SECURITY COUNCIL REPORT MONTHLY DECEMBER 2005 This report is available online and can beF viewedO togetherR withE UpdateC ReportsA on developmentsST during the month at www.securitycouncilreport.org CONTENTS OF THIS ISSUE Welcome to the second Monthly Forecast Report from Overview for December ...... 1 Security Council Report Lebanon/Syria ...... 2 Ethiopia/Eritrea ...... 4 Our first Monthly Forecast Report covered the month of November. It was Cyprus/UNFICYP ...... 6 supplemented during the month by two Update Reports: Protection of Civilians in Armed Conflict ...... 7 ■ Ethiopia/Eritrea Darfur ...... 9 ■ Liberia Golan Heights/UNDOF ...... 11 Counter-Terrorism These were published on our website www.securitycouncilreport.org: Committee Issues ...... 13 Sierra Leone ...... 14 This issue previews the month of December. The United Kingdom, represented by Haiti ...... 15 Ambassador Sir Emyr Jones Parry, will have the Presidency. Timor-Leste ...... 17 Liberia ...... 19

Overview for December The resolution follows a period of real frustra- process in Côte d’Ivoire. However, the tion amongst troop contributing countries sanctions committee has still not acted. A short month beckons in December. Delega- (TCCs) about the Council’s failure to adopt a Separately, there is growing anxiety about tions will be looking forward to the end of draft resolution earlier in November, in sup- the situation in Côte d’Ivoire because the 2005, after several months of particularly port of its beleaguered peacekeepers on the requirement in resolution 1633 for the torrid Security Council activity. border of Ethiopia/Eritrea. The limitations appointment of a compromise Prime Minister imposed on UNMEE movements by Eritrea by 31 October 2005 has not been met. It As the Council faces up to its work pro- are proving not only to be serious operational seems likely that these two aspects of the gramme for December, there are some very restrictions on the mandate, but also, as pre- situation in Côte d’Ivoire could come together big issues in prospect, like the next report dicted by the TCCs, to carry real risks to for action in December. from UNIIIC Commissioner Detlev Mehlis human life. Medical evacuations now have to on the Hariri assassination and the major Fortunately there was some good news in be undertaken in very adverse circumstances. issue of Syria’s cooperation under resolu- November. In Haiti the much postponed A resolution had been on the table for almost tion 1636. electoral process was reenergised by the a month, but had been blocked by US policy announcement of a date for first round But, what is noteworthy is the backlog of considerations. elections on 27 December. The Council may hard issues from November which are still on Similarly, the Council is still to respond to wish to welcome and encourage this the agenda. the findings of its Mission to central Africa. important step. Members will certainly be A resolution on Ethiopia/Eritrea was adopted Many had considered that a resolution on keeping a close eye on progress in the lead on 23 November. Under the terms of the res- DRC should be an essential outcome from up to the poll. olution, the Council will review the parties’ the visit to the region. The Mission report Another positive point on the December compliance upon a report of the Secretary- has been issued and a draft resolution agenda is the final expiry of the peace- General to be issued in December. In the has been circulating, but it seems likely to keeping role in Sierra Leone and the official event of failure to fulfil those demands, the rollover to December for adoption. transition to a peacebuilding mission. It is Council is expected to consider measures Another issue which had seemed well possible that the Council will want to adopt under article 41 of the Charter, which includes advanced for adoption in November was a statement marking this important develop- sanctions. agreement on the application of sanctions ment. measures on individuals blocking the peace

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org 1 December also brings with it the expiry of the becoming operational—it is unlikely to be sanctions and triggering further Council mandates of two very long standing peace- the “comprehensive” review envisaged. In consideration now lies with Mehlis. UNIIIC is keeping operations: addition, the open debate in the Council in requested to report to the Council at any ■ In Cyprus, the mandate for UNFICYP October demonstrated that countries from time if Mehlis considers Syrian cooperation expires on 16 December various regions (the South Pacific was a does not meet the requirements of resolution ■ On the Golan Heights, the mandate of noticeable example) are frustrated with 1636. And Mehlis can also, under paragraph UNDOF expires on 31 December. what they see as the CTC machinery putting 3 of that resolution, at any time designate undue burdens on them and not giving an individual as a suspect and report them Both operations are characterised by the sufficient weight to their concerns. to the Sanctions Committee, which has very fact that the political processes are stalled. short timelines for consideration of the issue. And there have been calls by Council mem- Finally, there are issues on the horizon which bers concerned about overall expenditure on may come up in December or may roll over At press time, Syria has still not complied peacekeeping for review of peacekeeping to January—depending on pressure of with UNIIIC’s request that six Syrian officials operations in such circumstances. But it is other business and when reports become should be presented for interview in Beirut. expected that resolutions renewing both available. These include Timor-Leste and In a speech on 10 November, the President operations will be adopted. In the case of the United Nations Mission in Sudan. of Syria Bachar al-Assad seemed to be UNDOF, however, renewal comes at a time signalling that Syria would not bow to the of particular sensitivity due to the pressure request from UNIIIC. Syria appears not to which the Council is placing on Syria. And Lebanon/Syria accept that it has a binding obligation in the case of UNFICYP some discussion of Expected Council Action under resolution 1636 to cooperate with further reductions or reconfiguration of the On 15 December, the next report of the UN UNIIIC on terms set by UNIIIC and that force cannot be ruled out. International Independent Investigation Damascus is not in a position to establish The Council members have already begun Commission (UNIIIC) on the assassination conditions. However, President Assad’s work on a draft resolution on the protection of former Prime Minister of Lebanon, Rafik speech did not completely exclude coopera- of civilians in armed conflict. This is one Hariri, is due. tion. A Syrian letter circulated to the Security of the major thematic issues which the Council (S/2005/717 of 15 November 2005) But, based on media reports about ongoing Council has been pursuing. In this case the is also somewhat ambiguous. It reiterates difficulties which UNIIIC Commissioner initiative goes back more than six years. The a willingness to cooperate but it is unclear if Detlev Mehlis is encountering in securing draft resolution should be largely uncontro- this means cooperation in substance. reasonable cooperation by Syria, we expect versial. Even the references to “Responsibility that the Council will take up the issue of Nevertheless, at press time Mehlis had to Protect” are essentially taken from compliance with resolution 1636 before 15 still not reported Syria to the Council for language already approved by Heads of December. non-cooperation under paragraph 13 of Government at the World Summit in resolution 1636. September. What the draft does not do is Further extension of the UNIIIC mandate is grapple with the practical implementation of also expected. There have been media reports that suggest protection standards. There were some Mehlis may not have completely ruled out The Council is also expected to endorse the important recommendations by the Secre- the possibility of interviewing Syrian officials conclusions of the Roed-Larsen report on tary-General in his 1999 report in this regard, in a third country. the implementation of resolution 1559. which may merit revisiting. With respect to the separate issues dealt Key Facts Other issues which will be in the minds of with in resolution 1559, the second semi- On 31 October, the Council adopted resolu- Council Members during December include annual report on the implementation of tion 1636 establishing a targeted sanctions’ the situation in Darfur, which the Secretary- resolution 1559 was released on 24 October. regime (travel ban and asset freeze) against General says is becoming more serious UN Envoy Terje Roed-Larsen indicated that individuals to be designated as suspects in and that the whole territory risks descending a progressive approach to the disarmament the Hariri assassination. It also decided under into lawlessness, and the situation in Guinea- of the militias by the Lebanese government Chapter VII that Syria must fully cooperate Bissau, which Brazil is pressing for the should be seen as satisfactory, but men- with UNIIIC. The resolution, adopted unani- Council to take up. tioned the transfer of weapons and personnel mously, signalled a firm expectation that between Syria and Lebanon in connection The Council will also have on its plate a range Syria should cooperate promptly and sub- with Palestinian militias as a problem. of problems in the Sanctions and Counter- stantively. There was a clear threat of “further Terrorism contexts. Sanctions issues are on action” if the requirements of the resolution Key issues the table in respect of Liberia. A review of were not met. A key issue at this time is whether, despite the Counter-Terrorism Executive Direc- the defiant tone of President Assad’s The Resolution specifies that the initiative, torate (CTED) is mandated before the end speech, there is actually a prospect of a of the year—but due to delays in CTED both in terms of implementing the individual

2 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org compromise being worked out which is pace of events. Members are therefore satisfactory to Mehlis. waiting for his conclusions. SECURITY COUNCIL REPORT A related issue, which may require Council Of course, the underlying tensions remain MONTHLY consideration and authorisation if Mehlis is between those members who will insist on considering interviews in a location other than full cooperation by Syria and those who, DEC.2005FORECAST Lebanon, is the legal framework that would because of traditional policy reluctance to apply, especially if the interviews led to a contemplate enforcement measures and UN Documents decision that criminal charges were justified. because of concerns in this case about the Security Council Resolutions stability of Syria, would counsel a more The major long term issue for the Council will gradual approach. • S/RES/1636 (31 October 2005) urged be the degree of Syrian responsibility in the Syria to cooperate with the investigation assassination as opposed to the criminal Options and established sanctions against responsibility of individuals. If Mehlis reports that cooperation is poten- suspects in the assassination. tially achievable, it is likely that his report will • S/RES/1618 (4 August 2005) on Finally, with respect to resolutions 1595 canvass various options or recommenda- terrorism and 1636, it is likely that the Council will need • S/RES/1595 (7 April 2005) established tions for the Council. to consider the nature of the trials of the UNIIIC. perpetrators. It seems increasingly accepted If he reports that satisfactory cooperation is • S/RES/1559 (2 September 2004) on the that international assistance will be sought by not achievable, the Council will inevitably be Syrian withdrawal the Lebanese authorities. presented with a draft resolution imposing Presidential Statements sanctions on Syria. There are a range of pos- And regarding resolution 1559, there could • S/PRST/2005/26 (22 June 2005) sible options: • S/PRST/2005/22 (7 June 2005) be an issue as to whether to take up this ■ Full scope economic sanctions, of the sort • S/PRST/2005/17 (4 May 2005) matter at all and, if so, whether as a resolution imposed on Iraq under resolution 661, are • S/PRST/2005/4 (15 February 2005) or a statement. an option. But because of the inevitable Secretary-General’s Reports / Letters Council Dynamics hardships on the civilian population there • S/2005/673 (26 October 2005) trans- Those Council members most determined will be resistance to imposing this kind of mission of the Roed-Larsen report on to hold Syria to its obligations under resolu- enforcement measure for a violation— the implementation of resolution 1559 tion 1636 are concerned that it might dilute albeit a very serious one—of a resolution • S/2005/662 (20 October 2005) the focus of Council attention if the Roed- requiring compliance with procedural transmission of the UNIIIC report Larsen report is taken up at this time. They requirements. Such a measure might • S/2005/393 (16 June 2005) believe that the Council energy should be however be seen as justified if Syria were • S/2005/272 (29 April 2005) concentrated on the priority issue. Others conclusively determined to have state • S/2004/777 (1 October 2004) agree that while the report does not need to responsibility for the assassination. Other be considered immediately, it should not be ■ A more targeted set of sanctions aimed at • S/2005/717 (15 November 2005) letter allowed to become stale. And they point out the regime and the institutions of the state from Syria regarding its cooperation that taking up discussion of the issue is is another option. The precedents in the with UNIIIC another point of pressure on Syria. Libya case are likely to be looked at • A/60/555-S/2005/715 (14 November very closely 2005) letter from Lebanon It remains to be seen whether the Council ■ Another option is a stepped process, • S/2005/693 (1 November 2005) letter will adopt something in December. On from Syria involving the imposition of certain targeted balance, because it will definitely have • A/60/409-S/2005/627 (4 October 2005) sanctions coupled with the establishment become stale if it is allowed to roll over to letter from Syria of a mechanism—separate from the crim- January, there is an expectation of action • S/2005/203 (24 March 2005) Report inal investigation—to follow on from the before the end of the year. of the Mission of Inquiry into the UNIIIC once criminal indictments are Circumstances, Causes and The Council dynamics on resolution 1636 issued and the evidence is available—to Consequences of the 14 February remain muted. Because it was adopted assess and report to the Council on issues Beirut Bombing unanimously, as was resolution 1595, there of state responsibility under international • A/58/883/-S/2004/706 (1 September is now a pattern of united Council action law—in particular resolution 1373. 2004) letter from Syria which most members will want to retain. ■ It is possible also that the mix of options • A/58/879-S/2004/699 (31 August 2004) letter from Lebanon Also, another reason for the muted atmo- will include decisions to be taken by sphere is that the Council has effectively Council members, in their capacities as empowered Mehlis until 15 December to members of the Sanctions Committee, in determine both the substance and the the event that Mehlis designates Syrian officials as suspects.

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org 3 Historical Background resigned under pressure from Syria. made, but they are not under the article 31 October 2005 The Council unanimously 3 September 2004 President Lahoud’s term 41 threat. adopted resolution 1636. was extended by three years, thereby abort- Expected Council Action ing the presidential electoral process. 29 October 2005 Following the recommen- We expect that the Council will revisit the dations made by Detlev Mehlis when he 2 September 2004 Following allegations of situation in December upon receipt of the briefed the Council, Syria created a special Syrian manipulation of the Lebanese elec- report of the Secretary-General. Should judicial commission to deal with all matters toral process, the Council passed resolution Eritrea fail to lift the restrictions against relating to the mission of UNIIIC. 1559 with 6 abstentions (Algeria, Brazil, UNMEE and both parties fail to redeploy 26 October 2005 The second semi-annual China, Pakistan, Philippines and Russian troops, we expect that the Council will report of the Secretary-General on implemen- Federation). seriously consider sanctions under article 41 tation of resolution 1559 became public. of the Charter, including possibly revamping Other Relevant Facts 20 October 2005 The initial report of UNIIIC the arms embargo. UN Special Envoy for Verification of was published and its mandate was the Implementation of resolution 1559 Key Facts extended until 15 December. The report Terje Roed-Larsen (Norway) From 1998 to 2000, Ethiopia and Eritrea deplored the lack of Syrian cooperation UNIIIC Commissioner fought over border territories. The conflict with the commission and revealed that the ceased with the Algiers Agreement in assassination could not have occurred Detlev Mehlis (Germany) December 2000, after international pressure without the knowledge of Lebanese and Size and Composition of Commission including an arms embargo imposed by the Syrian security services. 129 members, including active investiga- Council, which was subsequently lifted. The tors, translators, security guards, drivers 12 September 2005 The Secretary-General Council entrusted UNMEE with, inter alia, and administrators of 14 different nation- agreed to extend the Commission’s mandate monitoring the Temporary Security Zone (TSZ), alities. The staff are UN employees. by forty days. a buffer area along the border. The Agree- Funding 29 April 2005 The Secretary-General, in his ment stipulated a final and binding decision first semi-annual report on the implemen- The funding comes from the regular from an independent Boundary Commission. budget and was approved by the tation of resolution 1559, advised that the This was handed down in April 2002. Advisory Committee on Administrative withdrawal of troops, military assets and and Budgetary Questions (GA). The peace process has been stalled since intelligence apparatus was underway. 2003, when Ethiopia refused to allow demar- However, there was no progress on the Appointment process cation of the border. Ethiopia demanded that implementation of the other provisions of The task of recruiting the members was the line be varied to take into account “human the resolution. entrusted to DPA, in cooperation with DPKO (Office of Mission Support). UNIFIL and physical geography”. It has since stated 26 April 2005 Syria confirmed the withdrawal and ESCWA in Beirut also provided tech- that it accepts the decision “in principle”, of Syrian troops, apparatus and assets from nical assistance and logistical support. while it requests review of certain locations, Lebanon. The Secretary-General dispatched Activities especially the town of Badme and the region a UN mission to verify. of Irob. Addis Ababa faces increasing The modalities of cooperation with the pressure from domestic constituencies not 7 April 2005 Resolution 1595, passed unani- Lebanese government are defined in mously, established UNIIIC, based in a Memorandum of Understanding to concede any more territory to Eritrea. The Lebanon, to assist the Lebanese authorities between Lebanon and the UN. country has also stressed that further issues in their investigation of the assassination. need to be addressed, such as Ethiopia’s 29 March 2005 Lebanon confirmed its full access to the sea. cooperation with the investigation commis- Ethiopia/Eritrea In October, Eritrea introduced limitations on sion in a letter to the Council. the movement of UNMEE personnel. The 24 March 2005 The report of the Fitzgerald Recent Developments restrictions (i) violate agreements with Mission of Inquiry into the 14 February Beirut The Council adopted resolution 1640 on 23 Ethiopia, (ii) endanger the lives of peace- bombing concluded that an international November, demanding that Eritrea lift the keepers, thus raising concerns among troop investigation was needed. restrictions imposed against the UN Mission contributing countries (TCCs), and (iii) restrict in Ethiopia and Eritrea (UNMEE) and that 15 February 2005 The Council requested UNMEE’s ability to monitor the TSZ and both parties redeploy their troops. The from the Secretary-General to report urgently adjacent areas. Secretary-General is expected to report on on the circumstances, causes and conse- the parties’ compliance in December. The Eritrea has stood firmly against any special quences of the bombing. Council will then consider measures under envoys to the region or contacts with 14 February 2005 Rafik Hariri and twenty article 41 of the Charter if the parties fail Ethiopia, which it perceives as tantamount others were killed by truck bomb in Beirut. to comply. Demands on Ethiopia to allow to compromising on immediate demarcation. 20 October 2004 Rafik Hariri, Prime Minister, demarcation of the common border are also It has also voiced strong criticism of the

4 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org Council for not robustly enforcing the Underlying Problems Commission’s decision. The war had a deep impact on civilians, and its humanitarian effects are still felt on SECURITY COUNCIL REPORT Troop movements along the border on both the ground. Frequent drought and food MONTHLY sides have been reported, as well as viola- insecurity continue to inflict a heavy toll on tions of the TSZ. Much to the concern of DEC.2005 populations in both countries. FORECAST TCCs, further instances of risky evacuations by road have been necessary due to Eritrea’s The Boundary Commission found in July • S/2000/785 (9 August 2000) reported ban on the use of helicopters. 2002 that Ethiopia had settled nationals in on the new size and mandate for territory awarded to Eritrea, and ordered UNMEE. The Council issued a Press Statement on 3 Ethiopia to remove such settlements. Ethio- Press Statements November, and it sent to the region Ambas- pia has failed to comply with the Order. sador Kenzo Oshima of Japan from 6 to 9 • SC/8547 (3 November 2005) by the President of the Council November. The visit was not able to secure UN Documents • SG/SM/10198 (2 November 2005) by any reduction in the restrictions on UNMEE, Security Council Resolutions the Secretary-General nor was it able to reduce tensions But it • S/Res/1640 (23 November 2005) cemented consensus on the current sanc- Other threatened sanctions. • S/2005/723 (17 November 2005) is tions threat against Ethiopia and Eritrea. • S/Res/1622 (13 September 2005) the report of Ambassador Oshima’s further adjusted UNMEE. Key Issues mission. • S/Res/1560 (14 September 2004) The Council still faces the need to apply • S/2005/688 (31 October 2005) is a adjusted UNMEE’s presence and effective pressure on the parties, including letter from the President of Eritrea operations. sanctions, should they fail to comply. A loom- • S/Res/1320 (15 September 2000) ing issue will also be the demarcation of increased UNMEE to 4,200 and Historical Background the border. An aspect of this issue is the authorised it to monitor the TSZ, October 2005 Eritrea imposed restrictions on extent to which the Council is perceived to inter alia. UNMEE’s movement. be acting with an even hand. • S/Res/1312 (31 July 2000) established February 2005 Boundary Commission closed UNMEE. down Field Offices. Council Dynamics • S/Res/1298 (17 May 2000) established September 2004 UNMEE downsized. Achieving agreement has eluded the Council an arms embargo and a Sanctions for almost a month largely due to US policy Committee. September 2003 Ethiopia refused to allow the positions. However, a growing consensus on Presidential Statements full demarcation of the border. the issue has nonetheless been emerging in • S/PRST/2005/47 (4 October 2005) April 2002 Boundary Commission ruling the past few days, and this is reflected in the urged Eritrea to lift restrictions. handed down. resolution recently adopted. • S/PRST/2001/14 (15 May 2001) noted December 2000 Algiers Agreement signed. the termination of the arms embargo. Negotiations sought to balance between July 2000 UNMEE established. demanding Ethiopia’s compliance with the Reports of Security Council Missions to Ethiopia and Eritrea June 2000 Ceasefire signed; TSZ estab- delimitation decision on the one hand, and, lished. on the other, emphasising that Eritrea’s • S/2002/205 (27 February 2002) restrictions must be condemned and cannot • S/2000/413 (11 May 2000) 1999 The conflict escalated to full-fledged be used as a bargaining tool. Eritrea’s pres- Secretary-General’s Reports war. Both parties accepted the Framework ent stance is seen by many Council members • S/2005/553 (30 August 2005) and Agreement. as highly dangerous and counterproductive. Add.1 (6 September 2005) is the latest 1998 Eritrea took over Badme; battle report. ensued. Options • S/2005/142 (7 March 2005) details 1993 Eritrea became independent. Possible options before the Council include: steps necessary to finalise demarcation. 1962 Ethiopia annexed Eritrea; fighting ■ Reactivating sanctions against both • S/2004/708 (2 September 2004) began. parties; proposed adjustments to UNMEE. 1952 Eritrea and Ethiopia formed a federation ■ Sponsoring a more intimate involvement • S/2003/1186 (19 December 2003) following UN General Assembly Resolution of the “witnesses” to the Algiers Agree- details Ethiopia’s refusal to allow 390 (V). ment (African Union, EU, UN and US); demarcation and has responses and, as a last resort, from Eritrea and the Commission. ■ Downsizing or withdrawing UNMEE. • S/2003/257 (6 March 2003) and Add.1 (31 March 2003) details the Ethiopian interpretation of the demarcation process and the Commission’s views.

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org 5 Other Relevant Facts The negotiation process remains stalled. Another option which might be a possible Special Representative of the Urged by the Secretary-General, the Greek compromise between those who want to Secretary-General and Chief of UNMEE Cypriots in May 2005 presented their retain UNFICYP at current levels and Legwaila Joseph Legwaila (Botswana) position on what should be altered in the those who are keen to see some incentives Size and Composition of UNMEE Annan plan. Sir Kieran Prendergast, then for further progress in negotiations might be Under-Secretary-General for Political Affairs, for the Council to reactivate the recommen- Authorised maximum strength: 4,200 said in June that a big gap between the two dation by the Secretary-General in his 28 troops. communities remained. May 2004 report that the Council should Strength as of 31 August 2005: 3,293 address the issue of the “unnecessary military personnel. On 3 October 2005, Turkey began accession restrictions and barriers that have the effect Troop contributing countries: Algeria, talks with the European Union. Austria, Bangladesh, Bosnia and Herze- of isolating the Turkish Cypriots and impeding govina, Bulgaria, China, Croatia, Czech The September 2004 report of the Secretary- their development.” Republic, Denmark, Finland, France, General led to a modification of the size, Underlying Problems Gambia, Germany, Ghana, Greece, India, composition and conception of UNFICYP. The parties now face the reality that the Iran, Italy, Jordan, Kenya, Malaysia, Its political and civil affairs branch was Turkish Cypriots will not easily be persuaded Namibia, Nepal, Nigeria, Norway, Para- expanded. The military force was reduced guay, Peru, Poland, Romania, Russian to renegotiate a plan that they have already and the military concept of operations was Federation, South Africa, Spain, Sweden, approved by referendum. Accordingly, a new recast as “concentration with mobility.” Switzerland, Tanzania, Tunisia, Ukraine, process of negotiation remains to be found. United States, Uruguay and Zambia. Key Issues In time, it is likely that it will fall to the United Cost The only immediate issue for Council Mem- Nations to find ways to bring the parties back Approved budget: 1 July 2005 - 30 June bers is whether the size of UNFICYP should to the negotiating table. However, the Secre- 2006: $185.99 million (gross) be further diminished and the concept of tary-General is reluctant to commit resources operation further reshaped. Duration to the issue until the parties give him some 31 July 2000 to present Council Dynamics grounds for confidence that there is real Some Council members believe that commitment to the process. UNFICYP should remain as long as Cyprus Increasingly, it seems that without an ongo- is divided. Others consider that with the Cyprus/UNFICYP ing peace process, support for UNFICYP will reduced risk of conflict, an additional reduc- likely erode further over time. Expected Council Action tion of its military component is possible. On 15 December 2005, the mandate of the Supporters of the status quo will argue that UN Documents United Nations Peacekeeping Force in the military component cannot be further Selected Resolutions Cyprus (UNFICYP) will expire, and the downsized without altering the mandate. • S/RES/1604 (15 June 2005) Council is expected to renew the mandate The United States has expressed strong • S/RES/1568 (22 October 2004) for an additional six months. interest in eliminating peacekeeping forces endorsed the recommended changes to the concept of operations and force Key Facts where the violence levels are low but the level of UNFICYP. Following several months of good offices negotiating process is stalled. It remains • S/RES/1548 (11 June 2004) welcomed by the Secretary-General, including a three- to be seen whether the United States will the Secretary-General’s intention to phase process of negotiations between the advance UNFICYP as a candidate for its conduct a review of the UNFICYP Turkish Cypriots and the Greek Cypriots, the proposed review process. mandate. “Foundation Agreement of the Comprehen- • S/RES/1251 (29 June 1999) expressed Another important aspect of the Council sive Settlement of the Cyprus Problem” concern about the military build-up on dynamic will be that Greece, which has proposed by the Secretary-General, was both sides. traditionally been a very strong supporter of submitted to separate simultaneous refer- • S/RES/939 (29 July 1994) requested the Greek Cypriot position, is a Council enda on 24 April 2004. The plan called for a the Secretary-General to start member through 2006. Russia also leans to bi-zonal, bi-communal independent state consultations. the Greek Cypriot position, and this forms a and required approval on both sides to enter • S/RES/550 (11 May 1984) further stronger than usual lobby in the Council in condemned Northern Cyprus. into force. While the Turkish Cypriots widely support of the status quo. • S/RES/541 (18 November 1983) voted in favour of the settlement proposal, invalidated the creation of the Turkish the Greek Cypriots rejected it, subsequently Options Republic of Northern Cyprus. entering the European Union as a divided Council Members might consider the option • S/RES/186 (4 March 1964) established island. The Secretary-General’s good offices of modifying the mandate of UNFICYP in UNFICYP. ended as a result of this stalemate. order to replace the troops with military Most recent Secretary-General’s observers. Reports on UNFICYP

6 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org • S/2005/353 (27 May 2005) 4 March 1964 Resolution 186 established • S/2004/756 (24 September 2004) UNFICYP with a mandate to prevent a recommended a review of the recurrence of fighting between the Greek SECURITY COUNCIL REPORT mandate, force levels and concept Cypriot and Turkish Cypriot communities. MONTHLY of operations of UNFICYP. 1963 Constitutional rule in Cyprus collapsed • S/2004/427 (26 May 2004) DEC.2005 in the wake of intercommunal strife. FORECAST • S/2004/302 (16 April 2004) Most recent Secretary-General’s 1960 Republic of Cyprus founded by the and also relief workers, thereby dramatically Reports on his Mission of Good Offices Turkish and Greek communities who shared worsening their conditions in conflict situa- in Cyprus power. tions. Therefore, he identified protecting • S/2004/437 (28 May 2004) civilians as a “humanitarian imperative”. At Other relevant facts • S/2003/398 (1 April 2003) the initiative of Canada, the issue of the Special Representative of the Other protection of civilians in armed conflict was Secretary-General and Chief of Mission • S/PV.5211 (22 June 2005) Briefing to first introduced to the Security Council on 12 • Michael Møller (Denmark) the Council by Kieran Prendergast on February 1999. Following an open briefing, the situation of the negotiation process Force Commander a presidential statement was adopted, in Cyprus Major-General Herbert Joaquín Figoli requesting the Secretary-General to submit Almandos (Uruguay) a report giving the Council insights on how Historical Background Size and Composition of Mission it could improve the physical and legal 3 October 2005 Turkey’s accession negotia- • 1,008 total uniformed personnel, protection of civilians. To date, the Secretary- tions to the EU began. including 949 troops and 59 police; General has issued four reports and the 30 May 2005 With the aim of examining the supported by 36 international civilian Security Council, in addition to holding semi- possibilities for the resumption of a new personnel and 110 local civilian staff annual open briefings, has adopted two dialogue on the Cyprus issue, Prendergast • Major troop contributors: UK, resolutions and six presidential statements. went to Cyprus. He briefed the Council on Argentina, Slovakia, Hungary Resolution 1265 of 17 September 1999 his conclusions on 22 June. Cost (approved budget) expressed concerns about the erosion in • 1 July 2005 - 30 June 2006: $46.51 1 May 2004 The Republic of Cyprus, without respect for humanitarian, human rights and million (gross), including voluntary its Turkish northern part, joined the EU. refugee law and principles in armed conflict contributions of one-third share from 24 April 2004 The Annan Settlement Plan and strongly condemned deliberate target- Cyprus and $6.5 million from Greece on uniting the island was subject to a twin- ing of civilians. It expressed Council’s referendum. The Turkish north accepted the willingness to respond through the consider- plan by 64.9% while the Greek south rejected ation of appropriate measures to situations of it by 75.8%. Protection of conflicts where civilians were targeted and April 2003 The cross island’s dividing “green Civilians in Armed Conflict humanitarian assistance was deliberately obstructed. Resolution 1296 of 19 April 2000 line” opened. Expected Council Action reaffirmed Council’s concerns, affirmed its November 2002 Secretary-General Kofi The Council will hold an open briefing and is intention to ensure that peacekeeping Annan presented a comprehensive peace expected to adopt a third resolution on missions be given suitable mandates and plan for Cyprus that envisaged a federation strengthening and enhancing the protection adequate resources to protect civilians under with two constituent parts, presided over by a of civilians in armed conflicts which will pick immediate threat of physical danger, and rotating presidency. up the language approved by Heads of focused on several operational areas of Government at the September World Summit January 2002 Cyprus President Glafcos protection. It also requested the Secretary- on responsibility to protect civilians. A Clerides, and the leader of Turkish Cypriots, General to bring to its attention situations in report of the Secretary-General is due 28 Rauf Denktash, began UN-sponsored nego- which civilians were particularly vulnerable November. An Arria formula briefing was tiations to reunify the island. and to address issues related to the protec- hosted by the UK on 22 November 2005. 1983 Foundation of the Turkish Republic of tion of civilians in his periodic reports on Northern Cyprus was self-proclaimed and Key Facts the matters with which the Council was immediately declared illegal by the Council The growing need for enhanced protection of already seized. in resolution 541 (1983). civilians in armed conflict was first addressed In 2002, Norway, at the time an elected in detail in the report of the Secretary-General 1974 A coup d’état by the Greek army Council member, led the way in preparing in on the causes of conflict in Africa (S/1998/ officers stationed on the island overthrew consultation with the Secretariat, an aide 318 of 13 April 1998). The Secretary-General the president of Cyprus. A subsequent memoire that highlighted specific issues for observed that a deterioration of the respect Turkish military intervention led to a division consideration in addressing protection of for international humanitarian norms had led of Cyprus into a Turkish Cypriot north and a civilians in armed conflict as well as listed in the preceding years to targeting civilians Greek Cypriot south. previous Council resolutions and statements

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org 7 with reference to similar concerns. The ■ However, a second option, reflected in the from the President of the Council to document was adopted as an annex to a draft that is circulating, is for the Council to the Secretary-General presidential statement and was meant as a be more assertive with regards to particu- • S/2000/298 (7 April 2000) letter from practical tool assisting the Council in analys- lar fields of concern: respect for interna- the President of the General Assembly ing and diagnosing protection issues as well tional humanitarian law, condemnation of on behalf of the Special Committee on Peacekeeping Operations to the as in drafting resolutions and designing sexual abuse against women and President of the Council peacekeeping mandates. children, need for addressing sexual abuse by members of UN field operations, • S/2000/119 (14 February 2000) letter from the President of the Council to the In December the Council, under the UK necessity to ensure safe access to conflict President of the General Assembly presidency, will consider a third resolution on areas for humanitarian personnel, conveying four recommendations the protection of civilians in armed conflict. strengthening of DDR processes and, from the informal working group on The text, a draft of which is already being possibly, the use of force to protect the protection of civilians in armed circulated, will take up the language of the civilians, drawing upon the concept of conflicts for the Special Committee 2005 World Summit Outcome Document responsibility to protect. on Peacekeeping Operations with its provisions regarding the responsibility ■ A third option is for the Council to revisit to protect populations from genocide, war the recommendations of the Secretary- Historical Background crimes, ethnic cleansing and crimes against General in paragraphs 60-63 of his 1999 14-16 September 2005 World Summit was humanity. It is also expected to emphasize report which were not taken up at that held in New York, in its final document, it reaf- the unacceptability of impunity for such time and which specifically address the firmed the responsibility to protect civilian crimes; to condemn in strongest terms sexual issue of implementation in the field. populations from crimes against humanity. and all other forms of violence against women 21 June 2005 A Presidential Statement was and children in situations of armed conflict; Underlying Problems adopted expressing concern over the limited and to deplore all acts of sexual exploitation, Despite significant progress to protect civil- progress on the ground to protect civilians abuse and trafficking by personnel involved ians since this issue first was raised by the and expressing intention to take further in UN operations. Council, there is still a wide gap between the rhetoric and the actual ability of the action, including the adoption of a possible Key Issues Council to ensure that peacekeeping new resolution. One of the main issues for the Council has missions and UN agencies implement spe- 14 December 2004 A Presidential Statement been not so much the adoption of generic cific provisions to effectively protect civilians. was adopted reaffirming condemnation of lofty statements, but the practical challenge violence against civilians and endorsed a The absence within the UN system of of systematically incorporating the principles ten-point action plan. related to protection of civilians from resolu- standardised operational doctrine to dissem- 28 May 2004 The fourth report of the Secre- tions 1265 and 1296 in country-specific inate to peacekeeping units the protection of tary-General reviewed the performance resolutions and in peacekeeping activities civilians standards is a major problem. achieved on protection of civilians at head- and changing the realities on the ground. The UN Documents quarters and in the field, and identified several record has been mixed, though, increasingly, Resolutions shortfalls that needed special attention (fol- the Council has been including provisions lowing the ten-point action plan). The report ensuring the protection of civilians in design- • S/RES/1296 (19 April 2000) also noted that enhanced monitoring and ing new mandates or modifying old ones. • S/RES/1265 (17 September 1999) reporting frameworks were needed in order However, much remains to be done to Presidential Statements to better determine areas in which the impact consistently implement those provisions. • S/PRST/2005/25 (21 June 2005) of conflict would be systematically measured • S/PRST/2004/46 (14 December 2004) and documented. Finally, two key problems Council Dynamics • S/PRST/2003/27 (15 December 2003) There is a broad consensus about the • S/PRST/2002/41 (20 December 2002) were identified: a lack of regional approaches necessity to enhance protection of civilians • S/PRST/2002/6 (15 March 2002) to protection and the absence of inclusion of in armed conflict, and the need for better • S/PRST/1999/6 (12 February 1999) guarantees for the protection of civilians in implementation of Council resolutions on this Reports of the Secretary-General peace processes. matter. The lead supporters among current • S/2004/431 (28 May 2004) 15 December 2003 A Presidential Statement Council members have been the UK, France, • S/2002/1300 (26 November 2002) introduced a ten-point action plan and revised Argentina, Benin, Denmark, Japan and • S/2001/331 (30 March 2001) the aide memoire in accordance with evolv- Tanzania. • S/1999/957 (8 September 1999) ing needs. • S/1998/318 (13 April 1998) Options 20 December 2002 A Presidential Statement Other There is a general agreement that a third was adopted acknowledging the emerging resolution on the theme needs to be adopted. • A/RES/60/1 the 2005 World Summit issues raised in the Secretary-General’s ■ One option is to simply reiterate and Outcome Document report and recognising the importance of • S/2001/614 (21 June 2001) letter update the previous texts and debates. a comprehensive, coherent and action-

8 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org oriented approach. 13 April 1998 In a report on the causes of con- 26 November 2002 The third report of the flict and the promotion of durable peace and Secretary-General highlighted the changing sustainable development in Africa, the Secre- SECURITY COUNCIL REPORT environment for the protection of civilians tary-General addressed for the first time the MONTHLY and, in particular, noted that three new protection of civilians in situations of conflict, DEC.2005 challenges had emerged: gender-based calling it a “humanitarian imperative”. FORECAST violence in conflict situations; the commercial In December, the Panel’s mandate will expire exploitation of conflict and; the rise of terror- and as such it is expected to present a report ism in armed conflicts. Darfur and brief the Committee by then. 15 March 2002 The aide memoire identifying Expected Council Action The sanctions regime only covers Darfur, and 13 core objectives for protecting civilians The Council is expected to: not the entire country. Sanctions violations was adopted as an annex to a Presidential ■ Renew the mandate of the Panel of Experts are reportedly ongoing, especially Khar- Statement. on sanctions; the resolution may also toum’s failure to cut support to the Janjaweed 21 June 2001 A letter from the President of address the recent harassment of Panel or disarm them. the Council to the Secretary-General members in Sudan. requested the Secretariat to (1) reorganise ■ Receive a briefing from the Chief Prosecu- The Council referred the situation to the ICC the recommendations contained in the tor of the International Criminal Court on 31 March, per the recommendations of Secretary-General’s first two reports to better (ICC); agreement on a statement urging the International Commission of Inquiry (ICI), clarify responsibilities for their implementa- cooperation with the Court will require which reported gross human rights and tion and strengthen coordination within the complex negotiation but may be possible. international humanitarian law violations in UN system (known as the “roadmap”); and ■ The Panel’s final report and the Secretary- Darfur. The ICC Chief Prosecutor Luis (2) prepare the aide memoire. General’s monthly report are also expected Moreno Ocampo briefed the Council in and are likely to trigger informal discus- 30 March 2001 The second report of the June 2005 on the status of ongoing investi- sions on the wider deterioration of condi- Secretary-General further detailed measures gations. He will brief the Council again in tions in Darfur and the reasons for the to enhance protection. December, and is expected to address the ineffectiveness of the Sanctions Commit- level and quality of cooperation the Court has 18 September 2000 The Millennium Declara- tee. Some reference to these issues in the received from the Government of Sudan. tion adopted by the General Assembly resolution is possible but, in the absence Khartoum has decided to establish a new identified “Protecting the Vulnerable” as an of dramatic further developments in the specialised tribunal, in the hopes of eliminat- area of priority and agreeing to “expand region, new substantive action to address ing the ICC jurisdiction over the case. and strengthen the protection of civilians them is not expected at this stage. in complex emergencies in conformity with The situation in Darfur deteriorated signifi- international humanitarian law.” Key Facts cantly in October and November. In his 19 April 2000 The second Council Resolution The conflict in Darfur started in 2003, pitting November report, the Secretary-General (1296) on civilians in armed conflict was the Sudan Liberation Movement/Army (SLM/ drew attention to the dramatic nature of the adopted. A) and the Justice and Equality Movement situation on the ground, with increasing (JEM) against the Government of Sudan. The lawlessness, ceasefire violations, fragmenta- 17 September 1999 The first Council Resolu- Government responded by sending troops tion of opposition groups, suffering of civilian tion on civilians in armed conflict (1265) was and recruiting Arab tribesmen, known as the populations and attacks against AMIS troops adopted. Janjaweed, who engaged in brutal attacks and humanitarians. He also pointed to the 8 September 1999 In his first report, the against the civilian population of this western possible internationalisation of the conflict Secretary-General laid down several recom- region of Sudan. along the Sudan-Chad border. mendations to the Council aimed at strengthening legal and physical protection The April 2004 ceasefire is monitored by the In this context, little progress has emerged in of civilians. African Union Mission in Sudan (AMIS), with peace talks, largely due to fragmentation of support from the UN Mission in Sudan the opposition groups. The United States 12 February 1999 Adoption of the first (UNMIS). undertook high-level efforts in November, Presidential Statement specifically address- led by Deputy Secretary of State Robert ing the issue of the protection of civilians in In 2004, the Council imposed an arms Zoellick, to bring the factions of the opposi- armed conflict. The Council expressed grave embargo against non state actors and in tion groups together. These talks were not concern at the growing civilian toll of conflicts 2005 expanded it to all parties to the conflict. successful. The next round of peace talks is and requested the Secretary-General to It later established a travel ban and assets expected to commence late November. report on recommendations on how the freeze and, to monitor compliance, estab- Council could improve the protection of lished a Sanctions Committee and a Panel Key Issues civilians. of Experts. The immediate question for the Council is the mandate renewal for the Panel of Experts.

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org 9 To date, the Panel’s effectiveness has been All along, Russia, China and Algeria have Underlying Problems hindered by the lack of cooperation on the been reluctant to see the imposition of Darfur remains extremely unstable. The ground, including difficulties with AMIS and sanctions on Sudan. It took several months ceasefire has not held in the past few months, hostility aimed directly at Panel’s members to reach agreement on the creation of the and there have been recent rebel and from Sudanese officials. On 5 November, two Sanctions Committee after the adoption of government attacks against the civilian Panel members were roughed up. Following the first Council resolution establishing population. As a result, the UN decided to a demarche from the head of UNMIS, the sanctions. Furthermore, that Committee has stop some of its aid delivery in October. Sudanese foreign ministry promised that the been essentially inactive. This is largely due The main risk comes from fragmentation Panel’s work would not be further hindered. to the fact that it has not yet agreed on among the rebels and also, to some extent, An important secondary question for the guidelines for its operation. With no guide- within the government. In particular, the Council will be how to respond to this inci- lines, the Committee thus lacks the capacity SLM/A has effectively fragmented, largely dent, which not only challenged the Council’s to target sanctions against individuals. In along ethnic lines: an ethnic Zaghawa faction authority, but also violated UN norms regard- this context, recent remarks by the United is leaded by SLM/A’s current President ing the safety and security of UN personnel. States about the need to energise Council’s Minni Arko Minnawi, while the Fur faction is sanctions committees generally may signal The broader issue facing the Council is how leaded by the former movement’s President some new momentum toward making Darfur it can be more effective in ensuring the Mohamed al-Nur. Minnawi’s election in sanctions work. protection of civilians from violence and November was marked by the absence of encouraging long-term prospects for peace. With respect to the ICC, the United States’ Nur, who refused to participate. The Council has passed several important entrenched opposition to the Court’s very There is increasing concern about whether resolutions on Darfur, but has been reluctant existence was an important factor in Council AMIS will be able to sustain its activities in to engage more closely to ensure the imple- discussions back in February and March. Darfur. With the situation worsening, difficul- mentation of actions called for in these Eventually the US decision to abstain rather ties from the lack of funds and experience resolutions. The Council’s focus has been than veto the resolution permitted the referral on the part of AU peacekeepers become diverted by the tension between the desire to of the situation in Darfur to the ICC. It is likely increasingly noticeable. preserve the North-South peace process on that any move in the Council that could the one hand and the need to curb violence institutionally or legally strengthen the ICC UN Documents and impunity in Darfur on the other. The would be opposed by the US, as well as Security Council Resolutions problems with the sanctions regime others such as China and Algeria. • S/Res/1593 (31 March 2005) referred (including getting the sanctions Committee Options the situation to the ICC. operational), the resumption of attacks on ■ The extension of the mandate of the Panel • S/Res/1591 (29 March 2005) strength- civilians and the difficulties facing AMIS of Experts when it expires at the end of ened sanctions, and established a remain on the table as important, ongoing Sanctions Committee and a Panel December is highly likely. In light of the issues. The possible merging of the man- of Experts. numerous stumbling blocks encountered dates of AMIS and UNMIS has already been • S/Res/1590 (24 March 2005) by the Panel in Sudan and the recent raised by NGOs. requested the Secretary-General to assurances of cooperation from Khar- report on options for the UN Mission The briefing of ICC Chief Prosecutor Ocampo toum, the mandate’s extension would in Sudan to assist AMIS. will also shed some light on the implementa- afford an opportunity for these promises • S/Res/1574 (19 November 2004) tion of one of the Council’s other decisions: to be tested and, possibly, for the sanc- expressed support for peace the referral of the situation in Darfur to the tions measures to begin to have an impact. processes in Sudan. ICC. But it will raise new issues for the ■ Condemning the harassment of Panel • S/Res/1564 (18 September 2004) Council, including how far it should go in members and demanding future coopera- established the International supporting the ICC investigation or calling tion is also an option. Commission of Inquiry. for cooperation with its investigation. In this ■ Action to approve the Sanctions Commit- • S/Res/1556 (30 July 2004) deemed the situation in Darfur a threat to interna- regard, recent Council pressure on Syria to tee guidelines is a further option. tional peace and security, established cooperate with the investigation of the UN ■ Another possibility is to extend the arms an arms embargo, requested monthly International Independent Investigation embargo to Sudan’s entire territory, rather Secretary-General’s reports and Commission (UNIIIC), while not an exact than have them limited just to Darfur. expressed intention to take action parallel, sets a very important benchmark. ■ Regarding the ICC, the Council could against Khartoum. urge full cooperation with the Court, as it Council Dynamics Presidential Statements has done in the past in the cases of the ad Council members have been divided on • S/PRST/2005/48 (13 October 2005) hoc tribunals for Rwanda and the former several issues that will need to be addressed • S/PRST/2004/18 (25 May 2004) Yugoslavia and very recently with the in December. UNIIIC. Secretary-General’s Reports / Letters • S/2005/719 (16 November 2005) is the

10 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org latest report of the Secretary-General. ment signed. • S/2005/285 (03 May 2005) detailed options for UN assistance to AMIS. February 2003 Insurgency started in Darfur. SECURITY COUNCIL REPORT • S/2004/703 (30 August 2004) noted Other Relevant Facts MONTHLY that the Sudanese government did not fulfil its obligations under Resolution Panel of Experts DEC.2005FORECAST 1556 (2004). Gerard P. McHugh (Ireland) Ernst Jan Hogendoorn (Netherlands) Key Facts Sherrone Blake Lobban (Jamaica) Historical Background When the October 1973 war broke out, pitting Eustace Mainza (Zambia) 3 November 2005 Minni Arko Minnawi elected Israel against Syria and Egypt, the Golan AU’s Chief Mediator SLM/A President. Heights had already been occupied by Salim Ahmed Salim (Tanzania). 20 October 2005 Peace talks suspended Israel since 1967, despite Security Council Head of AMIS for a month. Resolution 242 of 22 November 1967, which Ambassador Baba Gana Kingibe had called for the withdrawal of forces from 15 September 2005 Peace talks resumed (Nigeria) occupied territories. in Abuja. AMIS Force Commander An agreement on the disengagement of 30 June 2005 Secretary-General appointed Major-General Festus Okonkwo (Nigeria) forces between Israel and Syria was signed the Panel of Experts. Size and Composition of AMIS at the Geneva peace conference on the Middle East and transmitted to the Security 29 June 2005 The ICC Chief Prosecutor Total authorized strength: 6,171 military Council on 31 May 1974. On the same day, Luis Moreno Ocampo briefed the Council. and 1,560 police personnel. Strength as of 31 October 2005: 5,577 the Council passed resolution 350 establish- 6 June 2005 The ICC Chief Prosecutor military personnel and 1,191 police ing UNDOF. Its mandate, set out in the announced his decision to investigate personnel. Protocol to the Agreement on Disengage- atrocities in Darfur. Key troop-contributing countries: Nigeria, ment, is to maintain the ceasefire and to Rwanda, Senegal, South Africa and supervise the Agreement and Protocol. 20 June 2005 The special Sudanese court Ghana began trials of government-allied Popular Cost UNDOF is also assisted by the military Defence Forces on charges of killings in observers of the UN Truce Supervision $466 million ($290 million pledged) Darfur. Organisation (UNTSO) Observer Group Largest donors: Canada, EU, US Golan. 28 April 2005 AU Peace and Security Council increased AMIS to 7,731 personnel. Currently the negotiating process between Syria and Israel is at a standstill, and resolu- 31 March 2005 The Council referred Darfur to Golan Heights/UNDOF tions 242 and 338 remain unimplemented. the ICC. Expected Council Action Key Issues 29 March 2005 The Council authorized travel The Council is expected to follow its usual An important backdrop to the Council’s con- and financial sanctions. practice of renewing for an additional six months the mandate of the UN Disengage- sultation of UNDOF is the current international 25 January 2005 ICI report concluded that ment Observer Force (UNDOF) in the Golan pressure on Syria in relation to cooperation war crimes and crimes against humanity had Heights, which expires on 31 December with the commission that Council established been committed in Darfur. 2005. Traditionally, the resolution calls also on 7 April 2005 (resolution 1595) to investi- gate the assassination of former Lebanese 09 January 2005 Comprehensive Peace for implementation of resolution 338 of 22 Prime Minister Rafik Hariri. It remains to be Agreement signed to end the North/South October 1973. This is important because seen whether Syria will decide to use the conflict. that resolution in turn refers to resolution 242 of 22 November 1967, which calls, inter alia, UNDOF renewal as an opportunity to chal- 20 October 2004 The AU decided to expand for the withdrawal of Israeli troops from lenge the Council’s approach (for instance the mandate of AMIS to include the protec- occupied territories. contrasting issues of its compliance with the tion of civilians. April 2005 resolution with Israel’s 38 years of In addition, the President of the Council will non-compliance with resolution 242). Syria 18 September 2004 ICI established. almost certainly issue a complementary could perhaps even seek an open meeting statement to the effect that, despite the 01 September 2004 Parties called for AU of the Council or to try disrupting the exten- apparent tranquillity in the Golan Heights, the peacekeepers. sion of the UNDOF mandate in other ways. situation in the Middle East will remain tense Alternately, it could well conclude, given its 30 July 2004 The Council imposed an arms until a comprehensive settlement of the other problems at this point, including the embargo. Middle East problem can be reached. A simi- difficulty of securing strong regional support lar statement has accompanied each renewal 08 April 2004 Humanitarian Ceasefire Agree- that its long-term interests in the Golan are of the UNDOF’s mandate since 1976.

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org 11 best served by not rocking the boat. of the Golan permits control of the Sea of • S/2004/948 (7 December 2004) Galilee, which supplies roughly 30 percent of • S/2000/590 (16 June 2000) concluded Another issue relating to the Golan Heights, Israel’s water consumption. that Israel withdrew completely from which is relevant and has current interest but Lebanon is unlikely to arise in the Council under this Israel believes that its security requires • S/2000/460 (22 May 2000) stated that agenda item, involves the unresolved border retention of military control over the Golan the Shab’a farmlands fell under the scope between Lebanon and Syria, in particular the Heights. Syria remains firm in its position of the area of operations of UNDOF disputed area which has given rise to ongo- that is entitled to full and unconditional with- Other ing instability, called the Shab’a farms. This drawal from the Golan. Negotiations between • A/54/914 – S/2000/564 (12 June 2000) is addressed in Terje Roed-Larsen’s report the two countries have been at a standstill for Letter from Lebanon to the Secretary- on the implementation of resolution 1559 several years now, and are not likely to General affirming that the de facto line (S/2005/673 of 26 October 2005, paragraph resume soon. between Lebanon and Syria “is the line 22). This area is considered by the United separating the areas of operation of Syria wants a return to the 4 June 1967 Nations as Syrian territory under Israeli UNIFIL and UNDOF” border. Israel demands modifications of this occupation, but it is open to Lebanon and • S/11302 Add.1 (31 May 1974) border based on security considerations Syria to agree on a different formula to draw Agreement of Disengagement of forces and on the fact that the border at that time the border in this region. Because the farms between Syria and Israel included territory that Syria had seized by currently fall within the scope of the UNDOF force during the 1948 Arab-Israeli war. area of operations, any decision from Syria Historical Background 3 to 9 January 2000 Peace talks between and Lebanon to demarcate the border could The continuing presence of landmines left Israel and Syria took place in Shepherdstown, have consequences on UNDOF’s role. after the June 1967 war threatens UNDOF United States. The talks were indefinitely Amongst many other issues that would personnel and local inhabitants in the area postponed due to procedural impasse, which arise, if the farmlands became part of of operations. Lebanon, they could then fall under the reflected a fundamental disagreement over Part of UNDOF’s mandate is to verify arma- United Nations Interim Force in Lebanon the Golan Heights. ment and force levels in the areas of (UNIFIL) area of control. 1996 Peace talks between Israel and Syria limitation. Very often, both sides restrict the broke down several months after the assas- Council Dynamics movement of inspection teams. Contrary to sination of Israeli Prime Minister Yitzhak Resolutions renewing the UNDOF mandate its concern about such restrictions on other Rabin. Talks were frozen over contrasting are among the most longstanding and peacekeeping operations, the Council has interpretations of Rabin’s offer to Syria before routine in Council practice. Traditionally, not taken up these issues in UNDOF’s case. his death. Syrians said Rabin had promised they are introduced by the President of the UN Documents to return the Golan Heights, while Israelis Council as pro forma texts with no negotiating countered that no such definitive promise Selected Resolutions process. There are no signs that would had been made. suggest Council members intend anything • S/RES/1605 (17 June 2005) extended 1992 In order to reduce expenditure, different this time around. the mandate of UNDOF by six months • S/RES/1578 (15 December 2004) UNDOF underwent streamlining, with a 15 Despite the US desire, as a cost-saving extended the mandate of UNDOF by percent reduction of each military contingent measure, to scrutinise and eliminate long- six months and civilian staff. standing peacekeeping operations where • S/RES/497 (17 December 1981) October 1991 The first of sporadic peace political processes are stalled, no one nullified Israeli annexation of the Golan talks took place between Syria and Israel at Heights expects the United States to suggest such a the Middle East peace conference in Madrid. • S/RES/350 (31 May 1974) established review of UNDOF. The talks remained stalled over the issue of UNDOF the Golan Heights. Underlying Problems • S/RES/338 (22 October 1973) called The strategic importance of the Golan for a ceasefire and comprehensive peace May 1985 The strength of UNDOF was Heights has been key in this situation. With • S/RES/242 (22 November 1967) called gradually brought up to 1,331 (above the its height averaging 600 meters and Mount for the withdrawal of Israeli forces from originally authorized level of 1,250) following Hermon reaching over 2,800 meters, the the occupied territories the withdrawal of UNEF. Golan plateau dominates the entire northern Selected Presidential Statements 14 December 1981 The Golan Heights was part of Israel stretching up to the border with • S/PRST/2005/24 (17 June 2005) annexed by Israel. The area was put under Lebanon. Between 1948 and 1967, Syria • S/PRST/2004/47 (15 December 2004) Israeli law, and settlements were established. constructed extensive military fortifications • S/PRST/2000/21 (18 June 2000) The annexation has not been recognized by on the heights. In addition, the location recognised that Israel withdrew from all the international community. enabled Syrian artillery to hit targets inside of Lebanese territory 1979 The Observer Group Golan was Israel. The Golan also gives access to the Selected Secretary-General’s Reports created. It comprises the UNTSO observers headwaters of the Jordan River, and control • S/2005/379 (10 June 2005) assisting UNDOF and falls under the supervi-

12 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org sion and operational control of UNDOF. Cost (approved budget) 30 November 1974 The initial six-month • 1 July 2005 - 30 June 2006: $43.71 mandate of UNDOF expired. Since then, the million (gross) SECURITY COUNCIL REPORT mandate has been repeatedly extended by MONTHLY the Council upon recommendation of the DEC.2005 Secretary-General. FORECAST Counter-Terrorism 31 May 1974 UNDOF was created. UNTSO’s Committee Issues mandates, both the CTC and the CTED have ceasefire observation in the Syria-Israel set out in detail their respective work pro- The Counter-Terrorism Executive Directorate sector was terminated and 90 observers grammes for the 90-day period ending 31 (CTED), which has been fully staffed as of 6 already assigned to this sector were allocated December 2005 (S/2005/663), which include September 2005, has not yet been declared to UNDOF as an integral part of the force. goals to be achieved during the period “operational” by the Counter-Terrorism 22 October 1973 Security Council resolution and new initiatives to enhance the work of Committee (CTC) and the Secretary-General. 338 called for a ceasefire between the parties the CTC. The improved resources of the This is expected in the context of preparation and implementation of resolution 242. CTED are expected to enhance the work of by the CTC and the Secretary-General for the the CTC in the following areas that will bear 6 October 1973 The Yom Kippur War broke Council’s comprehensive review of the CTED, watching during the period. out when Egypt and Syria launched coordi- which is due before 31 December 2005. nated attacks on Israeli positions in the Sinai Outreach to Regional Groups Comprehensive Review of CTED Peninsula and on the Golan Heights, seeking 1.Taking advantage of this new capability, Resolution 1535 of 26 March 2004, which to regain the lost territory. the CTC intends to reach out more to regional established the CTED for an initial period 1967-73 Israel’s victory in the 1967 war left it and sub-regional groups in a number of ending 31 December 2007, required the in possession of pieces of land from Egypt, ways. By recognising the vital importance of Security Council to undertake “a comprehen- Syria and Jordan (the Sinai Peninsula, the regional groups in supporting the CTC in sive review” of the CTED’s work by the end of Gaza strip, the West Bank and the Golan facilitating technical assistance in each 2005. Although the CTED has not been Heights). Political confrontations between region or sub-region, the CTC and its CTED formally declared operational, it has begun Israel and its Arab neighbours increased the will seek ways to assist regional and sub- to carry forward the work entrusted to it risks of a conflict renewal. regional groups and organisations to build pursuant to the organisational plan, which, as their capacities to develop counterterrorism 9 June 1967 Israel occupied the Golan stipulated in resolution 1535, is to “enhance programmes relevant for each region or Heights, part of Syria in the course of the the Committee’s ability to monitor the sub-region. This should include facilitating 1967 war. implementation of resolution 1373 (2001) and the provision of guidance and assistance 1949 The Israel-Syria Mixed Armistice Com- effectively continue the capacity-building to regional and sub-regional groups and mission was set up. A number of UNTSO work in which” the CTC had been engaged organisations in evaluating the special needs posts along the Armistice Demarcation Line with its prior support structure. of their members to implement the provisions were established but incidents continued to The CTED will be reviewed for its relevance of resolution 1373 and the 13 international occur until the June 1967 Arab-Israeli war. and effectiveness on the basis of its perfor- antiterrorism instruments. Such evaluations June 1948 The first group of military observ- mance of the tasks entrusted to it. However, would form the basis for facilitating and ers from UNTSO, the first UN peacekeeping in light of the long delay in establishing targeting assistance to each state. In carrying operation, arrived in the Middle East in order the organisational structure and making it out these activities, the CTC and the CTED to supervise the Armistice Agreements operational, the comprehensive review will should be mindful of the special needs of between Israel and its Arab neighbours, necessarily be limited in scope. land-locked states and small islands following the 1948 Arab-Israeli war. developing states (SIDS) in their efforts to The CTED is expected to have the support of implement counterterrorism measures. It Other Relevant Facts the CTC and the Secretary-General and will will be incumbent on these States to raise UNDOF Force Commander be given the opportunity to continue to build these concerns with the CTC and its CTED. • Major-General Bala Nanda Sharma on the work already done. High expectations (Nepal) continue to exist within the broader UN com- Concerns about Reporting Requirements Size and Composition of Mission munity for the work of the CTED not only in its The CTC intends to further this outreach by capability to provide assistance to the CTC in undertaking a review, in collaboration with the • 1,031 troops, assisted by some 57 1267 (Al-Qaida/Taliban) and 1540 (terrorism military observers of UNTSO’s Observer its monitoring functions but also in effectively Group Golan; and supported by 38 facilitating assistance to states needing help and weapons of mass destruction) commit- international civilian personnel and 101 to build their counterterrorism capacity and tees, of the reporting regime required of local civilian staff effectiveness. states to comply with the requirements of • Major troop contributors: Austria, the relevant resolutions (1373, 1267 and Poland, Canada, Slovakia, Japan Work Programme 1540). In addressing the so-called “reporting In keeping with their respective and joint fatigue” that has drawn complaints from a

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org 13 number of small and disadvantaged states, these programmes. Such a matrix containing Key Facts the CTC should give consideration to the the relevant programmes of IOs, institutions The 11-year conflict in Sierra Leone ended suggestions raised by the Pacific Islands and regional organisations had been pre- in 2002, when Ahmad Tejan Kabbah was Forum with regard to regional reporting (S/ pared and used in the past to facilitate elected president. In its final years, the con- PV.5293 of 26 October 2005). While it is not assistance to a few states, but it was never flict centered on an insurgency against possible to delegate fully the responsibility published in the working languages of the Kabbah and pro-government militias by of each state in meeting its individual UN and made available to all member states. the Revolutionary United Front (RUF), with obligations under the UN Charter, it should Hence its usefulness in facilitating assistance the backing of Liberian insurgent and then be possible to facilitate an appropriate level was never maximised. President Charles Taylor. of regional response to the reporting Human Rights Perspective The Security Council created UNAMSIL in requirements, particularly where region-wide 4. The CTC will complete discussion on how 1999 and imposed an arms embargo against standards comply with international stan- a human rights perspective should be non-state actors and a travel ban against dards and are implemented and monitored appropriately streamlined into the CTC’s members of the RUF and the military junta. It by a competent regional authority. The CTC’s policy and work. Already, in dialogue with also created a Sanctions Committee, now approach in engaging States on their imple- states, the CTC reminds them that action largely inactive because the diamonds mentation of the provisions of resolution 1624 taken to suppress and prevent terrorism embargo has expired. (2005) with regard to the prohibition of should comply with standards of international incitement to terrorism should be mindful of UNAMSIL’s mandate will expire on 31 human rights, humanitarian and refugee starting a new round of reporting and thereby December. It will be replaced by UNIOSIL, laws. Now with the CTED fully staffed, aggravating the so-called reporting fatigue. thereby concluding UNAMSIL’s three-year including with a human rights expert, the CTC phased drawdown. The maintenance of a Capacity Building is expected to complete discussions and residual UN presence on the ground with 2. The CTC will continue to build upon its agree on the mandate and functions of UNIOSIL aims at ensuring that the achieve- efforts to strengthen its dialogue with states the human rights expert before declaring the ments from past years can be secured in the preparation of technical assessments CTED operational. In keeping with the and consolidated. Nonetheless, UNIOSIL is of needs and in sharing these with potential practice established by the first Chairman of a small mission (about 50 international assistance providers. This should include not the CTC, the decision taken in this regard civilians) with an extensive mandate. only expanding the involvement of the donor should be published as a document of the community beyond the members of the G-8’s Security Council so that UN member states Downscaling UNAMSIL was carried out Counter-Terrorism Action Group (CTAG), and the wider community will be made aware pursuant to a plan under which the gradual but also further and deeper involvement of of what is expected of the CTED with regard achievement of benchmarks was matched UN bodies, agencies and programmes that to human rights within its mandate and with phased repatriation of peacekeepers. are already engaged in capacity-building the type of guidance and assistance that The benchmarks include security sector assistance and have programmes that are might flow from this in the implementation of reform, consolidation of state authority, relevant to counterterrorism capacity-build- resolution 1373 and other counterterrorism reintegration of ex-combatants and control ing. It should include a dialogue with those measures. over diamond mining. From a maximum that have the capability within their mandates authorised strength of 17,500 in 2002, Country Visits to contribute to these efforts but have so far UNAMSIL now stands at 2,515 uniformed 5. Despite its original intention to conduct failed to do so. personnel. two country visits before year-end, it now Links with International Organisations appears likely that the CTC/CTED will only Pursuant to resolution 1620 of 31 August 3. The CTC will be able to achieve greater visit Algeria, as the Philippines was not ready 2005, UNIOSIL will be mandated with, inter collaboration with the international organisa- to accommodate such a visit. alia, assisting the Sierra Leonean government tions (IOs) with mandates and capabilities in capacity-building, good governance and that are relevant to its work. In addition to security sector strengthening, as well collaboration in, and support of, country visits Sierra Leone as liaison with the Special Court for Sierra and possible provision of assistance follow- Expected Council Action Leone (SCSL). Notably, UNIOSIL will ing from such visits, the CTC should provide present an integrated approach in which the The Council is expected to welcome the collation in a matrix of the specific pro- Secretary-General’s executive representa- Secretary-General’s report marking the end grammes of IOs related to implementation of tive will also head the UN Development of mandate of the UN Mission in Sierra Leone resolution 1373. This collation should include Programme (UNDP) country office and (UNAMSIL) and the commencement of the programme descriptions, methodologies, humanitarian coordination in Sierra Leone. UN Integrated Office in Sierra Leone (UNIO- eligibility for benefiting in these programmes, SIL) as of 1 January 2006. However, action to and up-to-date contact information for One important feature of the drawdown plan terminate the remaining elements of the sanc- accessing and receiving assistance under is coordination among peacekeeping tions regime seems unlikely at this stage. operations in West Africa. In this context, the

14 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org UN Mission in Liberia (UNMIL) is due to Secretary-General’s Reports provide security for the SCSL after UNAMSIL • S/2005/596 (20 September 2005) is leaves. the latest report. SECURITY COUNCIL REPORT • S/2005/273 (26 April 2005) and Add. 1 MONTHLY Council Dynamics (21 June 2005) and 2 (28 July 2005) By approving the transition to UNIOSIL DEC.2005 recommended UNIOSIL. FORECAST months before UNAMSIL’s mandate expired, • S/2004/228 (19 March 2004), 663 (23 the Council displayed sensitivity to the chal- June 2003) and 987 (5 September 1990 ECOMOG deployed in Liberia. lenges created by the end of a peacekeeping 2002) detailed the drawdown. operation. This approach is a further example • S/2000/915 (4 October 2000) detailed Other Relevant Facts of a trend of more gradual transitioning the SCSL. Special Representative of the Secretary General from UN peacekeeping into peacebuilding Reports of Council Missions Daudi Ngelautwa Mwakawago (Tanzania) and development. • S/2004/525 (2 July 2004) • S/2003/688 (7 July 2003) UNAMSIL Force Commander Nonetheless, some inside the Council still • S/2000/992 (16 October 2000) Major-General Sajjad Akram (Pakistan) advocate generally swifter pullouts in view of limited resources and the competing Size of Mission Historical Background demands of more unstable situations. Strength as of 30 September 2005: September 2005 UNMIL authorised to pro- UNIOSIL, a very small office of about 50 2,515 total uniformed personnel, including vide security for the Special Court for Sierra international civilians, represents a compro- 2,360 troops and 99 military observers Leone (SCSL). mise between both views. Cost August 2005 UNIOSIL established. 1 July 2005 - 30 June 2006: $113.22 Because of the limited scope and targeted August 2003 Taylor exiled. million (gross) nature of the remaining sanctions, there appears to be no pressure at this stage to June 2003 Taylor indicted by SCSL. Duration review the sanctions regime. Diamonds embargo expired. 22 October 1999 to present 2002 Kabbah re-elected. UK troops left. Source: DPKO Underlying Problems Drawdown began. Despite achievements on benchmarks 2001 RUF retreated into Liberia. Rebel and overall tranquillity, Sierra Leone still disarmament began. Haiti faces the lack of infrastructure and expertise, corruption, lack of control over diamond 2000 Lomé accord collapsed. UK and Expected Council Action mining and delays in electoral reform. Economic Community of West African States The Council will be monitoring the situation in (ECOWAS) troops sent. SCSL established. Haiti with concern as the electoral process Specific risks to security stem from extreme Diamonds embargo imposed. Ceasefire unfolds, leading to the elections scheduled poverty, as well as instability in Liberia, Côte signed. for 27 December 2005. A statement giving d’Ivoire and Guinea. Porous borders, a bor- 1999 RUF took over Freetown. Lomé accord positive encouragement is a possibility. Any der dispute with Guinea and the continuation signed between government and RUF. upsurge in political violence or suggestion of trials by the SCSL compound the picture. UNAMSIL established. that the elections might be further delayed is UN Documents 1998 Junta removed by ECOWAS’ Monitor- likely to trigger a firm response. The mandate Security Council Resolutions ing Observer Group (ECOMOG); President of the UN Stabilization Mission in Haiti (MINUSTAH) expires in February, but all • S/Res/1626 (19 September 2005) Kabbah reinstated. Oil embargo terminated. authorised UNMIL to provide security New sanctions imposed. evidence suggests that the Council appreci- ates that a long-term commitment in Haiti for the SCSL. 1997 Private security firm Executive Out- is required this time around. • S/Res/1620 (31 August 2005) comes leaves Sierra Leone. Kabbah toppled established the mandate of UNIOSIL. by Junta and RUF. Oil and arms embargo Key facts • S/Res/1610 (30 June 2005), 1537 (30 imposed. Taylor elected President of Liberia. March 2004), 1492 (18 July 2003) and The Council’s active engagement with Haiti 1436 (24 September 2002) authorised 1996 Kabbah elected. dates back to the early 1990s. After the 1991 coup that overthrew the democratically UNAMSIL’s drawdown. 1995 National Provisional Ruling Council elected president Jean-Bertrand Aristide and • S/Res/1562 (17 September 2004) (NPRC) hired Executive Outcomes against following a long period of intense negotia- redefined UNAMSIL’s mandate from RUF. January 2005. tions, the Council in resolution 940 (1994) 1991 RUF entered Sierra Leone. • S/Res/1315 (14 August 2000) called authorised the use of force to restore the for the SCSL. 1992 Coup d’état by NPRC. elected leader. Under this pressure, the coup • S/Res/1270 (22 October 1999) 1991 RUF attacked Bomaru. ECOMOG perpetrators left and Aristide returned to the established UNAMSIL. deployed in Sierra Leone. country.

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org 15 Council-mandated missions were on the engagement dating back to the 1990s, and UN Documents ground for several years though their scope Chile, a recently departed Council member, Selected Resolutions became increasingly narrow before their final play important roles. • S/RES/1608 (22 June 2005) extended withdrawal in March 2000. The United States has been particularly the mandate of MINUSTAH until 15 The situation in Haiti never stabilised and interested in stabilising the Haitian situation February 2006 and expressed support for the Secretary-General’s proposals became progressively more volatile. In early because of concerns about an influx of for temporarily reinforcing the mission. 2004, violent upheavals against the Haitian refugees to Florida. For Latin American • S/RES/1576 (29 November 2004) government led to President Aristide leaving states, Haiti has been a test of their ability extended the mandate of MINUSTAH. the country in February. to manage a conflict in the region. • S/RES/1542 (30 April 2004) esta- A US-led Multilateral Interim Force (MIF) A Core Group composed of the leading blished MINUSTAH and requested that authority be transferred from the MIF. entered Haiti to ensure stability until the arrival countries, troop-contributing countries, • S/RES/1529 (29 February 2004) of the current UN peacekeeping force. donors and regional organisations, was authorized the MIF to deploy in Haiti. established in 2004 and was welcomed A Provisional Electoral Council (CEP) was Reports of the Secretary-General by the Council in its resolution 1576. The established. An important regional coopera- Core Group met in November 2005 in • S/2005/631 (6 October 2005) tion effort was undertaken to support to the Haiti and expressed concern over the slow • S/2005/313/Add.1 (23 June 2005) electoral process under the auspices of the electoral process. • S/2005/313 (13 May 2005) Organisation of American States (OAS), the • S/2005/124 (25 February 2005) Caribbean Community (CARICOM) and the Options • S/2004/908 (18 November 2004) United Nations. According to the current The Council may limit itself to monitoring the • S/2004/698 (30 August 2004) Haitian constitution, the new president has situation and receiving situation reports from • S/2004/300 (16 April 2004) to take office on 7 February 2006. MINUSTAH. However, other options include: Presidential Statement ■ An early, proactive presidential statement • S/PRST/2005/50 (18 October 2005) In a presidential statement on 18 October to encourage the electoral process, pressed Haiti’s administration to hold 2005, the Council, concerned about delays, welcoming the setting of the election date timely elections. urged the Haitian authorities to hold the for 27 December 2005 and pointing to the • S/PRST/2005/1 (12 January 2005) elections before 2006 and to develop a key benchmarks to be achieved in the noted that further urgent action was phased electoral plan as soon as possible. coming weeks needed to improve security and that additional measures for holding Key issues ■ If signs of political violence or further elections were also necessary. The Council’s main challenge is long-term delays appear, the Council may consider • S/PRST/2004/32 (10 September 2004) a more detailed statement stabilisation of the situation in Haiti. Holding noted that illegal armed groups were elections by the constitutional deadline of Underlying problems still undermining stability and security. February 2006 is crucial to achieving that Impediments to the holding of elections and • S/PRST/2004/4 (26 February 2004) goal. Of specific importance for the Council expressed concern over the situation factors fuelling instability include a lack of are the fundamental requirements for the in Haiti and supported the OAS and confidence in the democratic process on elections: adequate security and processes CARICOM in their effort to find a the part of the population, rising political which can achieve a free and fair election. solution. tensions and a lack of political dialogue, the Letters exchanged between the A further issue of concern for the Council will slow training of the Haitian National Police, President of the Council and be to ensure security between the two rounds setbacks in the judicial system’s reforms, an the Secretary-General of elections, when the risk for a resurgence of absence of sound institutions and of the • S/2005/235 (12 April 2005) violence is the highest. rule of law, gang violence and overall very • S/2005/220 (4 April 2005) high crime rate, and rampart poverty. • S/2004/941 (2 December 2004) The Council will have to keep Haiti high on its Additional impediments include delays in • S/2004/565 (13 July 2004) agenda to ensure long-term stability. A the implementation of a disarmament, • S/2004/439 (1 June 2004) renewal of the mandate of MINUSTAH due demobilisation and reintegration programme, Report of the Council’s mission to Haiti to expire on 15 February 2006 is likely in and deficiencies in coordination between this regard, and an increase in size remains • S/2005/302 (6 May 2005) stressed that the OAS, MINUSTAH and the CEP. there was no alternative to elections. possible since the ceiling has not been reached yet. Because the Council has in the past failed Historical Background to commit the presence of UN missions in Council Dynamics 18 November 2005 The date of the first round Haiti for sufficiently long-term involvement, The “Group of Friends of Haiti,” including of elections was set for 27 December and the UN is finding it difficult to develop the Council members such as Argentina, Brazil, the second round for 31 January 2006. necessary and productive partnerships with France and the United States, has been in Haitian society at all levels. November 2005 The Core Group Haiti met the lead. In addition, Canada, with its in Port-au-Prince.

16 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org 20-21 October 2005 International donors’ forces landed in Haiti to oversee a transition conference for Haiti in Brussels reviewed the to civilian government, and Aristide returned. status of financial pledges made. 1993 The joint UN-OAS International Civilian SECURITY COUNCIL REPORT 18 October 2005 Haiti’s Prime Minister, Mission in Haiti (MICIVIH) was deployed MONTHLY Gérard Latortue, briefed the Council and in February, but due to a lack of Haitian DEC.2005 despite some positive developments, tre- cooperation could not carry its mandate. In FORECAST mendous challenges remained, especially June, through resolution 841, the Council pendente (FRETILIN) declared East Timor’s with regards to the judicial system, the disar- imposed sanctions after the Haitian regime independence from Portugal in 1975. Indo- mament process and the humanitarian rejected an accord facilitating Aristide’s nesia intervened and annexed the territory a situation. return. In September, the Council established few months later. Following years of conflict the first peacekeeping operation in the 29 September 2005 More than 70 percent and repression by Indonesia in East Timor, country, UNMIH. of some 4 million eligible voters had been Indonesia and Portugal agreed in May 1999 registered. September 1991 Aristide was ousted in a to a referendum on independence in Timor. 22 June 2005 The Council extended the coup led by Brigadier-General Raoul The Council mandated the UN Mission in mandate of MINUSTAH until 15 February Cédras. East Timor (UNAMET) to oversee the referen- 2006 and supported a temporary increase December 1990 Jean-Bertrand Aristide was dum and the successive transition either to during the electoral period. elected president in an election monitored independence or autonomy, depending on by the UN and OAS. April 2005 Security Council mission visited the outcome. Following an overwhelming Haiti. Other Relevant Facts vote for independence, pro-integration Late 2004 Rising levels of deadly political Special Representative of militias committed widespread murder and and gang violence occurred in the capital. the Secretary General rape, displaced about 63 percent of the total Armed gangs loyal to Aristide were said to Juan Gabriel Valdés (Chile) East Timorese population and burned about be responsible for the killings. 85 percent of all buildings in East Timor. Force commander 30 April 2004 The Security Council adopted General Urano Teixeira da Matta In September 1999, the Council authorised resolution 1542 establishing MINUSTAH. Bacellar (Brazil) the Australia-led International Force in East 17 March 2004 Interim Prime Minister Size and Composition of Mission Timor (INTERFET) to restore peace and Latortue formed a transitional government. In Current Strength as of 30 September security. Indonesia withdrew, and the Council order to build consensus for the work of the 2005: 8,104 total uniformed personnel, established the UN Transitional Administra- government, a political pact was signed including 6,595 troops and 1,509 police, tion in East Timor (UNTAET) to help the between the government, political groups supported by 428 international civilian territory transition into full independence. and representatives of the civil society. personnel, about 461 local civilian staff UNTAET ended in 2002 following the 29 February 2004 President Aristide was and 161 UN Volunteers. election of former FRETILIN leader Xanana forced into exile. The Council adopted Key Troop Contributing Countries: Brazil, Gusmão as President. The Council then Jordan, Uruguay, Nepal, Sri Lanka, Argen- resolution 1529 authorising the MIF to established the UN Mission of Support in tina, Chile. deploy in Haiti, at the request of the new East Timor (UNMISET), and subsequently interim government. Cost UNOTIL in 2005. Both were designed to 1 July 2005 - 30 June 2006: $494.89 provide assistance to the government January and February 2004 Violent uprisings million. and prepare the gradual transition from UN against President Aristide took place. Rebels peacekeeping to peacebuilding activities. seized several cities and dozens of people were killed. In 2000, UNTAET established a judicial 1995 to 2000 The multinational force was Timor-Leste mechanism, called the serious crimes followed by a number of successive peace- process, to bring to justice those responsible Expected Council Action keeping missions until 2000: the UN Mission for gross violations of human rights in East The Council expects the Secretary-General’s in Haiti (UNMIH), the UN Support Mission in Timor in 1999. It was brought to a closure in progress report on the UN Office in Timor- Haiti (UNSMIH), the UN Transition Mission in May 2005 pursuant to resolution 1543 (2004), Leste (UNOTIL) in December. It is also Haiti (UNTMIH) and the UN Civilian Police after producing 95 indictments and charging expecting a report from the Secretary- Mission in Haiti (MIPONUH). 440 individuals. The serious crimes unit of the General on justice and reconciliation in Timor, UN operation was shut down. This left numer- 1995 Aristide supporters won parliamentary but it is unclear when that will emerge. ous cases outstanding, including 200 arrest elections. Key Facts warrants. Of about 1,370 reported cases of October 1994 The Haitian military regime The conflict in Timor-Leste started when the murder, only 572 resulted in indictments. relinquished power. Council-authorised Frente Revolucionária de Timor-Leste Inde-

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org 17 The governments of Indonesia and Timor- recommendation for an international tribunal Indonesia because of the involvement of Leste in 2004 decided to create a Commission too expensive. The United States has strong Indonesian personnel with the militias in the for Truth and Friendship (CTF) to produce reservations about any involvement of the 1999 rampage at the time of the referendum. a report in lieu of a judicial process. The deci- ICC. Re-establishing the serious crimes process sion attracted mixed comments: criticism As a result, the Council did not act on the is nonetheless viewed as potentially harmful for favouring impunity and creating risks of COE report when it was transmitted to its to relations between Timor-Leste and Indone- instability, but also a degree of understanding members in late June. In a move seen as a sia. Good relations between both countries and support by regional neighbours. further stalling tactic, the Council, in late are regarded as a cornerstone of stability The Secretary-General decided to appoint a September 2005, requested that the Secre- and security in Timor-Leste. Commission of Experts (COE) in early 2005 tary-General present a report on justice and UN Documents to provide recommendations on justice and reconciliation for Timor-Leste, “with a practi- reconciliation for Timor-Leste. The Commis- cally feasible approach, taking into account Security Council Resolutions sion found that the proposed CTF, in which the report of the Commission of Experts as • S/Res/1599 (2005) established the terms of reference foresee amnesty for well as the views expressed by Indonesia and UNOTIL. the perpetrators of serious crimes, contra- Timor-Leste.” • S/Res/1543 (2004) determined that dicts international standards against impunity. the serious crimes process be Some Council members have made it known concluded by 20 May 2005. The report recommended that the serious that they reject the amnesty provisions • S/Res/1410 (17 May 2002) established crimes process be maintained and that included in the CTF’s terms of reference and UNMISET. Indonesia step up its judicial capacity. In the expressed concerns about the risks in • S/Res/1272 (25 October 1999) event that the parties failed to adopt these terms of global precedent in promoting established UNTAET. measures, the COE recommended that an impunity, as well as concern about its • S/Res/1264 (15 September 1999) international tribunal be established or that authorised INTERFET. potential impact on Timor-Leste’s prospects the situation be referred to the International • S/Res/1246 (11 June 1999) for long-term stability. At the same time, Criminal Court (ICC) under an extraordinary established UNAMET. however, there is recognition of the need to arrangement between the United Nations find a solution that to some extent accommo- Secretary-General Reports and the ICC. dates the preferences of the two states • S/2005/533 (18 August 2005) is the The Council has to date avoided taking a involved. latest progress report on UNOTIL. position on the COE recommendations. In • S/2005/99 (18 February 2005) recom- Options mended the establishment of UNOTIL. September it requested the Secretary- The Council may limit itself to receiving and General to provide it with recommendations Reports of Council Missions discussing the progress report from UNOTIL. on the COE report. • S/2000/1105 (21 November 2000) Options include: • S/1999/976 (14 September 1999) Key Issues ■ A brief statement welcoming the report Special Reports / Letters The immediate issue before the Council in and expressing continued support for • S/2005/613 (28 September 2005) was December will be the UNOTIL report, which is efforts to achieve lasting stability in Timor- a letter from the president of the likely to be uncontroversial. It is unclear at Leste as well as securing eventual smooth Council requesting further recommen- time of writing whether the Secretary- ceasing of UN peacekeeping and peace dations on justice and reconciliation General’s proposals for addressing the building activities in the country for Timor-Leste. outstanding cases of serious crimes commit- ■ A request to the Secretary-General • S/2005/458 (15 July 2005) contained ted in East Timor in the period immediately inquiring about the timing of the outstand- the Report of the Commission of following the referendum will be available. ing justice and reconciliation report Experts. ■ No action, allowing the matter to be Council Dynamics delayed further Historical Background There has been considerable discomfort 5 August 2005 CTF officially met for the first among Council members with the COE’s Underlying Problems time. recommendations largely due to the fact The worst human rights violators who led that both states involved, Timor-Leste and the anti-independence movement escaped 1 August 2005 Governments of Timor-Leste Indonesia, have been unhappy with the to Indonesia, and their possible return may and Indonesia announced CTF members. findings and responded by reiterating pose risks to stability in Timor-Leste. Returns 15 July 2005 The COE report was published. support for the CTF option. In particular, may increase in the upcoming months, May 2005 Serious crimes process concluded Asian members of the Council have tended given the apparent end of the serious crimes activities. UNOTIL established. to side with that approach. process. 18 February 2005 Secretary-General informed Several Council members consider the The serious crimes process is sensitive to the Council about his decision to establish

18 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org the COE, following his December 2004 con- in the inauguration of Taylor as president in sultations with foreign ministers of Indonesia 1997. It also led to the destabilisation of and Timor-Leste. neighbouring Sierra Leone and eventually SECURITY COUNCIL REPORT May 2002 UNMISET established. spilled over into Côte d’Ivoire in 2002. MONTHLY October 1999 UNTAET established. The insurgency ended with the Comprehen- DEC.2005FORECAST September 1999 Anti-independence violence sive Peace Agreement (CPA) in 2003 and stepped up; martial law imposed; INTERFET Taylor’s asylum in Nigeria. The CPA man- allegations. authorised. dated the National Transitional Government ■ The assets freeze had not overall been of Liberia (NTGL) and elections in 2005. August 1999 Referendum showed over- very effective. ■ The diamond sector lacked transparency whelming support for independence. The Council created the UN Mission in Liberia and control systems, and violations of June 1999 UNAMET established. (UNMIL) in 2003 and imposed an arms the embargo were expected to increase. embargo and a travel ban on Taylor and indi- May 1999 Indonesia and Portugal agreed ■ The NTGL had been unable to exercise viduals linked to him, as well as embargos on to the terms of the referendum. Indonesian control over timber producing areas, or diamond and timber exports fuelling the con- military-sponsored violence erupted in to develop oversight of the sector’s flict. It established a Sanctions Committee Timor-Leste. financial management. and a Panel of Experts, as well as an assets January 1999 Indonesia decided to carry out freeze against Taylor and his associates. Key Issues the referendum. The current mandate of the Panel and the The key issue facing the Council is whether December 1975 Indonesia occupied Timor- sanctions regime will expire on 21 December to renew the sanctions regime in light of the Leste. 2005. The benchmarks pursuant to resolu- limited progress made by the NTGL towards November 1975 FRETILIN declared Timor- tion 1521 (2003) for lifting the sanctions are: the benchmarks and the inauguration of the Leste independent. newly elected government in January 2006. ■ Arms embargo and travel ban: when the Other Relevant Facts Council considers that the ceasefire is fully Council Dynamics respected, the security sector reform and Special Representative of Some Council members may argue that the the Secretary-General the disarmament, demobilisation, reinte- sanctions regime is having an adverse impact gration and repatriation of combatants Sukehiro Hasegawa (Japan) on humanitarian and economic conditions in (DDRR) programmes have been completed, Size and Composition of UNOTIL Liberia and that it is now safe to lift or relax the the CPA has been fully implemented, and regime, despite the Panel’s conclusion that As many as 130 staff members that progress has been made towards lifting sanctions at this stage still presents Cost (requested budget) stability in Liberia and in the sub-region. unacceptable dangers due to corruption and US$ 22,027,700.00 ■ Diamonds: when the Sanctions Committee lack of effective NTGL authority. Commission of Experts considers that the Government of Liberia has established a “transparent, effective Other members are likely to argue in favour of Prafullachandra Bhagwati (India) maintaining the sanctions regime on the Yozo Yokota (Japan) and internationally verifiable” Certificate of basis that the Council’s own set of bench- Shaista Shameem (Fiji) Origin regime. The existing certification scheme is the Kimberley Process, which marks for the lifting of the sanctions contained Liberia has been trying to join. in resolution 1521 have not been met. Lifting ■ Timber: when the Council determines the sanctions before these benchmarks are Liberia that the Government of Liberia has estab- met would make the Council inconsistent with its own decisions. Expected Council Action lished full control over producing areas, and has ensured that revenues from that The Council is expected to continue the Some Council members may be willing to industry are not used for fuelling conflict. sanctions regime for Liberia, but it may also agree to signal a degree of relaxation in the want to signal a flexible approach to some The June 2005 assessments from the Panel future rather than any lifting of the sanctions relaxation relatively soon. It will have for of Experts and the Secretary-General con- now. consideration the report of the Panel of cluded that the NTGL had been unable to The views of the newly elected president will Experts on sanctions and the regular report meet the benchmarks, since: be an important element in the discussion. of the Secretary-General. ■ No evidence of arms imports had been found, but concerns remained about Options Key Facts hidden arms in Liberia and the completion The options may include: Starting in 1989 with the first attacks from of DDRR programmes. ■ Lifting some or all of the sanctions Mano and Gio insurgents under Charles ■ There were reports of travel-ban violations, ■ Relaxing at least one of the sanctions Taylor’s National Patriotic Front of Liberia especially a trip Taylor allegedly had taken measures (e.g. perhaps the arms (NPFL) against largely Krahn and Mandingo to Burkina Faso. Nigeria denied the embargo, but limited to allowing the sale forces, the most recent war in Liberia resulted

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 6327 F:1 212 759 4038 www.securitycouncilreport.org 19 of arms to the new government) of sanctions. 19 September 2005 The Council enlarged ■ Signalling a willingness to review the UNMIL to provide security for the Special UN Documents sanctions or a particular measure at the Court for Sierra Leone. Security Council Resolutions request of the incoming president March 2004 The Council imposed sanctions ■ Deciding to maintain the status quo, but • S/Res/1638 (11 November 2005) on Charles Taylor and his associates. to review the sanctions after three months mandated UNMIL to apprehend December 2003 The Council imposed the rather than six Charles Taylor should he return to Liberia. current sanctions regime. Underlying Problems • S/Res/1626 (19 September 2005) October 2003 NTGL inaugurated. There are concerns that the security situation authorised a temporary increase in September 2003 UNMIL established. will remain fragile in the aftermath of the UNMIL and requested a downsizing August 2003 Economic Community of West presidential election. The victory of econo- plan by March 2006. African States (ECOWAS) and US troops mist Ellen Johnson-Sirleaf over soccer star • S/Res/1579 (21 December 2004) and arrived; Taylor exiled in Nigeria and CPA George Weah (whose base included former S/Res/1607 (21 June 2005) renewed sanctions and the Panel’s mandate signed. military commanders and politicians once until 21 December 2005. close to Charles Taylor) is contested. At the July 2003 Insurgents intensified fighting. • S/Res/1532 (12 March 2004) imposed time of writing, a complaint of fraud filed by an assets freeze against Taylor and his June 2003 Taylor indicted by the Special Weah is under investigation. associates. Court for Sierra Leone. Following the presidential elections, the • S/Res/1521 (22 December 2003) 2001 Arms embargo re-imposed to pressure imposed the current sanctions regime Council mandated UNMIL to arrest Taylor if Taylor. and called for the appointment of a he returns to Liberia. The resolution aims at Panel of Experts. 2000 Insurgents invaded Liberia from preventing the country’s destabilisation • S/Res/1509 (19 September 2003) Guinea. should Taylor decide to return. UNMIL is also established UNMIL. 1999 ECOWAS’ Monitoring Observer Group mandated to hand him over to the Special • S/Res/1497 (1 August 2003) (ECOMOG) left Liberia. Court for Sierra Leone, where an indictment authorised the deployment of a 1997 Taylor elected President. for war crimes and crimes against humanity Multinational Force 1992 The Council imposed an arms embargo committed in Sierra Leone is pending against Secretary-General’s Reports Taylor for his role in the civil war that plagued on Liberia. • S/2005/560 (1 September 2005) is that country until 2002. the latest report. 1991 Fighters entered Sierra Leone with Tay- lor’s support. A new government will be inaugurated in • S/2005/376 (7 June 2005) noted not enough progress towards benchmarks. January 2006, marking the end of the transi- 1990 ECOWAS established ECOMOG. • S/2003/1175 (15 December 2003) tional process. Nonetheless, challenges 1989 Taylor entered Liberia with NPFL detailed the DDRR programme. from corruption, lack of authority, former • S/2003/875 (11 September 2003) forces. combatants and Charles Taylor’s supporters detailed the establishment of UNMIL. are likely to continue. The picture is com- Other Relevant Facts Reports of Council Missions Special Representative of pounded by cross-border tribal allegiances, to West Africa the Secretary General mutual intervention in domestic affairs by • S/2004/525 (2 July 2004) regional players, and the volatile situation in Alan Doss (United Kingdom) • S/2003/688 (7 July 2003) Côte d’Ivoire. Size and Composition of Mission Reports of the Sanctions Committee Total authorized strength: up to 15,250 As part of the effort to curb corruption, the and Final Reports of the Panel of Experts military personnel and 1,115 police. Governance and Economic Management Strength as of 30 September 2005: 14,881 Assistance Program (GEMAP) was signed • S/2005/360 (13 June 2005) • S/2004/1025 (31 December 2004) military personnel and 1,093 police. between the NTGL and major international • S/2004/955 (6 December 2004) Key troop contributors: Bangladesh, donors. Over time it is likely to be helpful in • S/2004/396 (1 June 2004) Pakistan, Ethiopia and Nigeria addressing donors concerns regarding Cost corruption to some extent. Nonetheless, Historical Background 1 July 2005 - 30 June 2006: $760.57 Liberia’s natural resources remain vulnerable November 2005 Ellen Johnson-Sirleaf wins million to predators and there are current funding after second ballot in presidential elections. Duration shortfalls in DDRR programmes, suggesting that incentives to loot resources will remain 11 October 2005 First ballot in presidential September 2003 to present. high if market openings arise from the lifting elections. Source: DPKO

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