PRESS RELEASE M-NACC-2(95)123                 
For immediate release
6 December 1995


         MEETING OF THE NORTH ATLANTIC COOPERATION COUNCIL
                    NATO HEADQUARTERS, BRUSSELS

                          6 December 1995


                FOLLOW-ON TO THE 1993 ATHENS REPORT
                   ON COOPERATION IN PEACEKEEPING

Introduction

     1.   In his "Supplement to An Agenda for Peace",
based on the lessons learned since "An Agenda for Peace"
was published, the United Nations Secretary-General notes
the significant changes that have recently taken place "in
both the volume and the nature of the United Nations
activities in the field of peace and security".  Since the
1993 Athens Report on Cooperation in Peacekeeping, many of
us have found ourselves involved in a number of what the
UN Secretary General has called "multifunctional
peacekeeping operations".  These operations have been
based on a broader understanding of peacekeeping and have
often been carried out in the context of evolving crises,
where it has been more difficult to maintain the consent
of the parties and hence to implement the mandate.  While
the priority of the UN Security Council is to resolve the
dispute by peaceful means, including the use of
"provisional measures" referred to in Article 40 of the UN
Charter, under these circumstances, the UNSC has
occasionally authorised enforcement measures in order for
the mandate to be fully implemented.  This has involved
greater risks to the peacekeeping forces and other
personnel involved in the operations.  

     2.   In its continuing endeavour to share experiences
and learn lessons from peacekeeping operations, the
Political Military Steering Committee/Ad Hoc Group on
Cooperation in Peacekeeping has become aware of the need
to elaborate on the principles contained in the Athens
Report better to reflect recent operations.  This
Supplement is, therefore, intended to be read in
conjuction with the Athens Report, which remains a basic
working document, and to enhance our common understanding
of developments in peacekeeping, so that we are better
able to cooperate jointly in peacekeeping operations.  It
therefore provides a conceptual frame of reference for
principal aspects of peacekeeping operations that are
multifunctional in character, with a view to encouraging
and facilitating peacekeeping contributions by NACC/PfP
members, on a case-by-case basis, and in accordance with
the provisions of the UN Charter and with national
decision-making procedures.  This document does not seek
to determine the nature of future peacekeeping operations. 


     3.   We remain committed to the principle of the
peaceful settlement of disputes.  Recent peacekeeping
operations have evolved from traditional peacekeeping
operations, which still have their place in the peaceful
settlement of international disputes.  The underlying
principles of all peacekeeping operations remain the same: 
they are based on the UN Charter and, as appropriate, in
the case of OSCE-mandated operations, on relevant OSCE
documents; they are aimed at creating favourable
conditions for parties to the conflict to reach mutually-acceptable
agreement, which remains the only way to
guarantee firm and durable settlements to crises; they are
directed at supporting peace efforts and at moderating
conflicts, as the situation requires; and they do not aim
to impose political solutions to such conflicts.

General Characteristics

     4.   These recent multifunctional peacekeeping
operations encompass both elements of traditional
peacekeeping and new tasks.  These include:  

     -    control and verification of compliance with
          ceasefire agreements or armistice; 
     -    assistance to fulfilment of agreements on
          peaceful settlement of the conflict; 
     -    preventive troop presence; 
     -    guarantee and denial of movement; 
     -    mineclearing; 
     -    demobilisation operations, including those
          involving foreign military personnel; 
     -    humanitarian relief and assistance for civilian
          populations, including refugees; 
     -    development assistance; 
     -    human rights monitoring, protection and
          restoration; 
     -    assisting in election organisation and
          monitoring; 
     -    the maintenance or restoration of civil order
          and the rule of law; and 
     -    coordination of activities supporting economic
          rehabilitation and reconstruction.  

Such operations may be undertaken in a hostile
environment, sometimes within a state where factions or
irregular forces not controlled by the government may be
operating.   

     5.   Peacekeeping operations are carried out by the
UN or, as appropriate, by the OSCE, with the consent of
the principal parties to a conflict.  However, this
consent, which should always exist at the
strategic/political level, may not always have the full
support of local authorities or forces.  These operations
may require the application of a range of measures,
including, where appropriate, a determined use of force in
conformity with the relevant Resolutions of the UN
Security Council, in order to allow for the mandate to be
fully implemented.  As a consequence, the UNSC would
authorise a multifunctional peacekeeping operation under
Chapter VI; but for some elements of certain UN
operations, the authorisation of the UNSC can also be
given for use of force in accordance with Chapter VII.  An
operation, however, is not under any circumstances to
become a peace enforcement operation without specific
authorisation from the UN Security Council. 

     6.   Principles and Criteria.  The following
refinement of principles and criteria normally associated
with peacekeeping reflects the complex, multifunctional
nature of recent peacekeeping operations:

-    Clear and Precise Mandate.  The Athens Report states
     that "the basis for any mission is a clear and
     precise mandate of the UN or the CSCE, developed
     through consultations with contributing States and
     organisations and/or interested parties, covering all
     of the essential elements of the operation to be
     performed".  Mandates for peacekeeping operations
     should be achievable and realistic, and linked to
     clear political goals.  It is particularly important
     in multifunctional peacekeeping operations that clear
     mission guidance aimed at achieving political
     objectives on the basis of the principle of the
     peaceful settlement of the dispute be translated to
     Commanders on the ground, who can find themselves
     working in extremely complicated local situations. 
     The mandate in such cases should be carefully crafted
     so as to permit a range of measures in response to
     evolving conditions on the ground, while not leading
     to an escalation of the operation.  Appropriate
     advance contingency planning, including appropriate
     military and civilian advice on operational
     feasibility, would be useful as a support to the
     initial drafting of mandates.  When operating
     environments change substantially, mandates should be
     changed or, alternatively, missions ended.  As well
     as when the mandate is first drafted, troop
     contributing states should also be consulted at times
     of:

     -    extension of the mandate, or its revision;
     -    a fundamental change of the situation in the
          mission area, which could negatively affect the
          implementation of the mandate;
     -    consideration of partial or complete termination
          of the mission.  

-    Consent of the Parties.  According to the Athens
     Report, "consent and cooperation of the parties to
     the conflict are essential prerequisites for a UN
     peacekeeping operation based on Chapter VI of the UN
     Charter or for a CSCE peacekeeping operation. 
     Exceptions are only possible if an operation has been
     based on Chapter VII of the Charter by the UN
     Security Council".  Therefore, the principle of
     consent remains crucial for any peacekeeping
     operation under Chapter VI of the UN Charter.  In
     this case, overall strategic/political consent for
     the mission and its objectives is an essential
     element that underwrites peacekeeping, even though it
     cannot always be guaranteed at the local level.  Loss
     of consent can have a negative impact on the
     relationship between the peacekeepers and the parties
     to the conflict, subject peacekeeping forces and
     other personnel involved in the operation to serious
     threats to life and property, and can jeopardise the
     achievement of the mandate.  Once a peacekeeping
     operation is underway, the loss of overall
     strategic/political consent would render its
     continuation as a peacekeeping mission impossible and
     would result in the need for the mandating body to
     bring the mission to an end.  An important aim in a
     peacekeeping operation, along with the diplomatic
     process aimed at peaceful settlement of the dispute,
     is therefore to maintain and consolidate consent for
     the mission and its objectives by all parties
     involved.  Commanders should strive, to the extent
     possible consistent with the mandate, to retain local
     consent, though this may be difficult because of the
     complex nature of the situation.  

-    Impartiality.  As NACC Ministers agreed in Athens,
     "all aspects of an operation need to be conducted
     impartially, in a manner compatible with the nature
     of the operation, as defined by its mandate". 
     Impartiality signifies that peacekeeping forces and
     other personnel involved in a multifunctional
     peacekeeping operation do not take a side or part in
     a conflict.  Impartiality means the even-handed
     treatment of the parties under the terms of the
     mandate; several measures in accordance with the UN
     Charter, including, as appropriate, the use of force,
     can be applied against one or another of the parties. 
     The use of these measures shall be without prejudice
     to the rights, claims or positions of the parties
     concerned.  Such measures must be balanced against
     the need not to compromise the perception by the
     parties at the strategic/political level of the
     impartiality of the peacekeeping force, thereby
     risking a loss of consent at this level.  It is
     important that peacekeeping is not only impartial but
     is seen to be impartial.  

-    Use of Force and Force Configuration.  As stated in
     the Athens Report, "in all types of operations, the
     extent to which force can be used needs to be clearly
     defined either in the mandate or in the terms of
     reference.  If authorised, use of force must be
     carefully controlled, flexible and at the lowest
     level consistent with the execution of the mandate. 
     Forces involved in any operation retain the inherent
     right of self-defence at all times".  The force
     should be equipped and configured to be able to
     protect itself, to ensure that the mandate can be
     properly implemented, to discourage and to resist
     forceable attempts to prevent it from implementing
     the mandate, and, if required by the mandate, to
     prevent human rights violations, bearing in mind the
     possibility of a deterioration of the situation on
     the ground.  In all cases, the use of force in any
     peacekeeping operation shall be in accordance with
     the provisions of the UN Charter and the rules of
     international law; only the minimum force necessary
     should be used.    

-    Rules of Engagement.  Rules of Engagement (ROEs)
     should reflect the United Nations/OSCE formal
     political and legal directives and provide guidance
     to commanders at all levels, thus governing the use
     of force.  ROEs are to be based strictly on the
     mandate and relevant UNSC Resolutions and other
     appropriate documents and developed in consultation
     with troop contributing nations.  ROEs should be
     agreed and distributed early to ensure effective
     preparation by troop contributors and could be made
     known, where appropriate, to the parties.

-    Participation.  According to the Athens Report, "The
     choice of contributors should take account of
     cultural, historical and political sensitivities and
     provide for multinationality of an operation". 
     Therefore, it is desirable to seek wide participation
     in the forces carrying out peacekeeping operations. 
     Moreover, multinational composition of the
     peacekeeping force can improve the perception of its
     impartiality in the eyes of the parties to the
     conflict.

-    Safety of Personnel.  All personnel involved in an
     operation should be trained and equipped in such a
     manner as to maximise their safety while carrying out
     their task.  The safety of personnel is an important
     priority of the United Nations, as reflected by the
     Convention on the Safety of United Nations and
     Associated Personnel, and should be respected by the
     parties to the conflict.

-    Conditions for Terminating the Operation.  The
     mandating body must define the desired end-state of
     the operation.  Advance contingency planning must
     include an end-state analysis in the original concept
     of the operation, to include criteria for judging
     success and terminating the operation, as well as
     modalities for eventual withdrawal of forces.  An
     exit strategy should include planning for withdrawal
     in all of the circumstances in which a peacekeeping
     operation might be brought to an end.

-    Coordination and Liaison.  The Athens Report pointed
     out that, "to be fully effective and efficient, there
     should be close coordination of all aspects of an
     operation, including political, civilian,
     administrative, legal, humanitarian and military". 
     The timely and effective coordination of the work of
     troop contributing nations and the agencies and
     organisations involved in a mission is essential for
     achieving its objectives.  In order to ensure
     transparency and coherence, coordination arrangements
     should encompass all the political, military,
     diplomatic, administrative and humanitarian
     organisations concerned, and take into account that
     some humanitarian organisations (including UNHCR,
     ICRC, UNICEF and WFP) have permanent mandates of
     their own.  Whenever necessary, and if required by
     the nature of the mission, this coordination may
     include Non-Governmental Organisations (NGOs) and
     Private Voluntary Organisations (PVOs).  These
     coordinating arrangements should be supported by
     extensive liaison with all the agencies and
     organisations involved.  Relations between the
     military component of an operation and non-military
     agencies should be based on mutual respect,
     communication and standardisation of support in order
     to ensure that one does not undermine the efforts of
     the other, that unnecessary overlap is avoided and
     that common efforts are concentrated on prevention or
     peaceful resolution of conflicts.