are interlinked, and their implementation will produce mutually reinforcing progress. Our focus for 2011 must be to ensure that our work in New York translates into concrete results in the field.
  2. I welcome this opportunity to share with you where we stand and my hopes for 2011: that we provide personnel with the necessary political and operational support structures, resources and guidance to deliver all mandated tasks effectively.

Gender and Peacekeeping

  1. Earlier this month, we shared findings from our study of 10 years of implementation of Security Council Resolution 1325 on Women, Peace and Security. Missions have contributed to institutional reforms, gender equality, and increased women’s electoral participation. In the next decade, we must go deeper and broader in supporting women’s empowerment.

Planning and Oversight

  1. This Committee has consistently called for strong cooperation among TCCs/PCCs, the Security Council and Secretariat. In October 2009, USG Malcorra and I issued a directive requiring improved practices to systematically engage contributors in advance of mandate renewals, ground changes or other critical points.
  2. Since the restructuring of DPKO and creation of DFS in 2007, both departments work together seamlessly. Integrated Operational Teams (IOTs) provide coordinated political, military, police and support expertise. The Secretary-General has outlined measures to further strengthen cohesion and understanding within IOTs.
  3. Integrated Mission Task Forces have provided a forum for review of mission-specific issues. A standing body, the Integration Steering Group, now reviews integration policy. We have also begun evaluating command and control structures in peacekeeping.

Global Field Support

  1. Ms. Malcorra will further detail ongoing efforts to strengthen field support. We seek to enhance effectiveness through improvements in screening and recruiting UN peacekeepers.

Capability Development

  1. DPKO and DFS have developed a comprehensive capability development strategy. Effective mandate implementation requires filling critical gaps and ensuring peacekeepers are trained, equipped and prepared to meet standards.
  2. Missions continue to struggle without key assets—especially military helicopters. We expect a shortfall of 56 helicopters out of a requirement of 137 by April 2011, with UNMIS, UNAMID and MONUSCO most affected.
  3. Since December 2009, the Secretariat has been distributing “gap lists” for military, police, rule of law and other needs. Assessment of their impact continues.
  4. Work is underway to link identified needs with global capacities and explore ways to strengthen information-sharing and coherence among peacekeeping partners.
  5. Developing agreed capability standards is essential. A pilot initiative for capability standards for infantry battalions, staff officers and military medical support is underway, aiming for preliminary tools by the end of 2011.
  6. Training remains central. Core training materials have been updated, and induction standards issued in August 2010. DPKO works closely with national and regional peacekeeping training institutes.
  7. All of this informs efforts in policy development.

Policy Development Agenda

Protection of Civilians

  1. The Special Committee has set an ambitious agenda on Protection of Civilians. Much progress has been made in 2010.
  2. Implementing POC mandates is complex. Peacekeepers protect millions daily, though challenges remain. Field missions continue innovating; MONUSCO’s early warning systems are one example, enabling peacekeepers to free abducted civilians.
  3. Headquarters work in 2010 focused on developing a Strategic Framework, training modules, a Resource and Capability Matrix, and reviewing resource adequacy and concepts of operations.
  4. A draft Strategic Framework has been presented for endorsement.
  5. A draft POC Resource and Capability Matrix is under review to reach consensus on required resources.
  6. POC training modules for military, police and civilians will be ready for consultation by March 2011.
  7. Military and police concepts of operations for all missions with POC mandates have been reviewed.

UN Police

  1. Demand for UN policing continues to grow. Specialized capabilities are needed. Strengthening DPKO’s Police Division has yielded improvements in recruitment, planning and support. The expansion of Standing Police Capacity will support mission transitions.

Peacekeeping–Peacebuilding Nexus

  1. Peacekeeping plays a vital role in early peacebuilding—helping articulate priorities, enabling others’ efforts and implementing selected tasks.
  2. Work continues on strategies for early peacebuilding tasks and improving interoperability across the UN system, including in mine action, DDR, SSR, criminal justice and corrections.

Enhancing Operational Effectiveness

  1. More missions now require robust military postures, including MONUSCO, UNOCI, UNAMID, UNIFIL and MINUSTAH.
  2. Dialogue has intensified on deterrence, readiness and use of force. Regional expert consultations provide technical input to the C34 deliberations.

Conclusion

  1. The Brahimi Report noted: “No amount of good intentions can substitute for the fundamental ability to project credible force… force alone cannot create peace; it can only create a space in which peace can be built.”
  2. These words remain true. Success requires linking mandates to capabilities, integrating field support, aligning human and material capacities, and ensuring standards, training and guidance are all connected.
  3. Our primary objective for 2011 is to consolidate progress in policy, capabilities, field support, planning and oversight, and bring reforms to the field.
  4. I thank all who continue working to strengthen UN peacekeeping and look forward to forging a stronger global partnership.

Thank you.

Read the full speech.