Peacekeeper's Handbook. International Peace Academy

431 Pages·1984·5.02 MB·English

Pergamon Titles of Related Interest
Mroz BEYOND SECURITY: Private Perceptions Among
Arabs and Israelis
Wiseman PEACEKEEPING: Appraisals & Proposals
WisemartfTaylor FROM RHODESIA TO ZIMBABWE: The Politics
of Transition
Related Journals*
DEFENSE ANALYSIS
INTERNATIONAL JOURNAL OF INTERCULTURAL RELATIONS
WORLD DEVELOPMENT
*Free specimen copies available upon request.
PEACEKEEPER'S HANDBOOK
INTERNATIONAL PEACE ACADEMY
PERGAMON PRESS
New York · Oxford · Toronto · Sydney · Paris · Frankfurt
Pergamon Press Offices:
U.S.A. Pergamon Press Inc., Maxwell House, Fairview Park,
Elmsford, New York 10523, U.S.A.
U.K. Pergamon Press Ltd., Headington Hill Hall,
Oxford 0X3 OBW, England
CANADA Pergamon Press Canada Ltd., Suite 104, 150 Consumers Road,
Willowdale, Ontario M2J 1P9, Canada
AUSTRALIA Pergamon Press (Aust.) Pty. Ltd., P.O. Box 544,
Potts Point, NSW 2011, Australia
FRANCE Pergamon Press SARL, 24 rue des Ecoles,
75240 Paris, Cedex 05, France
FEDERAL REPUBLIC Pergamon Press GmbH, Hammerweg 6,
OF GERMANY D-6242 Kronberg-Taunus, Federal Republic of Germany
Copyright © 1984 International Peace Academy
Library off Congress Cataloging in Publication Data
Main entry under title:
Peacekeeper's handbook.
Includes index.
1. United Nations-Armed Forces-Handbooks, manuals
etc. I. International Peace Academy. ,
JX1981.P7P38 341.5'8 84-11033
ISBN 0-08-031921-1
All Rights reserved. No part of this publication may be reproduced,
stored in a retrieval system or transmitted in any form or by any means:
electronic, electrostatic, magnetic tape, mechanical, photocopying,
recording or otherwise, without permission in writing from the
publishers.
Printed in the United States of America
ABOUT THE INTERNATIONAL PEACE ACADEMY
The International Peace Academy (IPA) is a nonpolitical, nonprofit,
educational institute. The IPA's work is to design and conduct profes-
sional, international, educational, and training programs for dispute
settlement and conflict management. Since 1970, more than 2,250 diplo-
mats, military officers, policymakers, and academicians from 124 nations
have attended IPA training seminars in Africa, Asia, Europe, and North
and Latin America.
Main activities include:
• Designing and conducting international training seminars for midcareer
professionals in the skills and procedures of peacekeeping, negotiation,
and mediation.
• Conducting action-research by organizing off-the-record meetings of
parties directly involved in disputes.
• Producing publications and teaching materials.
• Conducting research on issues of regional security in Africa, Asia, the
Middle East, the Caribbean, Latin America, and the Pacific Rim.
The IPA is wholly transnational in its Board of Directors, program
staff, administration, and publications. Its financial support, tax-deducti-
ble in the United States and Canada and charity-registered in the United
Kingdom, comes from foundation and corporate grants, private individu-
als, and tuition fees of governments.
For further information on the Academy and its programs, contact:
The International Peace Academy
777 United Nations Plaza
New York, NY 10017
Tel: [phone]
vii
FORWARD
by
The President, International Peace Academy
One of the important roles of the International Peace Academy (IPA),
since its establishment in 1970, has been the development of skills and
techniques for greater efficiency within peacekeeping forces. The IPA tries
to achieve this by making use of the experience of present and former
members of UN operations to disseminate their knowledge through its
seminars. The Peacekeeper's Handbook is therefore an extension of the
IPA's programmes and it is hoped that it will provide material and knowl-
edge which national armed forces can use in the preparation of their
contingents for international peacekeeping.
The idea of preparing this Handbook was first conceived at an IPA
Consultation held at Lake Mohonk, New York, in June 1973. While the
Consultation recognized that a number of peacekeeping troop-contribut-
ing countries had prepared instructions or guidelines for the preparation
of their contingents and the conduct of operations in the field, there was a
need for a general handbook that would enable any troop-contributing
country to prepare its own instructions and procedures for the preparation
of its forces.
The Peacekeeper's Handbook is also intended to provide ready refer-
ence for the planning and conduct of such operations.
The initial preparation of this Handbook was carried out under my
supervision with a generous grant from the Rockefeller Foundation. The
IPA is specially thankful to Mr. Elmore Jackson, who helped from the
start in developing this project.
The value of this Handbook has been proved by the wide demand for
the first and second editions, leading to this third edition. Three new
chapters dealing with the law, attitudes, and medical services—12,13, and
14—have been added. Additional chapters on "The Duties, Techniques,
etc., of UN Observers" and "The Supervision of Referenda and Elec-
tions" are under consideration. Suggestions, comments, and corrections
are always welcome and should be addressed to the Director of Peacekeep-
ing Programs at the IPA.
The IPA is most grateful to Mr. Brian E. Urquhart, UN Under-Secre-
tary-General for Special Political Affairs, for his generous assistance and
advice in compiling the manuscript. We also wish to express our thanks to
Mr. Fou-Tchin Liu, Assistant Secretary-General for Special Political Af-
fairs, Mr. James O. C. Jonah, Assistant Secretary-General for Field
Operational and External Support Activities, Mr. George Lansky (re-
tired), Mr. Gerald Dunn and Mr. Johan Boe of Field Operations Services
of the United Nations for their assistance.
The IPA gratefully acknowledges the contributions of Major (Police)
Erik Baumel (Austria), Chief Superintendent (Police) Errol Canney (Aus-
tralia), Brigadier General Christian Clausen (Austria), Colonel Eamon
ix
χ PEACEKEEPER'S HANDBOOK
Doyle (Ireland), Major General Björn Egge (Norway), Colonel Yngve
Ekman (Sweden), Colonel Patrick Hogan (Ireland), Brigadier Said Ud
Din Khan (Pakistan), Major General Trond Kluge (Norway), Lieutenant
Colonel Gerald Ο'Sullivan (Ireland), Major General Hannes Philipp
(Austria), Mr. George Ivan Smith (Australia), Commissioner of Police J.
E. Tibiru (Ghana), Brigadier General William J. Yost (Canada), and Dr.
Vratislav Pechota (U.S.A.).
In particular, the IPA is greatly indebted to Brigadier Michael N.
Harbottle (retired) (United Kingdom), both for his personal contribution
to the contents of the Handbook and for his work over two and a half
years as its compiler and editor. Without him the Handbook could not
have been completed initially. He has also overseen the preparation of the
second and third editions with the assistance of Eirwen Harbottle, who
prepared the Index, and Peter C. Harvey and Florence Musaffi, IPA staff.
The variety of experience of the contributors and the wide range of their
geographical representation have enabled the IPA to harness a great
breadth of experience to provide this reference material. It is our hope that
it will assist the nations of the world in the conduct of whatever interna-
tional peacekeeping operations are required in the future, either within the
framework of the United Nations, on which this Handbook is based, or in
a regional or multinational setting, as the leaders at the time may decide.
New York Indar Jit Rikhye
March, 1984 Major General (retired)
CHAPTER I: INTRODUCTION
Theoretical Framework
1 Every practical endeavour, if it is to be positive, must be supported by
a theoretical framework; just as theory needs practical implemen-
tation to prove its effectiveness and establish its validity.
2 The theoretical concept of international peacekeeping is that the
control of violence in interstate and intrastate conflict is possible with-
out resort to the use of force or enforcement measures. There are
those, military practitioners and peace theorists among them, who
believe that force has to be met by force; that in certain circumstances
enforcement can prove an effective purgative and as such is good for
the system. However, it is a fact that, taken in the context of both
interstate and intrastate conflict, force and enforcement tend to ex-
tend and prolong a conflict rather than reduce it; and that military
counter measures in an internal security situation can stiffen rather
than lessen resistance. On the other hand, some forms of military
intervention can provide a stabilizing factor in a conflict or violence
situation, thereby allowing other agencies a better opportunity for
dealing with the political and socio-economic problems that form the
roots of the particular conflict. // is these latter problems that require
resolution if a lasting solution is to be found.
3 Although in this Handbook we consider only the skills and procedures
of military peacekeeping, it is important to recognize that inter-
national control of conflict embraces a wider horizon than the purely
military aspect; for it is not simply a military responsibility but a com-
bined operation encompassing all the agencies that have a contri-
bution to make to the peaceful containment and ultimate settlement of
a conflict, the reestablishment of stability, and the rehabilitation of
community life. When therefore one is considering peacekeeping, it is
necessary to consider the parallel dimensions of peacemaking
(negotiation and mediation) and peacebuilding (social change through
socio-economic development, rehabilitation and reconstruction); for
together they comprise the three dimensions of peace construction and
as such are interrelated. It is of the utmost importance for it to be
recognized that singly none of these three elements can resolve con-
flict; that it is only through an application of all three that the
possibility can exist. All too often the peacekeeping operation is
criticized and pronounced a failure when its efforts have not produced
a solution. Often the peacekeeping operation has done all that it was
created to do in bringing about a cessation of hostilities and a measure
of stability, but the advantages that have resulted from a reduction in
the violence and fighting have not been exploited by the politicians.
1
2 PEACEKEEPER'S HANDBOOK
Public opinion is quick to denigrate and blame the physical weakness
of UN peacekeeping forces without appreciating the terms of
reference or the mandate under which they are required to operate.
Nor does the public recognize that a peacekeeping force is no more
than a single agency, created to assist the processes of peaceful settle-
ment. In any preparation for peacekeeping, the potential peacekeeper
must begin by recognizing this fact.
4 It is equally important that the peacekeeper should develop a wider
understanding of the third party role that he will be called upon to play.
In Chapter III: The Principles and Mounting Procedures, and Chapter
V: Operational Handling and Techniques, it is made apparent how
different and how wide is the field of activity compared to that nor-
mally experienced in conventional soldiering. The typology of peace-
keeping with which this Handbook is concerned is structured on the
concepts of mediation, negotiation and conciliation being the precepts
on which the soldier peacekeeper bases his initiatives for settling dis-
putes and preventing violence—not by relying on his self loading rifle.
This is a second criterion which the soldier, professional or volunteer,
should fully understand. As Chapter IX: Preparation and Prepared-
ness explains, a peacekeeping soldier will be required to adjust, both in
attitudes and approach, to the demands of the particular operational
situation in which he is involved and to the motivations and cultural
backgrounds of the people and groups who are the parties to the
dispute. This will not only require an adjustment but also an extension
of the strictly defined frontiers of normal military operational beha-
viour. In a role where conciliation rather than arbitration is the key
factor, the importance of person to person, group to group relation-
ships between the peacekeeping force and the communities or states
that it serves cannot be stressed too highly; for it is through these
relationships that the physical abatement of violence can become a
reality.
5 In essence, therefore, the theoretical concept behind third party peace-
keeping is that the ending of conflict and control of violence can be
achieved by other means than by enforcement and/or counter-
violence. In assessing the typology of conflict control to be used for
any conflict situation, the peaceful third party intervention deserves
every bit as much consideration as enforcement action. Since no two
conflict situations are ever likely to be the same, the nature of the
peacekeeping initiative and structure cannot be standardized but must
suit the pattern of the conflict. The more domestic the conflict, the
more multiprofessional is the third party intervention likely to have to
be. The yardstick for any peacekeeping initiative must be that of
relevance and suitability; the form and composition of the peace-
keeping operation will evolve from an assessment of these two. One is
well aware that peacekeeping skills and techniques are still in the
INTRODUCTION 3
development phase; third party peacekeeping as practised by the
United Nations is itself in its infancy; it is the object of this Handbook
to assist in furthering that development.
Purpose and Structure
6 The Handbook, in every respect, is a practical attempt to clarify for
the practitioner the complexities of international peacekeeping and to
explain the techniques and procedures of third party roles in inter-
national and intranational conflict. The descriptive term 4'Hand-
book" purposely has been chosen to describe its character so as to
underline the point that this is a guidebook, not a manual. "Manual"
would imply a degree of authority which the publication does not and
is not meant to possess.
7 Essentially the Handbook aims to familiarize the peacekeeper with the
practical and physical skills and procedures commonly practised in
United Nations operations and missions. To this end the Handbook
becomes a tool for skill and technique training which can be used to
prepare soldiers, individually or collectively, for peaceful third party
roles in interstate and intrastate disputes. The Handbook in no way
sets down hard and fast rules; on the contrary, it aims to provide a
working knowledge of past experience and evaluation drawn from a
range of examples from previous or existing United Nations
Operations and Missions. In effect, it is a compendium of peace-
keeping data on which national governments can base any preparatory
instruction they might wish to implement in their armed forces. It is to
be hoped that the Handbook not only will form the training base on
which future peacekeepers will be trained and contingents prepared
for service with the United Nations, but will also be used as a field
force notebook and carried by officers on operations.
8 The Handbook therefore has been designed for use both in the class-
room and in the field. It is loose leaf to facilitate easy amendment and
the inclusion of new chapters as they are written. Amendments and/or
new chapters will be produced by the International Peace Academy,
New York as may be necessary.
9 A general synopsis of the contents of the Handbook, listed by
chapters, is set out below :-
Chapter I Introduction
Chapter II describes the main organs of the United
Nations, indicating their functions in relation
to international peace and security, their
powers and their responsibilities; appropriately
annotated to show the relevant Articles of the
United Nations Charter.
4 PEACEKEEPER'S HANDBOOK
Chapter III sets out the principles on which is based the
current policy on UN peacekeeping—no use of
force; acceptability only on request or with
consent of host country or countries; broad
geographical representation of member states:
ad hoc deployment procedures; mounting res-
ponsibility of UN Headquarters Secretariat; etc.
Chapter IV gives a detailed overview of Standing Operating
Procedures set out under section and sub-
section heads in the order in which they can be
expected to be chronicled. Under each will be
found explanatory paragraphs of the in-
formation likely to be contained there.
Chapter V explains the skill and technique requirements
for the chief aspects of a peacekeeper's duties:-
a Observation; b Surveillance and Supervision;
c Interposition; d Patrolling and Reporting; e
Investigation of Complaints; f Negotiation and
Mediation; g Information Gathering.
Chapter VI explains the organization and procedures for
the logistics support of a UN operation at, a
UN Headquarters levçl; b Force Headquarters
level; c National Contingent level.
Chapter VII explains the organization and structure of the
communications system within a UN Force,
and describes the working procedure for
internal/external radio and line transmission of
messages.
Chapter VIII describes the role and responsibilities of the
Military Economics and Humanitarian Relief
Office of a UN Force, and explains how its
work relates to that of a Force's political and
legal department and/or to a companion UN
Civilian (Relief) Operation, where one exists.
Chapter IX emphasizes the need for military thinking in
respect of skill and technique training for UN
peacekeeping operations, and suggests ways in
which soldier and civilian peacekeepers can be
prepared in their own countries for service in a
UN Force or Mission.
Chapter X describes thé role and responsibilities of civilian
police (UNCIVPOL) when deployed as a part
of a UN Force; giving emphasis to the im-
portance and value of their contribution to the
settlement of, and the exercise of a restraining
influence on, violent issues and actions of a
civil nature.