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ADMIN

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MPAT Workshop

Module Series

Peace Operations

“There are no standard Peace Operations”

JP 3-07.3

Elements of National & International Power will be used – not just one dimension:•Diplomatic

•Economic

•Information

•Military

•Psycho-Social

Each Peace Operation will have its own unique situational setting

•Unique political factors

•Unique diplomatic characteristics

•Unique geographical, cultural, language, and security characteristics

Peace Operations Challenges

Who Executes Peace Operations?1. United Nations (UN) – 2 Types

• UN Sanctioned/Authorized operations (Regional Organizational Led (Combined) or Multinational Led (Coalition – Lead Nation concept)

• UN Sponsored/Mandated operation (UN Chain of Command – UN led)

Note: There are significant differences in the Command Relationships, Control, and Coordination Processes for

the above PO options – see Module 4

2. Regional Organization (Combined) Led (NATO, OAU, etc.)

• Non-UN Alliance / Treaty based

3. Multinational Organization (Coalition) Led

• Lead Nation Concept (Non-UN)

• Multinational Crisis Action Planning Ops

• Ad-hoc based on emerging crisis / No regional framework is present to address crisis

Broad Categories of Peace Operations

Peacekeeping Operations (PKO)

Peace Enforcement Operations (PEO)

Note –Terminology Differences: Many variations in terminology.1. UN commonly refers to Peace Operations as Peacekeeping and also uses the

term Peace Support Operations (PSO) at times.2. NATO uses the term PSO.3. Other nations use variations of terminology (based upon political and

operational implications / factors). 4. The MNF SOP will use the overarching term of Peace Operations with two

broad categories of operations as outlined above for clarity in mission planning.

Peacekeeping Operations (PKO)

Purpose: Designed to monitor and facilitate implementation of an agreement (cease fire, truce, and other related agreements) and support diplomatic efforts to reach a long-term political settlement.

Key Factor: Undertaken with consent of all major parties to a dispute.

Peace Enforcement Operations (PEO)

Purpose: Use of necessary means up to and including military force to compel compliance with resolutions or sanctions designed to establish security, peace and order.

Key Factor: Application of appropriate means, military force or clear threat of military force to compel compliance of parties involved.

Distinction Between PKO and PEO

Three main distinctions are:

•Consent

•Use of Force

•Impartiality

Distinction between PKO and PEO

Principal

Factors

PKO PEO

Consent All parties consent (support PKO goals)

Partial or no consent by parties (little or no support for PEO goals)

Use of Force

(restraint)

Self defense only Compel or coerce compliance with established rules of engagement

Impartiality does not denote neutrality, it is, however, a constant and may be applied as follows:

Principal Factors PKO PEO

Impartiality

Treat all sides equally and fairlyApply mandate without prejudice

When necessary, enforce the mandate on violatorsPrincipled Impartiality**

**May be considered as principled impartiality

Peace Operations Activities

Peace Operations- Peace Keeping

• Operations designed to monitor and facilitate implementation of an agreement

- Peace Enforcement

• Operations designed

to compel compliance with resolutions or sanctions designed to establish security, peace and order

Military Operations can support Diplomatic Efforts (three areas)- Preventive Diplomacy

• Diplomatic actions taken in advance to avert a crisis

- Peacemaking• Process of diplomacy, mediation,

negotiation, or other forms of peaceful settlement

- Peace Building • Post-conflict actions,

predominately diplomatic, economic, and security related that strengthen and rebuild governmental infrastructure and institutions

Peace Operations are normally interwoven with one another…PKO being executed with Preventive Diplomacy and Peacemaking ongoing; or PKO and PEO could be ongoing in same CTF AO (but in different regions of country).

MutuallySupportive

Legal Basis for Peace Operations

UN Charter – Resolutions/Mandates based on the UN Charter as a whole primarily Chapters VI, II, and VIII

International Treaties/Multinational Agreements/Conventions

National Constitutions/Declarations/ Resolutions/Statutory Authorizations

• VI – Pacific Settlement of Disputes – Addresses peaceful means

• VII – Action with Respect to Threats to the Peace, Breaches of Peace, and Acts of Aggression –Addresses enforcement actions

• VIII – Regional Arrangements – Regional arrangements to maintain peace & security

Complex Emergencies (Contingencies)

Since 1990, Peace Operations have moved from interstate conflicts to intrastate. Complex Emergencies are now the norm• Failed states - total breakdown of government

institution & infrastructures Term used to describe Humanitarian

Operations (concurrent with PO) that have the following dimensions:• A complex, multi-party, intra-state conflict

resulting in a humanitarian disaster which might constitute multi-dimensional risks or threats to regional and international security.

• Peace Operations now must be executed along with the challenges of rebuilding societies, re-establishing institutions, promoting good governance.

- Restoring infrastructure, economy, security, and reducing human suffering.

Peace Operations Realities

Support vs. Victory: CTF Commanders and Staff are required to understand the following realities of Peace Operations• The military is always in support of the larger political / civil mission (military

is a component of a larger effort).• There is neither an enemy nor a military victory. Military task is to set

conditions to enable other agencies to achieve political end state.• Military can:

- Temporize- Maintain situation- Reduce levels of violence- Induce compliance

Basic Mission: The military mission will revolve around establishing or maintaining a safe, secure, and stable environment.

Civil-Military Planning / Coordination: Identification of the civil-military tasks required by the mandate

SUPPORT OPERATIONS

MILITARYOPERATIONSM

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CIV

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CRISISCRISIS STABILIZATIONSTABILIZATION

ECONOMIC& SOCIAL

LIFESUPPORT

OPERATIONAL MODEL

LIFESAVING

DIPLOMATIC

CTFDeploy-Mandate-Transition-Re-deploy

Military Mission

UN / IOs / NGOs Overall Mandate Missions Ref: COE

Doctrinal Challenge

The most up-to-date Peace Operations doctrine is in the MNF SOP. It was cooperatively developed by MPAT, US Army PKI, UN, COE, JFCOM, EPIC, and NPS personnel.

No United Nations Peace Operations doctrine

NATO Doctrine comes closest to addressing the issues (ATP-3.4.1)

Doctrinal Principles of PONATO ratified list of PSO/PO Fundamentals.

•Civil Military Cooperation•Objectives•Security•Unity of Effort •Legitimacy•Impartiality•Consent•Perseverance•Freedom of Movement•Credibility•Flexibility•Use of Force•Transparency•Mutual Respect•Restraint

Ref: PKI

Key CTF Planning Documents

Security Council Resolution (UNSCR) Peace Agreement Mandate Status of Forces/Mission Agreement

(SOFA/SOMA) Terms of Reference Rules of Engagement (ROE) Memoranda of Understandings (MOUs) Consolidated Appeal Process (CAP)

Ref: PKI

Note: These are living documents than need continuous management

Security Council Resolution (UNSCR)

United Nations Security Council (UN SC) passes Resolutions that establishes the basis for the Peace Operation.

Peace Operations Resolutions normally contain two sections: First part contains political statements from the UN SC and the second part outlines the Mandate for the Peace Operation.

Peace Agreement

CTF Planners need to refer to any and all Peace Agreements agreed to among the parties to the conflict (past and working agreements).

Mandates for Peace Operations will normally refer to these Agreements and form a foundation for consent within the operation.

Mandate

The Mandate is the central document for outlining the scope of the operation.

The Mandate is either contained in a UN SC Resolution, an Initiating Directive from a Regional Organization or Multinational Organization, or can be included in Warning Orders and OPORDs for the operation.

Mandate Requirements It is critical that a clear end state be contained in the

Mandate

CTF Key Planning Point: The Mandate is the strategic guidance for the CTF Commander. It forms the foundation for the initial Mission Analysis and follow on Commander’s Estimate. The Mandate must be complete in its guidance and clear in its mission parameters (if not, planners must seek out additional guidance and clearly establish the mission parameters).

Also establishes the following:• ROE guidance

• Legitimacy for the operation

• Nature of the operation

• Strategic Objectives and Political / Military end states

• Strategic Mission and Tasks

• Freedoms, constraints, and restraints

• Expected Duration

• Logistics and key supporting aspects

• Civil-Military coordinating mechanisms

Status of Forces/Mission Agreement (SOFA/SOMA)

Negotiated agreements that establish the detailed legal status of PO forces – critical document.

Negotiated by the UN, Regional Organization, or Multinational Organization for the CTF at National levels (not a CTF action, but CTF planners may participate in development with higher headquarters).

Negotiated with the Host Nation and / or Affected Nation and are considered an International Agreement

Terms of Reference(TOR)

Developed to govern implementation of the PO

Based upon the situation and Mandate; may be subject to approval by the parties to the dispute (addresses details of PO)

Describes the mission, command relationships, organization, logistics, accounting procedures, coordination and liaison, and responsibilities or personnel assigned or detailed to the PO force (flexible document).

Normally written at the national level (UN, Regional or Multinational Strategic HQ) however, the potential CTF Commanders and staff may assist in initial development and need to be involved as amendments are developed

Directives that delineate the circumstances and limitations under which CTF forces respond to, initiate or continue engagement with other forces or elements

Define when and how force may be used

Initially ROE will be established by the National Strategic / UN level of planning. However, the CTF Commanders must provide continual assessments of the threat and recommendations for adjustments as required.

ROE can make the difference between success and failure • Requires ongoing

contingency planning and assessment

Rules of Engagement (ROE)

Memoranda of Understanding (MOUs)

Are used to establish agreements within the CTF forces as required

Flexible tool to establish formal

agreements as required (can supplement and / or replace TORs).

Can be used between nations or for the CTF force as a whole to establish procedures or processes.

Existing MOUs need to be identified during the CTF’s activation to determine applicability for current Mandate (can greatly assist in interoperability challenges)

CAP: Consolidated Appeals Process

Legal Basis• General Assembly Resolution 46/182• 1994 Inter-Agency Standing Committee approved CAP

Guidelines

Produces CHAP: Common Humanitarian Action Plan• Presentation of possible scenarios• Sectors to be addressed• Criteria for Prioritization• Relationship with other assistance programs• Statement of humanitarian principles• Long term goals

Congratulations!

QUESTIONS?