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The Senate Standing Committee on Foreign Affairs, Defence and Trade Australia’s involvement in peacekeeping operations August 2008 © Commonwealth of Australia 2008 ISBN 978-0-642-71901-0 Printed by the Senate Printing Unit, Parliament House, Canberra. Members of the Committee Core Members Senator Mark Bishop, ALP, WA (Chair) (elected Chair on 14 February 2008) Senator Russell Trood, LP, QLD (Deputy Chair) (elected Deputy Chair on 14 February 2008) Senator Mathias Cormann, LP, WA (from 17 August 2007) Senator David Feeney, ALP, VIC (from 1 July 2008) Senator Michael Forshaw, ALP, NSW Senator Helen Kroger, LP, VIC (from 1 July 2008) Senator Anne McEwen, ALP, SA (from 12 February 2008) Former Members Senator John Hogg, ALP, QLD (until 30 June 2008) Senator Steve Hutchins, ALP, NSW (Deputy Chair) (until 11 February 2008) Senator the Hon. Sandy Macdonald, NATS, NSW (from 12 February 2008 until 30 June 2008) Senator Marise Payne, LP, NSW (Chair) (until 11 February 2008) Senator the Hon. Alan Ferguson, LP, SA (until 14 August 2007) Secretariat Dr Kathleen Dermody, Committee Secretary Dr Timothy Kendall, Principal Research Officer (from 3 March 2008) Ms Lisa Fenn, Principal Research Officer (until 15 February 2008) Dr Greg Spelman, Principal Research Officer (8 February 2007–16 May 2007) Dr Andrew Gaczol, Principal Research Officer (9 August 2007–14 December 2007) Ms Erja Vanhalakka-Stephenson, Senior Research Officer Ms Jenene James, Research Officer Ms Angela Lancsar, Executive Assistant Senate Foreign Affairs, Defence and Trade Committee Department of the Senate PO Box 6100 Parliament House Canberra ACT 2600 Australia Phone: + 61 2 6277 3535 Fax: + 61 2 6277 5818 Email: [email protected] Internet: www.aph.gov.au/Senate/committee/fadt_ctte/index.htm iii Table of Contents Members of the committee iii Acronyms and abbreviations xiii Overview xvii Executive summary xix CHAPTER 1 INTRODUCTION AND CONDUCT OF INQUIRY 1 Referral of inquiry 1 Terms of reference 1 Conduct of inquiry 1 Background to inquiry 2 Previous inquiries 3 Current inquiry 3 Australia's peacekeeping operations 4 Scope and terminology 5 Structure of report 7 Acknowledgments 7 PART 1—BACKGROUND TO PEACEKEEPING 11 CHAPTER 2 CHANGING NATURE OF PEACEKEEPING OPERATIONS 13 UN—maintaining peace 13 Foundations for a peacekeeping operation 14 Changing international environment 15 Peacekeeping operations and the Cold War 15 Peacekeeping operations in the post-Cold War era 16 Brahimi Report 19 Regional peacekeeping operations 23 Conclusion 24 PART II—DECISION TO PARTICIPATE 23 CHAPTER 3 DECISION-MAKING PROCESS 29 Threats to international peace 30 Involvement of government agencies 30 UN peacekeeping operations 32 Interdepartmental consultation and National Security Committee of Cabinet 32 Consultation with other countries 35 Timeframe for decision 36 Effectiveness of decision-making process 38 Non-UN peacekeeping operations 39 Conclusion 40 CHAPTER 4 POLICY FRAMEWORKS AND MANDATES 43 Australia's foreign policy interests 43 Australia's security interests 44 Mission mandate—the ideal 46 Mission mandate—the reality 47 Other key factors considered by government 49 Conclusion 53 CHAPTER 5 HUMANITARIAN CONSIDERATIONS—RESPONSIBILITY TO PROTECT 55 Humanitarian intervention 55 Sovereignty and non-intervention 56 Responsibility to Protect doctrine 57 International Commission on Intervention and State Sovereignty report 2001 58 High-level Panel on Threats, Challenges and Change (2004) 59 2005 World Summit 59 Security Council resolutions 60 Australia and the Responsibility to Protect doctrine 61 Implementing the doctrine 62 Responsibility to prevent 65 Conclusion 66 CHAPTER 6 LEGAL FOUNDATION FOR PEACEKEEPING OPERATIONS 69 UN operations 69 Non-UN operations 70 Australia's engagement in regional operations 71 Consent and legal instruments 72 International Stabilisation Force—Timor-Leste 74 Regional Assistance Mission to Solomon Islands 74 Legality and legitimacy 76 Conclusion 78 CHAPTER 7 USE OF FORCE AND FORCE PROTECTION 81 Rules governing conduct of deployment 81 Use of force—legal considerations 81 Force protection—health and safety of peacekeepers 83 Mandates and rules of engagement 84 Clarity of mandates 85 Adequacy of mandates 86 Adequacy of force protection 88 Mental health 91 Conclusion 93 vi CHAPTER 8 EXIT DATE, EXIT STATE, EXIT STRATEGY 95 Timeframe for peacekeeping operations 95 Traditional operations 96 Complex operations 97 End state 97 Exit strategy 99 Milestones 102 Conclusion 104 PART III—PREPARATION AND COORDINATION FOR PEACEKEEPING OPERATIONS 107 CHAPTER 9 AUSTRALIAN DEFENCE FORCE 109 Capacity 109 Personnel 110 Equipment 111 Training for peacekeeping operations 113 Pre-deployment training 114 Scope for improvement 117 Permanent peacekeeping capability 122 Training in health, safety and wellbeing 124 ADF's duty of care 125 Conclusion 126 CHAPTER 10 AUSTRALIAN FEDERAL POLICE 127 Changing AFP contribution 127 Capability 128 International Deployment Group 129 Operational Response Group 131 Personnel 132 Equipment and logistics 133 Training for peacekeeping operations 135 Prerequisites for international policing 135 Pre-deployment training 136 Adequacy of pre-deployment training 140 Training in health, safety and wellbeing 141 Concerns relating to training and preparedness 142 Conclusion 146 CHAPTER 11 ADF AND AFP INTEROPERABILITY 147 Separate and joint roles of ADF and AFP 147 Removing capability gaps 148 vii Enhancing interoperability 153 Secondments 155 CHAPTER 12 DFAT, AUSAID AND OTHER GOVERNMENT AGENCIES 159 Introduction 159 Government agencies and their roles 159 Agency-specific training 161 Training the trainers 163 Contracting 163 Conclusion 165 CHAPTER 13 COORDINATING AUSTRALIA'S CONTRIBUTION 167 Coordination—strategic level 167 RAMSI 169 Peace Operations Working Group and other contacts 170 Adequacy of existing arrangements 170 Coordination—operational level 171 Coordination—preparedness 173 Staff secondments 174 Joint training 175 Adequacy of training 177 Conclusion 179 CHAPTER 14 NON-GOVERNMENT ORGANISATIONS 181 Role of NGOs 181 Importance of pre-deployment training and education 182 Preparation 182 Government–NGO coordination 186 Importance of cooperation and coordination 186 Planning at strategic level 187 Joint preparation and training 188 CHAPTER 15 CIVIL–MILITARY COORDINATION 193 Importance of CIMIC 194 Defence CIMIC Doctrine 195 Planning at pre-deployment level 198 CIMIC at operational level 200 Developing CIMIC capability 200 Challenges for CIMIC 202 Mutual misunderstanding 203 NGOs—independence and impartiality 203 Information sharing 208 viii Command structures 210 Summary of impediments 212 Pre-deployment training 213 Joint training exercises 214 Suggestions for strengthening CIMIC 214 Conclusion 217 PART IV—PARTNERSHIPS—HOST AND PARTICIPATING COUNTRIES 219 CHAPTER 16 WORKING WITH HOST COUNTRIES 221 Sovereignty and intervention 221 Legitimacy and credibility 222 Conflicting priorities 222 Expectations 224 Conduct of peacekeepers 226 Local values and institution building 228 Australia's dominance in the region 231 Local ownership and capacity building 232 Involving the host country 232 Working with community groups 237 Building local capacity—Australian Electoral Commission 238 Conclusion 240 CHAPTER 17 WORKING WITH PARTICIPATING COUNTRIES 241 Common understandings 241 Cultural and professional differences 243 Conclusion 245 CHAPTER 18 EFFECTIVE PARTNERSHIPS 247 Language skills and cultural awareness 247 DFAT and AusAID 248 ADF 249 AFP 251 NGOs 253 Joint training and exchange programs 254 Women in peacekeeping operations—Resolution 1325 258 Role of women 258 Implementation of Resolution 1325 in Australia 259 Conclusion 263 ix CHAPTER 19 INTERNATIONAL COORDINATION 265 Australia's engagement with the UN 265 Australia's Permanent Mission to the UN 267 Agency contact with the UN 267 Placements in the UN DPKO 268 Increasing representation in the UN 268 Regional engagement 270 ASEAN Regional Forum 271 Pacific Islands Forum 272 Proposed Australia–Pacific Islands Council 274 Limits to regional capacity 275 International engagement programs and future regional capacity 277 Australian initiatives in the region 277 UN programs in the region 278 Global Peace Operations Initiative 279 PART V—SAFETY AND WELFARE OF AUSTRALIAN PERSONNEL 247 CHAPTER 20 SAFETY AND WELFARE ON DEPLOYMENT 283 Operational environment 283 Command of Australian forces 284 Information gathering 287 Medical care of Australian peacekeeping personnel 288 Rest and recreation 290 Leave and redeployment 290 Conclusion 291 CHAPTER 21 POST-DEPLOYMENT WELFARE 293 Debriefing and medical clearance 293 ADF 293 AFP 294 Post-Traumatic Stress Disorder 295 ADF 295 AFP 296 ADF preventative measures 297 Services available for PTSD in the ADF 299 Care for personnel with PTSD or related illness 301 Stigma of PTSD 302 Statistics 304 Health studies 306 x CHAPTER 22 COMPENSATION AND REHABILITATION 311 Legislation 311 Veterans' Entitlements Act 1986 311 Military Rehabilitation and Compensation Act 2004 312 Safety, Rehabilitation and Compensation Act 1988 312 Proposed legislation for the AFP 312 Processing claims 314 Onus of proof 315 Medical records 316 CHAPTER 23 RECOGNITION OF SERVICE 321 Importance of recognition 321 Conditions of service 321 Differences between ADF and AFP 322 Classification of service 323 Recordkeeping of personnel movements 325 Medals 326 War Memorial Roll of Honour 326 National Peacekeeping Memorial 327 Knowledge of Australia's contribution to peacekeeping 328 PART VI—IMPROVING AUSTRALIA'S
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