SECURITY COUNCIL REPORT Monthly FEB 2010 29 January 2010 This report is available online and can beFORECAST viewed together with Update Reports on developments during the month at www.securitycouncilreport.org OVERVIEW FOR FEBRUARY France will hold the Council presidency A public Council meeting will also be held CONTENTS OF THIS ISSUE in February. to hear a briefing by the head of the UN Status Update since our January Office on Drugs and Crime, Antonio Maria A debate on transition and exit strategies in Forecast...... 2 Costa on transnational threats to inter­ peacekeeping operations is planned in the Democratic Republic of the Congo..... 3 national peace and security posed by second week. It will be preceded by consul­ Chad/CAR...... 5 organised crime. tations with participation of the heads of the Timor-Leste...... 7 peacekeeping and field support depart­ The Secretary-General is expected to brief Peacekeeping...... 9 ments who will update Council members the Council in consultations on his recent Iran...... 12 on the two departments’ respective recent travel to London, Addis Ababa and Cyprus. Sudan/Darfur...... 14 strategic studies. Israel/Palestine...... 16 The Council will receive several other Iraq...... 18 One mandate will come up for renewal in briefings in public sessions: DPRK (North Korea)...... 20 February, the UN Mission in Timor-Leste n the monthly briefing on theMiddle East; Security Council Statistics (UNMIT). A briefing by the head of UNMIT and n the annual briefing by the Organization for 2009...... 21 informal consultations are planned. The res­ for Security and Co-operation in Europe Notable Dates for February...... 24 olution will be adopted in a formal meeting. >>page 2 Important Dates over the Horizon....24

Aide-Memoire

Important matters pending include: n The Council requested the Secretariat on 21 d’Ivoire, requested in a May 2004 presi­ n The quarterly reports of the International November 2006 (S/2006/928) to update dential statement (S/PRST/ 2004/17), has Security Assistance Force in Afghanistan the index to Council notes and state- still not been made public. Also on Côte continue to be seriously delayed. (The last ments on working methods. This has not d’Ivoire, the December 2005 report by the report, released in June 2009, covered the been published. Secretary-General’s Special Adviser on period from August 2008 to January 2009.) n The latest report of the Lebanon Indepen- the Prevention of Genocide has not been n Reports from the Kosovo Force (KFOR) dent Border Assessment Team, issued on published. have disappeared. The last one available 25 August 2008, still awaits Council consid­ n UNAMI reports on human rights in Iraq, in covers the period from 1 to 31 July 2008. eration (S/2008/582). the past produced every two to three n The Secretary-General continues to delay n The 2005 World Summit requested that the months, have decreased in their frequency responding to the mandate to assist with the Security Council consider reforms for the and regularity. The last report, released in delineation of the international borders of Military Staff Committee. This has yet to December 2009, covered the period from 1 Lebanon, especially Sheb’a Farms, in be addressed. January to 30 June 2009. accordance with resolution 1701. n The Secretary-General is yet to report to n In a presidential statement on Darfur in July n The Council has yet to agree on the election the Council on Kenya as requested in a 2008 (S/PRST/2008/27) the Council noted of chairs and vice chairs of subsidiary February 2008 presidential statement (S/ the UN investigation underway into the 8 bodies for 2010. The election is normally PRST/2008/4). July 2008 attack against UNAMID peace­ announced in early January in a note by the n The December 2004 report by the Secretary- keepers. The Council has not followed up President of the Council but at press time it General on human rights violations in Côte this investigation. had not been out.

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org 1 OVERVIEW FOR FEBRUary (continued) Chairman-in-Office, Secretary of State and the aftermath of the 12 January On Chad and the Central African Republic, and Foreign Minister of Kazakhstan, earthquake. informal consultations are possible. There Kanat Saudabayev; is also a possibility of consultations on Haiti Informal consultations are expected on the n a briefing onDarfur ; to discuss MINUSTAH’s mandate and Democratic People’s Republic of Korea n on Iraq, most likely by the head of whether it needs to be modified to perform (briefing by the chair of the Sanctions Com­ UNAMI, Ad Melkert; new, post-earthquake recovery tasks. mittee) and discussion of a possible n on sexual violence in conflict (a follow- presidential statement on Guinea is also On the Democratic Republic of the up to resolution 1888) is possible; and likely in informal consultations. Congo, a meeting at the experts level is n also possible is a briefing on Haiti expected.

Status Update since our January Forecast n Afghanistan: The Council was briefed by 2010/1) promising further action to pro­ League of Arab States to the UN Yahya Mah­ the Secretary-General and his Special Rep­ mote better operational cooperation massani and the Commissioner for Peace resentative for Afghanistan, Kai Eide, on 6 between the UN and regional and subre­ and Security of the AU, Ramtane Lamamra, January (S/PV.6255). The Secretary- gional organisations. Conflict early also spoke. In informal consultations follow­ General told the Council that Afghanistan warning, prevention, peacemaking, peace­ ing the briefing Council members expressed was at a critical juncture. He also said that keeping and peacebuilding were continued support for the government and better coordination based on strong politi­ highlighted. The Council commended the the current UN strategy. On 28 January the cal willingness of the international Secretariat’s efforts to consolidate partner­ Council adopted resolution 1910 renewing community and strong local effort was ships including the Secretary-General’s the authorisation of the AU Mission in Soma­ needed. Eide said he was worried about retreat and encouraged the Secretariat lia until 31 January 2011. negative trends in Afghanistan and outlined and regional and subregional organisa­ n Nepal: On 15 January the Council was a political strategy that prioritised a system­ tions to develop information-sharing and to briefed (S/PV.6260) by the Representative of atic approach to civilian institution-building. continue to compile best practices, in par­ the Secretary-General, Karin Landgren, who n West Africa: On 12 January the Special ticular in the field of mediation, good offices also introduced the Secretary-General’s Representative of the Secretary-General and peacekeeping. report (S/2010/17). In her briefing Landgren and head of the UN Office for West Africa n Central Asia: On 14 January Council mem- said that although the fragility of the peace (UNOWA) briefed (S/PV.6256) the Council bers met in informal consultations to hear a process remained real, parties had in the on the Secretary-General’s latest report briefing on the activities of the UN Regional past month shown a “renewed urgency” on (S/2009/682) on the situation in West Africa Centre for Preventive Diplomacy for Central core issues. She stressed the importance of and the activities of UNOWA. Asia by the Secretary-General’s Special following up these developments and n Cooperation Between the UN and Representative for Central Asia and head of resolving the main tasks in the peace pro­ Regional Organisations: On 13 January the Centre, Miroslav Jenča. Following the cess. Nepal’s Permanent Representative the Council held a debate on cooperation meeting, the Council issued a press state- Gyan Chandra Acharya provided informa­ between the UN and regional and subre­ ment (SC/9843) encouraging further tion on what the government hoped to do in gional organisations in maintaining cooperation between the Centre and gov- the next few months. Following the briefing international peace and security (S/ ernments in the region and expressing Council members held informal consulta­ PV.6257). Representatives of the AU, Asso­ continued support for its work. tions. On 21 January the Council adopted ciation of Southeast Asian Nations; n Somalia: On 14 January the Secretary- resolution 1909 renewing UNMIN until 15 Collective Security Treaty Organisation, General’s Special Representative for May 2010. The resolution also called for EU, League of Arab States, NATO, Organi­ Somalia, Ahmedou Ould-Abdallah, briefed UNMIN to make the “necessary arrange­ zation of American States; Organisation of (S/PV.6259) the Council on the Secretary- ments…for its withdrawal, including the Islamic Conference; Organization for General’s latest report on Somalia handing over any residual monitoring Security and Cooperation in Europe; (S/2009/684). Ould-Abdallah called for a responsibilities by 15 May 2010”. Pacific Islands Forum; and Shanghai Co- strengthening of international support to the n Haiti: On 19 January the Council unani­ operation Organisation participated. The Somali government and enhanced cooper­ mously adopted resolution 1908, increasing Secretary-General, who the day before ation with regional and subregional the force levels of the UN Stabilization Mis­ held a retreat with heads of international organisations. He also said the Council sion in Haiti (MINUSTAH) in order to support organisations, addressed the Council as should “address vigorously the role of spoil­ increased requirements in the aftermath of well. At the end of the debate the Council ers”. Somali Ambassador to the UN Elmi the 12 January earthquake. One thousand issued a presidential statement (S/PRST/ Ahmed Duale, Permanent Observer for the and five hundred additional police and

2 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org Status Update since our January Forecast (continued)

2,000 additional military personnel were towards achieving key benchmarks of the had been expecting in January advice from authorised. The Council had issued a press Ouagadougou Agreement and its addi­ the Secretary-General regarding his pro­ statement (SC/9846) on 18 January tional protocols. On 28 January the Council posals for monitoring and reporting within expressing deep sympathy to the people of extended the mandate of UNOCI until 31 the existing UN system on the protection of Haiti, and condolences to the families of all May 2010. women and children from rape and other members of MINUSTAH who lost their lives n Kosovo: On 22 January the Council held a sexual violence in armed conflict and post- in the earthquake, including Special Repre­ debate on Kosovo (S/PV.6264). The Secretary- conflict situations, as requested by sentative of the Secretary-General Hedi General’s Special Representative and head resolution 1888. Also expected was the Annabi, Principal Deputy Special Represen­ of UNMIK Lamberto Zannier gave a briefing appointment of his Special Representative tative Luiz Carlos da Costa and Acting UN on the Secretary-General’s latest report to lead the strengthening of existing UN Police Commissioner in Haiti Doug Coates. (S/2010/5) on the UN Interim Administration coordination mechanisms and advocate on n Côte d’Ivoire: On 21 January the head of Mission in Kosovo. In addition to Council the prevention of sexual violence in armed the UN Operation in Côte d’Ivoire (UNOCI), members, Serbian President Boris Tadić conflict. It seems that some delays have Choi Young-Jin, briefed (S/PV.6263) the and the Foreign Minister of Kosovo Skënder been caused by the urgent demands on a Council on the latest report of the Secretary- Hyseni spoke at the meeting. number of senior Secretariat officials in the General (S/2010/15) and on progress n Women, Peace and Security: The Council aftermath of the earthquake in Haiti.

Democratic Republic mandate to focus specifically on the protec­ In January the joint team of MONUC and of the Congo tion of civilians. It also prioritises the DRC armed forces (FARDC) began disarmament, demobilisation and reinte­ Amani Leo, a new operation to protect civil­ Expected Council Action gration (DDR) of Congolese armed groups ians, hold territory taken from armed A closed oral briefing from the Secretariat at and repatriation and resettlement of foreign groups and help restore state authority in expert level for Council members and armed groups and highlights the need for these areas. It is also to conduct targeted MONUC troop and police contributors is security sector reform (SSR). The resolution operations against remaining elements of expected. Implementation of a protection requests the Secretary-General to provide the FDLR. MONUC will support FARDC strategy and the Secretariat’s emerging recommendations by 1 April on adjust­ units provided operations are jointly Integrated Strategic Framework will be the ments to MONUC’s mandate to enable planned with MONUC and are real protec­ focus. This is likely to lead into discussions changes but without risking instability. tion operations conducted in accordance in coming weeks on the future configuration with international humanitarian, human The resolution urges the DRC government for MONUC. The February briefing may rights and refugee law. also include an update on military opera­ to implement the “zero-tolerance policy” for On 13 December 2009 a report published tions in eastern DRC. human rights violations committed by ele­ ments of the DRC army. While requesting by Human Rights Watch (HRW) docu­ Also in February, a UN Technical Assess­ MONUC to continue to support army opera­ mented the deliberate killing of 1,400 ment Mission is expected to visit the DRC. A tions against militias in eastern DRC, the civilians between January and September briefing upon its return is possible. resolution also calls upon MONUC to with­ 2009 by government and rebel forces in eastern DRC during Kimia II and its prede­ Key Recent Developments draw support from army units linked to serious violations of international humani­ cessor operation. A further 7,500 cases of On 23 December 2009 the Council adopted tarian, human rights and refugee law. sexual violence against women and girls resolution 1906 extending the deployment were reported across the Kivus during the of the UN Organisation Mission in the Dem­ On 16 December 2009 the Secretary- same period, nearly double that of 2008. ocratic Republic of the Congo (MONUC) General’s Special Representative and head HRW said MONUC’s support to the DRC until 31 May 2010. The short five month of MONUC, Alan Doss, briefed the Council. military implicated it in these abuses and renewal represents a broad consensus that Doss said Kimia II—the joint army/MONUC undermined the mission’s primary objec­ a major review of MONUC’s role is now operation to disrupt and disperse the tive to protect civilians. The report essential and is also in part an effort to show Rwanda Hutu rebel Forces démocratiques recommended creating and deploying a sensitivity to the growing concern from Kin­ de libération du Rwanda (FDLR) in eastern civilian protection expert group to provide shasa about MONUC’s presence. President DRC—had largely met its objectives, specific recommendations on how to Kabila has called for a plan to withdraw though not without serious and tragic improve civilian protection in eastern DRC. MONUC troops prior to 30 June (the 50th humanitarian consequences. The FDLR anniversary of the DRC’s independence). remained a potent threat, he said. Kimia II On 16 December 2009 the UN special The resolution prioritises MONUC’s ended on 31 December 2009. rapporteur on extrajudicial executions,

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org 3 Philip Alston, said that UN peacekeepers problem both for the UN and for Kinshasa. human rights instruments and to should not cooperate with a military opera­ improve the legislative basis for imple­ Looking ahead, an issue to watch is the risk tion led by individuals accused of war menting human rights obligations. of deterioration of the security and political crimes. Alston named two DRC army com­ Some other recommendations were not situations in neighbouring Burundi, CAR manders who remain in their posts, accepted by the DRC, such as pursuing and Sudan in the lead up to elections in Innocent Zimurinda and Bosco Ntaganda, members of the security forces sus­ 2010 and 2011. who are facing serious accusations of pected of having committed serious human rights violations. (An arrest warrant Options human rights violations. Twenty-eight from the International Criminal Court (ICC) No Council action is expected in February. other recommendations taken under is outstanding against Ntaganda.) Alston However, the interaction between Secre­ advisement by the DRC will be the sub­ called on MONUC to make public the terms tariat officials and Council member experts ject of a future response. These include of any conditionality policy which it cur­ will begin a drawn out process of discus­ ending impunity for crimes of sexual rently implements and to ensure adequate sion of the Integrated Strategic Framework violence, protecting human rights monitoring guarantees. and the options for future reconfiguration defenders, implementing the ICC Stat­ of MONUC. In December 2009, the Ugandan rebel ute and prosecuting those accused of Lord’s Resistance Army (LRA) reportedly war crimes. The response of the DRC to Options in this regard could include: killed 83 civilians in the Haut-Uélé district of these recommendations will be n accelerating the idea of a Council mis­ Orientale province. A further 160 civilians included in the outcome report to be sion to the DRC—perhaps sending a including 17 children were abducted. In adopted by the HRC at its next session small team of four to five Ambassadors early January four civilians were reportedly (1-26 March). for an in depth series of meetings; killed near Dungu, Orientale province. n an Aria-style meeting focused on the Key Issues broader challenges facing the DRC and In 2009 more than 1,500 FDLR ex-combat­ An immediate key issue is assessing what the role the UN could play in addressing ants and more than 2,000 dependents were is behind the sudden disenchantment with these; voluntarily repatriated. Nearly 15,000 Rwan­ MONUC in Kinshasa and how to respond n shifting resources away from MONUC’s dan civilians were also repatriated by the sensitively but responsibly given the ongo­ formed military units and putting addi­ UN High Commissioner for Refugees ing acute security and stability issues. tional capacity into civilian roles working (UNHCR). Stability and security in eastern DRC on SSR, DDR and DDRRR; In mid-January, UNHCR reported 107,000 remains a critical question. Fundamental to n focusing military capacity more on advis­ refugees from Equateur province since this is the FDLR issue, reintegrating former ing and monitoring roles so as to assist early November. A further 17,000 had combatants, security sector reform and government authorities to integrate pro­ crossed into the Central African Republic effective control over military forces. A tection of civilians into the planning of (CAR) following interethnic fighting in late recurrent question is how the Council can operations, and on monitoring the perfor­ October. be seen as playing a more effective role on mance of FARDC battalions; and these issues. n beginning to develop for MONUC, as a On 7 January Thomas Lubanga Dyilo’s whole, activities that reflect the overlap­ defence began at the ICC. Lubanga faces A related issue is whether the prioritisation ping needs for peacebuilding type two counts of war crimes: enlisting and con­ within resolution 1906 of MONUC’s man­ processes and outcomes as identified in scripting child soldiers and using them in date will have any effect on the security paragraph nine of S/PRST/2009/24. hostilities in the DRC. The trial started on 26 situation in eastern DRC, and whether the January 2009. DRC government in the coming months will Council Dynamics be able to demonstrate a commitment to Council members ultimately agreed on a Human Rights-Related developing sustainable security sector five-month mandate despite initial con­ Developments institutions with respect to the rule of law. cerns from some that more time was The DRC was considered as part of the needed to see progress in SSR initiatives A further issue is whether the Integrated Stra­ Universal Periodic Review by the and that the security situation in the east tegic Framework will impact in practice upon Human Rights Council (HRC), with an warranted 12 months. the future mandate of MONUC. An important outcome adopted by the Working issue for the Council is what role the DRC Resolution 1906 sets out clear expectations Group of the HRC on 7 December 2009. government would like to see MONUC play­ of both MONUC and the government in The DRC, represented by its Minister for ing in the future. MONUC’s continuing relation to the protection of civilians, SSR, Human Rights, accepted a large major­ support for FARDC, which includes ele­ DDR and DDRRR. During December’s con­ ity of the recommendations made by ments responsible for human rights sultations on MONUC’s mandate, China participants in the Working Group, violations, seems likely to continue to be a expressed concern at the priority given in including the need to ratify several the draft resolution to protection of civilians,

4 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org given the primary responsibility for such a Secretary-General’s Reports task falls with the government. It was also • S/2009/623 (4 December 2009) concerned with the amount of detail pro­ SECURITY COUNCIL REPORT • S/2009/472 (18 September 2009) vided on the conditionality of MONUC’s Monthly Other support to the FARDC. However, it seemed FEB 2010 comfortable with the final language. • S/2009/667 (31 December 2009) FORECAST detailed the activities of the Committee Resolution 1906 is silent on the question of established pursuant to resolution Chad/CAR MONUC’s support to elections. This seems 1533 (2004) from 1 January to 31 to be deliberate so as to focus the mission’s December 2009. Expected Council Action mandate and respond to critics who claim • S/PV.6244 (16 December 2009) was In February, the Council is expecting a MONUC’s mandate was too extensive for it the verbatim record briefing by the report from the Secretary-General on devel­ to be effective. Secretary-General’s Special Repre­ opments in eastern Chad and northeastern Central African Republic. The report will There seems to be interest in shifting the sentative, Alan Doss. come against the backdrop of a recent mission towards a more integrated mission • S/2009/603 (23 November 2009) was request by the government of Chad, con­ with more peacebuilding characteristics. the latest report of the Group of veyed to the Secretary-General, not to There is skepticism by some as to whether Experts on the DRC. renew the mandate for the peacekeeping the security situation in the east would • SC/9791 (17 November 2009) was the operation MINURCAT, which expires on 15 allow immediate drawdown of MONUC’s Council’s press statement on the LRA. March. No Council action is expected in military component. • S/PV.6215 (9 November 2009) was the verbatim record briefing by the Spe­ February, but intense behind the scenes Most members seem committed to an cial Envoy of the Secretary-General on discussions are likely. A meeting with troop extensive consultative process based on the Great Lakes, Olusegun Obasanjo. and police contributors to MINURCAT is the Integrated Strategic Framework. • SC/9703 (10 July 2009) was the Coun­ expected. Input from UN humanitarian agencies and NGOs working in the camps Some members seem keen to add names to cil’s press statement on the DRC. of displaced persons protected by MINUR­ the targeted sanctions list in accordance with • SC/9608 (3 March 2009) was the CAT is also likely. the Group of Experts recommendations. press release on the addition of four individuals to the assets freeze and Key Recent Developments France is the lead country on the DRC. travel ban list by the DRC Sanctions On 19 January the government of Chad Committee. UN Documents requested that the UN Mission in the Cen­ • S/2009/105 (19 February 2009) was tral African Republic and Chad (MINURCAT) Selected Security Council Resolutions the letter from the Secretary-General be withdrawn. On 25 January the Secretar­ • S/RES/1906 (23 December 2009) on the revised concept of operations iat responded by sending a technical extended the mandate of MONUC and rules of engagement for MONUC. assessment mission to the country. until 31 May 2010. • S/RES/1896 (30 November 2009) Other Relevant Facts Humanitarian groups present in Chad have expressed alarm at the possibility of extended the DRC sanctions and the Special Representative of the Secretary- mandate of the Group of Experts to 30 General and Head of Mission MINURCAT’s withdrawal, concerned about the security situation for refugees and November 2010. Alan Doss (UK) internally displaced persons (IDPs), and • S/RES/1843 (20 November 2008) MONUC Interim Force Commander authorised the temporary deployment their own operations. Lieutenant General Babacar Gaye of an additional 3,085 troops to rein­ (Senegal) The message from the government of Chad force MONUC’s capacity. that the operation should be withdrawn by Size, Composition and Cost of Mission • S/RES/1807 (31 March 2008) lifted the the end of April came unexpectedly. MIN­ arms embargo for government forces, • Strength as of 30 November 2009: URCAT’s key role had been training and strengthened measures related to 18,614 troops, 701 military observers, advising the Détachement intégré de sécu­ aviation and customs. 940 police, 1,008 international civilian rité (DIS), of the Chadian police force to Latest Presidential Statements personnel and 2,611 local civilian staff, assume responsibility for security in camps 630 UN volunteers • S/PRST/2009/24 (5 August 2009) was for refugees and IDPs, as well as sites with • Approved budget (1 July 2009-30 on UN peacekeeping operations. concentrations of IDPs and key towns in June 2010): $1,350.00 million • S/PRST/2008/48 (22 December 2008) neighbouring areas. MINURCAT also main­ welcomed regional efforts to address Duration tains security conditions conducive to a the security threat posed by the LRA. 30 November 1999 to present; mandate voluntary, secure and sustainable return of expires on 31 May 2010 refugees and IDPs by facilitating the

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org 5 provision of humanitarian assistance in refugee camp in Sam Ouandja as tensions Key Issues eastern Chad and northeastern Central in the area led to clashes between the rebel An overarching issue for the Council is African Republic (CAR) and by creating group, Union of Democratic Forces for whether the request for MINURCAT to leave favourable conditions for the reconstruc­ Unity, stationed in the area and Darfurian in April is driven by tactical issues or practi­ tion and economic and social development refugees. Two members of the rebel group cal problems that can be resolved. of those areas. MINURCAT has also been were killed. A key issue is the security and welfare of the charged with a number of Chapter VII tasks Tensions between Chad and Sudan refugee and IDP population since aid in eastern Chad and northeastern CAR, remained high, with limited progress made groups may be unable to do their job if MIN­ including contributing to protecting civil­ towards implementing previous commit­ URCAT is withdrawn. ians in danger, facilitating the delivery of ments to refrain from using force against humanitarian aid and the free movement of In light of Chad’s parliamentary elections each other and cease providing support to humanitarian personnel by helping to expected in November, an issue for the armed opposition groups. The presence of improve security in the area of operations, Council is whether MINURCAT’s departure the Sudanese Justice and Equality Move­ and protecting UN personnel, facilities, in April might contribute to creating a situa­ ment in border locations in northeast Chad installations and equipment. tion of electoral instability. and Chadian armed opposition groups on On 22 October 2009, Assistant Secretary- the Sudanese side of the border has contin­ A practical issue for the Council is how to General for Peacekeeping Operations ued, jeopardising security in the region. address lack of progress highlighted on Edmond Mulet briefed the Council and key benchmarks that have been elabo­ On 21 December, the Council issued a reported progress made in implementing rated, including demilitarisation of refugee presidential statement welcoming the the 13 August 2007 agreement between the and IDP camps to be evidenced by a establishment of the UN Integrated Peace­ government and the political opposition decrease in arms, violence and human building Office in the Central African that would prepare Chad for November rights abuses and improvements in the Republic (BINUCA) on 1 January. It called 2010 parliamentary elections, in particular government’s capacity to ensure security on the government to strengthen security the release of census data, which was and protection of civilians, necessary for sector reform and condemned ongoing accepted by parties; adoption of key legis­ sustainable voluntary return of refugees attacks by the Lord’s Resistance Army lation; and the establishment of the and resettlement of IDPs. (LRA) in CAR. Electoral Commission. On CAR, Mulet stated that situation in the northeast has sta­ Human Rights-Related A related issue is whether Sudan and Chad bilised, but continued to be unpredictable Developments will move forward with the implementation because of sporadic interethnic clashes of their recent agreement to conduct joint Chad: The absence of a delegation from and weak state institutions. He encouraged border control and address the fighting Chad during the consideration of its the government of CAR to redouble its between rebels and government forces in report to the UN Committee on Eco­ efforts to facilitate intercommunity dialogue Chad, which impacts the security of civil­ nomic, Social and Cultural Rights on 5 and begin a credible disarmament process ians in eastern Chad. A related issue is November 2009 drew adverse comment in the region. management of localised sources of con­ from the chair of the Committee. The flict between ethnic groups, which is crucial The October 2009 Secretary-General’s Committee also expressed concern for the return of IDPs. report had noted, however, MINURCAT’s about high levels of illiteracy amongst limited progress on the benchmarks in the women in Chad and questioned the Underlying Problems strategic workplan, which include strength­ degree of independence of Chad’s The military component of MINURCAT was ened security coordination with DIS and National Human Rights Commission. authorised in 2009 after the previous EU national police, peace consolidation peacekeeping force, EUFOR, decided to efforts and voluntary return of refugees CAR: The 8 December 2009 Secretary- withdraw and requested the UN to fill the and IDPs to their areas of origin. The report General’s report on the situation in CAR vacuum. The UN force, though authorised also said the lack of a comprehensive solu­ described the human rights situation as at 300 police and 5,200 military personnel, tion to the conflict with armed groups in “worrisome” especially in northern and has so far reached only about 55 percent of eastern Chad and on broader governance northwestern regions of the country. The its strength. Thus, it has not been capable reforms impacted any positive political LRA was seen as responsible for of fully delivering on its mandate. This in development. instances of human rights violations, turn has prompted complaints in Chad that including summary executions, abduc­ civilian elements of the mandate, in particu­ December 2009 saw increased violence tions, rape and systematic pillaging in lar those aimed at creating favourable (including banditry) in northeastern CAR, the Haut Mboumou area. Impunity conditions for reconstruction and economic areas with a high population of refugees remained a major source of concern all and social development in returnee areas, from Darfur. On 23 December MINURCAT over the country. have not been fulfilled. increased its presence in areas near a

6 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org Options welcomed the establishment of Immediate options for the Council include: BINUCA. n encourage the Secretary-General to • S/PRST/2009/13 (8 May 2009) con­ SECURITY COUNCIL REPORT engage in direct dialogue with the gov­ demned renewed military incursions Monthly ernment of Chad to resolve his concerns; in eastern Chad by “Chadian armed FEB 2010 n engage with the government of Chad at FORECAST groups, coming from outside”. the ambassadorial level in New York and • S/PRST/2008/22 (16 June 2008) was at the central government level through on the June rebel offensive in Chad. 2009: 300 police, 25 military liaison Council members’ embassies in officers, 5,200 military personnel Selected Secretary-General’s Reports N’Djamena; and an appropriate number of civilian • S/2009/535 (14 October 2009) on n agree on specific benchmarks for mea­ personnel suring the transition of MINURCAT’s MINURCAT. • Strength as of 30 November 2009: mandate as it is fulfilled (in this context, • S/2009/359 (14 July 2009) on 3,032 total uniformed personnel, given the centrality of refugee and IDP MINURCAT. including 2,743 troops, 23 military security to the mandate, one benchmark • S/2009/277 (29 May 2009) was a observers, and 266 police officers, could be a determination that DIS is fully report on the protection of civilians in as well as 419 international civilian operational and fulfilling the require­ armed conflict. personnel, 323 local civilian staff, and ments necessary for humanitarian • S/2009/199 (14 April 2009) on 137 UN volunteers. protection of vulnerable populations); MINURCAT. • Main police contributors: and Other Côte d’Ivoire, Senegal, Burkina Faso, n use the meeting with troop and police • S/PV.6204 (22 October 2009) was a Benin and France contributing countries to MINURCAT to meeting of the Council on the situation • Main military contributors: discuss and review complaints by Chad in Chad and Central African Republic France and Ireland about MINUCRAT and consider possible and the subregion. • Cost: approved budget 1 July 2009– ways to address them. • S/PV.6172 (28 July 2009) was a meet­ 30 June 2010: $690.75 million ing of the Council on the situation in Council Dynamics MINURCAT: Duration Chad and Central African Republic. Council members seem concerned that September 2007 to present; mandate • SG/SM/12373 (20 July 2009) was the any sudden termination of the mandate expires 15 March 2010 statement of the Secretary-General would have adverse implications for secu­ condemning violence in West Darfur, rity in both Chad and CAR, leaving already Chad and Sudan border. vulnerable populations at a yet higher risk. Timor-Leste • S/PV.6121 and S/PV.6122 (8 May There is therefore little or no support for the Expected Council Action 2009) were Council meetings to Chad position. The overall financial climate A briefing by the head of the UN Mission in discuss renewed cross-border rebel may affect the willingness of some mem­ Timor-Leste, Ameerah Haq, and an open activity in Chad. bers to agree to any costly new measures to debate are expected in February. (The • S/2009/232 (6 May 2009) was a letter appease Chad. However, some practical UNMIT mandate expires on 26 February from Chad requesting a Council accommodation may be explored in the and Council renewal is expected.) Resolu­ meeting on the situation between coming weeks. tion 1867 (which extended UNMIT’s Chad and Sudan. mandate in 2009) requires a report by the France is the lead country. • S/2009/231 (5 May 2009) was the note Secretary-General by 1 February, but at verbale from the Chadian government press time it looked unlikely that this dead­ UN Documents accusing Sudan of facilitating the line would be met. The Secretary-General’s Selected Security Council Resolutions renewed cross-border rebel activity. report is expected to include recommenda­ • S/RES/1861 (14 January 2009) • S/2009/214 (23 April 2009) was the tions from a recent technical assistance renewed MINURCAT’s mandate until letter transmitting the report on the mission. Council members are likely draw 15 March 2010 and authorised the activities of the EU military operation on these in their decision. Some reconfigu­ deployment of a military component in Chad and CAR. ration of the operation seems likely. to replace EUFOR. • S/RES/1778 (25 September 2007) Other Relevant Facts Key Recent Developments established MINURCAT and autho­ MINURCAT: Special Representative of The technical assessment mission, led by rised EUFOR. the Secretary-General Ian Martin, was in Timor-Leste from 10 to 18 Selected Security Council Presidential Victor da Silva Angelo (Portugal) January to assess the future of the UN Statements MINURCAT: Size, Composition and Cost Integrated Mission in Timor-Leste (UNMIT) and make recommendations, including • S/PRST/2009/35 (21 December 2009) • Authorised strength as of 14 January

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org 7 possible adjustments in UNMIT’s mandate An issue which may suggest that major Human Rights-Related and strength. Among the likely suggestions reconfiguration is premature is the slow Developments are that the UN Police (UNPOL) be down­ progress on comprehensive security sec­ sized and that there be a change of In their latest joint report on human rights tor reform, the lack of institutional emphasis in UNPOL’s role. developments in Timor-Leste published development in the police and uncertainty in September 2009, the Office of the over whether the Timor-Leste government The Timor-Leste National Police (PNTL) has High Commissioner for Human Rights is able to develop a professional police been gradually assuming policing respon­ (OHCHR) and UNMIT focussed on force at this stage. sibilities since 14 May 2009. (The handover accountability for past and present process had been suspended following the A related question is the ongoing review of human rights violations. They noted assassination attempts on Timor-Leste’s the Supplementary Policing Agreement some progress in strengthening the jus­ president and prime minister in 2008.) Ear­ (which agreed that UNPOL would be given tice system including a new criminal lier in 2009 the PNTL had resumed executive policing authority until the PNTL code, but found gaps in implementing responsibility of four districts: Lautem, was reconstituted). A government commis­ recommendations of the joint Indonesia Oecusse, Manatuto and Viqueque and the sion formed in April 2009 to review the and Timor-Leste Commission of Truth Police Training Centre. On 14 December agreement has not met the UN since May. and Friendship (CTF) and the Truth 2009 it resumed primary responsibility for Commission for Reception and Recon­ The shooting incident in Dili in December the conduct of maritime police operations ciliation (CAVR). The report urges the raises issues whether the PNTL is yet and on 18 December 2009 for the Police government ensure that the judiciary receiving the right type of training for Intelligence Service. and prosecution services are allocated community-oriented policing. On 28 December 2009 a PNTL officer was sufficient resources and clearly delin­ A further issue is the impact of the Interna­ involved in a shooting in the Comoro area of eate the roles of the military and the tional Stabilisation Force’s downsizing. In Dili; one person was killed and another police. It urges donors to provide coordi­ December Australia announced that it injured. The police officer under investiga­ nated technical assistance in the areas would reduce its troops from 650 to 400 tion was suspended from duty on 4 January. of security sector reform and justice. by February. UNPOL and PNTL are carrying out an inter­ In a related development, the Timor- nal investigation. A separate inquiry will be Underlying Problems Leste parliament on 14 December 2009 conducted by UNMIT’s Human Rights and One of the fundamental problems that led adopted a resolution agreeing to set up Transitional Justice Unit. to the violence in 2006 was a fragmented and fund a special institution to imple­ security sector. A recent International Crisis The new Special Representative of the ment the recommendations of the Group report notes that little has been done Secretary-General for Timor-Leste, reports of the CTF and the CAVR. The to clarify the roles of the security and Ameerah Haq, arrived in Timor-Leste on resolution asked a parliamentary com­ defence forces. Draft legislation provides 5 January. On 25 November 2009 the mittee to prepare, within three months, the legal means for integration of these two Secretary-General wrote to the Council draft legislation for concrete measures to forces but there does not seem to be a advising of Haq’s appointment from 28 implement the recommendation for the vision for effective steps to reform the December 2009 in succession to Atul Khare, two commissions and for the creation of respective roles and reduce the potential who had held the post for three years. a new institution for that purpose. The for re-emergence of conflict between the resolution will be debated by the Timor- On 23 October 2009 the Council was army and police. Leste parliament in April. briefed by Khare and by José Luís Internally displaced persons have returned Guterres, Deputy Prime Minister of Timor- Key Issues home. However, reintegration continues to Leste. Khare stressed the need for a steady The key issue for the Council is whether be a challenge. Difficulty with accessing approach to Timor-Leste and that there changes are needed for the UNMIT employment, services and infrastructure, should be no exit without a strategy. Most mandate and staffing and developing a the lack of a legal framework to address Council members agreed with the clear strategy which reflects the reality on land and property disputes, a weak justice Secretary-General’s recommendation to the ground. system and slow security sector reform maintain the strength and composition of could therefore contribute to possible UNMIT but that the technical assessment A related issue is the appropriate resources future unrest. mission in January 2010 would evaluate at this stage including capacity-building and mentoring. possible adjustments in UNMIT’s mandate An Amnesty International report on justice and strength in the future. Also a key issue is whether the December and impunity published in August 2009 2010 deadline, suggested recently by the underlines an ongoing problem. Despite a Timor-Leste government, for concluding number of national and international justice the handover to the national police is realis­ initiatives there is continuing impunity in tic. The dangers of setting artificial deadlines Timor-Leste for atrocity crimes and this are well remembered in the Council.

8 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org feeds underlying discontent in some on UNMIT’s future. There is some concern sectors of society. that the issues that contributed to the 2006 crisis have yet to be fully dealt with. SECURITY COUNCIL REPORT Options Monthly One option is to renew UNMIT for a year Brazil has historically been actively with some limited downsizing of police and involved in the issue and wants to focus on FEB 2010 FORECAST prioritisation of the existing mandate so that security and socioeconomic development. greater effort can go into mentoring, gover­ Japan also has an active interest, but as • Size as of 31 December 2009: 1,517 nance, security sector reform and other the lead country seems likely to play the police and 35 military liaison officers peacebuilding type activities. role of facilitator. • Civilian staff as of 31 December 2009: A possible option, if members feel the Members like Austria, Mexico and Turkey 366 international and 895 local, 198 need for a fuller discussion of the underly­ have shown interest in the human rights UN Volunteers ing issues and development of a Council and justice dimensions of this issue. • Key police contributors: Malaysia, strategy, is to consider a two to three Portugal, Bangladesh, Pakistan and Countries outside the Council (Australia, month rollover. Philippines New Zealand, Malaysia, Philippines, Portu­ • Approved budget (1 July 2009–30 Further options include: gal, and South Africa) continue to be June 2010): $205.94 million n requesting the Secretary-General to closely engaged and will play a role in Duration develop a more structured way of mea­ developing the first draft of the resolution. suring progress against key benchmarks Some of these countries are concerned, 25 August 2006 to present; mandate taking into account a possible exit however, that there may be insufficient expires 26 February 2010 in 2012; time between the release of the Secretary- International Stabilisation Force n reiterating the need for greater progress General’s report and the mandate expiry • Size as of 2 December 2009: in a comprehensive review of the future for a satisfactory exploration of the issues approximately 800 troops role and needs of the security sector; in sufficient detail. • Contributors: Australia (650 troops) n highlighting the importance of continu­ and New Zealand (150 troops) ing to focus on accountability and justice UN Documents and the promotion and protection of Selected Security Council Resolutions Useful Additional Resources human rights; • S/RES/1867 (26 February 2009) n Handing Back Responsibility to Timor- n deciding on a Council visit to Timor-Leste extended UNMIT until 26 February Leste Police, International Crisis Group, before the next mandate renewal; and 2010. Asia Report No. 180, 3 December 2009 n deciding on how to involve UNMIT • S/RES/1704 (25 August 2006) n ‘We Cry for Justice’, Impunity Persists 10 in peacebuilding type activities and established UNMIT. Years on Timor-Leste, Amnesty Interna­ processes. tional, August 2009 Selected Letters Council and Wider Dynamics • S/2009/612 (25 November 2009) and At this point most members appear com­ S/2009/613 (1 December 2009) was fortable with some limited refocusing of the an exchange of letters between the Peacekeeping mandate and some downsizing while Secretary-General and the Council Expected Council Action retaining the four main pillars of the man­ regarding the appointment of Ameerah At the initiative of the French presidency date (i.e. security sector reform, democratic Haq as Special Representative. the Council will hold a further debate on governance, rule of law and socioeco­ Selected Meeting Records peacekeeping. nomic development) and working towards • S/PV.6205 (23 October 2009) was the a possible 2012 exit. Initial briefings on the Informal consultations are also likely involv­ last Council debate on Timor-Leste. technical assessment mission’s recom­ ing a discussion with the head of the • S/PV.6086 (26 February 2009) was mendations appear to have had a good Peacekeeping Department, Alain Le Roy, on the adoption of resolution 1867. reception. and the chief of Field Support, Susana Mal­ corra. France hopes that this process will France, which has initiated a debate on Other Relevant Facts result in an outcome document to follow-up peacekeeping transition and exit strategies Special Representative of the Secretary- the 5 August 2009 presidential statement, in February, may see Timor-Leste as a case General and Head of Mission and take into account aspects of Secretari­ study in this context. However, a number of Ameerah Haq (Bangladesh) at’s “New Horizon” non-paper and an other members are wary of including lan­ Size, Composition and Cost upcoming field support strategy report. guage in the resolution that could send a • Maximum authorised strength: up to signal of early departure. The events of France is expected to circulate a concept 1,608 police and 34 military officers 2006 are still seen by some Council mem­ paper focusing on transition out of peace­ bers as a reminder not to act prematurely keeping ahead of the debate.

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org 9 The fact that the debate precedes that of the The Council’s enhanced attention to its has been made to bring forward the consul­ session of the Special Committee on practices and working methods on peace­ tations with TCC/PCCs to at least a week Peacekeeping (which begins on 22 Febru­ keeping has resulted in a number of before peacekeeping mandate renewals. In ary) seems to be generating some concern practical developments in 2009 including a the past, consultations tended to take place among the wider UN membership and much more consistent focus on bench­ just before the Council’s adoption of a reso­ interest in participation in the debate may marks and requests for updating concepts lution. There has also been more regular be strong. of operation and rules of engagement in rel­ dialogue with the Secretariat and more reg­ evant peacekeeping missions mandates as ular political-military meetings. This debate may pick up strands of the Coun­ they came up for renewal. For example: cil’s debate on “no exit without strategy” The Group’s chair produced a summary on n The 15 September 2009 resolution on which took place on 15 November 2000. The 17 December 2009 of discussions of its four Liberia called for the Secretary-General Secretary-General responded in April 2001 meetings in November and December. Key to continue to monitor progress on core with analysis and recommendations, but issues identified were: benchmarks (first presented in the Council consideration seemed to lapse. n improvements in the cooperation Secretary-General’s August 2007 report) me­chanism, such as more meaningful Key Recent Developments as well as developing and submitting to consultations between stakeholders; 1. UK- France Initiative the Council a “strategic integrated plan to n improvement in implementing mandates In 2009 the Council embarked on a review, coordinate activity towards the achieve­ in cooperation with TCC/PCCs; and initiated by France and the UK, of some ment of benchmarks”. It also recalled the n support to TCC/PCCs. peacekeeping issues. Three debates were 5 August presidential statement on held: the first on 23 January 2009 preceded peacekeeping and requested the There seems to be agreement on the need by a seminar, the second on 29 June Secretary-General, to provide informa­ to make best use of existing consultation focused on the relationship with troop and tion on progress on achieving a mechanisms and to implement measures police contributing countries (TCC/PCCs), coordinated UN approach in Liberia, par­ set out in resolution 1353 of 2001 (which and the third on 5 August assessed prog­ ticularly on critical gaps in peacebuilding contains a statement of cooperation and ress and adopted a presidential statement objectives in his next report. specified categories of consultation with (S/PRST/2009/4) which documented some n The Democratic Republic of Congo TCCs). But there was also a strong interest improvements in peacekeeping practices (DRC) resolution adopted on 23 by some in developing or adopting mecha­ in the first half of 2009. The statement identi­ December 2009 requested the Secretary- nisms such as core groups or groups of fied areas where further consideration was General to conduct a strategic review of friends to address the problems. Partici­ needed: the situation and the progress made by pants also identified better coordination n creating clear, credible and achievable the UN Mission in the DRC (MONUC) with the Special Committee on Peacekeep­ mandates matched by appropriate toward achieving its mandate, and to fur­ ing Operations, or C34, as a key issue. resources; ther develop existing benchmarks. It also In 2010 the Working Group plans to look at n improving information sharing particu­ asked for the modalities of a reconfig­ closing gaps in capabilities, resources and larly on military operational challenges; ured mission and the critical tasks that training and key lessons learned from past n increasing interaction with the Secretariat need to be completed before thinking and current missions about the successful in the early phase of mandate drafting about a drawdown. implementation of transitional strategies. and throughout mission deployment; n The AU-UN Hybrid Operation in Darfur n engaging with TCC/PCCs earlier and (UNAMID) resolution adopted on 30 July 3. New Horizon and Comprehensive Field more meaningfully before renewal or 2009 asked for the Secretary-General to Support Reports modification of mandates; submit a strategic workplan with bench­ Since the July 2009 publication of the non- n improving Council awareness of the marks to measure and track progress paper, A New Partnership Agenda: Charting implications of decisions on resource made by UNAMID in implementing its a New Horizon for UN Peacekeeping, the and field support; mandate and to include an assessment Department of Peacekeeping Operations n enhancing Council awareness of the stra­ of progress made against these bench­ (DPKO) and Department of Field Support tegic challenges across peacekeeping marks in his next report. (DFS) have held consultations with key operations; 2. Security Council Working Group on stakeholders, including the Non-Aligned n how to implement a robust approach to Peacekeeping Movement, the EU and TCC/PCCs. There peacekeeping and implementing protec­ Another piece of evidence of practical have been seven informal briefings to mem­ tion of civilians’ mandates; and change in working methods on peacekeep­ bers of the C34 since November 2009. Le n coherence and integration of peacemak­ ing emerged not only from the UK-France Roy and Malcorra also made formal pre­ ing, peacekeeping, peacebuilding and review process but also from the Working sentations to the Fourth Committee of the development (which was first mentioned in Group, under Japan’s leadership. A major General Assembly in October 2009. a 22 July presidential statement following a improvement has been to address the issue debate on post-conflict peacebuilding). Four priority areas are being stressed by of meetings with TCC/PCCs. A real effort the Secretariat:

10 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org n policy development; policy planning in the Secretariat and inevi­ n capability development; tably hampered implementation of n field support strategy; and protection mandates by the missions. SECURITY COUNCIL REPORT n planning and oversight. Monthly 6. Initiatives by Other Member States Activities underway include developing Continuing its series of peacekeeping panel FEB 2010 FORECAST policy guidelines on robust peacekeeping, discussions, Canada held a second discus­ protection of civilians, linkages between sion on 11 September 2009 which focused A related issue is how to better integrate peacekeeping and peacebuilding, and on the political dimensions of peacekeep­ information available to TCC/PCCs, military developing a new field support strategy to ing, and a third on mandates and modalities experts and key stakeholders in Council expedite and improve support for field mis­ on 4 December. A fourth on field support decisions. sions while achieving efficiencies and strategy is scheduled for 12 February. economies of scale. A related issue is the growing recognition of Australia and Uruguay organised a work­ the value of improved interaction between 4. Special Committee on Peacekeeping shop on the protection of civilians in UN the Working Group on Peacekeeping and Operations (C34) peacekeeping operations on 19 January the C34 and how to achieve that in an effi­ The Secretary-General’s 22 December where member states discussed the OCHA- cient and productive way. 2009 report for the C34 will be discussed at DPKO study and looked at next steps for the session beginning on 22 February. The the issue of protection of civilians. This Another issue, given how close the Council report addresses the four priority issues for workshop was intended to generate discus­ peacekeeping debate is being held to the DPKO and DFS identified above. sion and ideas on an issue of interest to the start of the C34 session, is framing the participants of the 2010 C34 session. Council debate with sensitivity given past 5. Protection of Civilians and Peacekeeping reactions from the C34 to perceived Coun­ Key Issues Mandates cil encroachment. On 11 November 2009 the Council held an Key issues which France hopes to address open debate chaired by Austrian Foreign in the debate are: Also an issue is ensuring that experts on Minister Michael Spindelegger and adopted n overcoming difficulties in setting up exit Council delegations have knowledge of the resolution 1894, which recognised the need strategies from the outset of a mission, way mandates are being implemented in for protection early in the formulation of including conceptualising the end state the field. A related question is how few, if peacekeeping mandates and requested which is desired; any, of the experts are ever able to visit key the Secretary-General to develop an opera­ n finding ways to put in motion a transition peacekeeping missions. tional concept for the protection of civilians strategy during the life of a mission; A large issue which the Council only in peacekeeping missions, as well as guid­ n Council practices in drafting mandates; touched on in its August presidential state­ ance to missions for reporting on protection. and ment is the overlapping role of It also reaffirmed the importance of clear, n Council oversight function in peace­ peacebuilding and peacekeeping. Clearly credible and achievable mandates and keeping. this is a critical element for transition and stressed the importance of including prog­ A second issue is securing consensus on a exit of formed military contingents but it ress on protection of civilians when substantive outcome addressing these may require more intensive preparatory developing benchmarks measuring the issues. Positions on exit strategies tend to discussion before members can firm up progress of implementation of peacekeep­ be highly politicised and some other per­ their positions. ing mandates. The cross-cutting impact of manent members of the Council are this resolution was reflected in resolution Similarly, providing clearer priorities and traditionally opposed to establishing 1906 adopted on 23 December 2009, which greater clarity to tasks in mandates, particu­ generic fixed rules on such matters, prefer­ gave protection of civilians priority in larly regarding protection of civilians and ring flexibility to deal with crises individually. MONUC’s new mandate. the associated robust peacekeeping, is These issues could make it difficult to agree critical to getting to desired end states for In November 2009 the Office for the Coordi­ on a standard approach to be used in draft­ missions. But again much discussion, nation of Humanitarian Affairs (OCHA) and ing future resolutions. including in the C34, seems necessary DPKO released an independent study on Another key issue is how to build effectively before firm positions can be developed. protection of civilians in peacekeeping on the improved partnerships that are operations. The study concluded that pre- Options beginning to develop between key players mandate planning and assessments do not One option is a detailed presidential state­ in UN peacekeeping. It appears that fre­ address well enough the nature of threats to ment which seeks to resolve the key issues quency of communication and coordination civilians. It also found that the Secretariat on transition, exit strategies and peace­ between the Secretariat, TCC/PCCs and and peacekeeping missions often lack clar­ keeping mandates. the Council has improved over the last year. ity from the Council as to its intent regarding But improving the quality of the substantive Another option is a more general and incre­ mandates for the protection of civilians. It interaction still seems to be a challenge. mental presidential statement which would said this ambiguity has created gaps in

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org 11 update and enlarge some of the elements While there is some agreement that the Secretary-General’s report on Liberia in the August presidential statement. overlap between peacebuilding and including a plan to achieve bench­ peacekeeping is important in terms of Other options available to the Council marks. transition most members are not sure include: • S/2001/394 (20 April 2001) was the about the modalities. Some, like Mexico, n requesting DPKO to provide a series of Secretary-General’s paper following Turkey and Brazil, would like to see a natu­ informal monthly briefings to the Council the “no exit without strategy” debate. ral and effective intersection between as it develops its strategy on critical early • S/2000/1072 (6 November 2000) was peacekeeping and peacebuilding at some peacebuilding tasks undertaken by the letter from the Dutch ambassador point in the life of a mission. Others ques­ peacekeeping; with a paper for the debate “no exit tion whether the Council is ready to n requesting the Working Group to give pri­ without strategy”. grapple with such issues. ority to its proposed study of past Useful Additional Source successful transition strategies in peace­ UN Documents n Protection of Civilians in the Context of UN keeping; and Selected Security Council Resolutions Peacekeeping Operations: Successes, n approving the guidelines for scheduling Setbacks and Remaining Challenges, meetings with PCC/TCCs provided in • S/RES/1906 (23 December 2009) Victoria Holt and Glyn Taylor, UN, 2009 the annex of the Working Group’s report renewed MONUC’s mandate. and requesting the Secretariat to ensure • S/RES/1894 (11 November 2009) that there is consistency reflected in was on protection of civilians. future scheduling. • S/RES/1885 (15 September 2009) Iran renewed UNMIL’s mandate. Expected Council Action Council and Wider Dynamics • S/RES/1881 (30 July 2009) renewed It is unclear whether the Council will con­ Although most members appear comfort­ UNAMID’s mandate. sider the Iran nuclear issue during February. able with the idea of a debate on transition • S/RES/1353 (13 June 2001) contained China, France, Germany, Russia, the UK strategies, there is less agreement over the a statement of cooperation and cate­ and the US continue to discuss further appropriateness of discussing exit strategies. gories of consultation with TCCs. There is concern that a debate on exit strate­ steps in response to Iran’s non-compliance Selected Presidential Statements gies in the current climate will be viewed in with IAEA and Council decisions and appar­ • S/PRST/2009/24 (5 August 2009) set terms of wanting to shut down a mission ent rejection of the compromise October out future areas for improvement. because of financial reasons. Some mem­ offer to send its low-enriched uranium to • S/PRST/2009/23 (22 July 2009) was bers would prefer to frame the discussion as Russia and France for further enrichment, in on post-conflict peacebuilding. connected to objectives fulfilled and linked to return for fuel rods to be used in the Tehran the benchmarks set. Most agree that decid­ Selected Meeting Records Research Reactor for medical purposes. ing whether benchmarks have been met is • S/PV.6216 and resumption 1 (11 France, the UK and the US seem to be not easy and is often politically contentious. November 2009) was the protection actively pushing for further sanctions. of civilians debate. Since the review began, France, the UK and Key Recent Developments • S/PV.6178 and resumption 1 (5 August the US have actively pushed for peace­ Tensions over Iran’s nuclear programme 2009) assessed the peacekeeping keeping mandates to have benchmarks have escalated in recent months. On 27 review. inserted and monitored. There are some November 2009 the Board of Governors of • S/PV.6153 and resumption 1 (29 June differences among them, however, over the the International Atomic Energy Agency 2009) was the debate on the relation­ question of when transition and exit strate­ (IAEA) adopted a resolution expressing ship with TCC/PCCs. gies need to be included in a resolution. concern at Iran’s continued defiance of • S/PV.6075 (23 January 2009) was on IAEA and Council demands and at its failure Elected members like Brazil and Nigeria are UN peacekeeping missions and was to notify the IAEA of the planned new enrich­ active contributors to UN peacekeeping part of the UK-France initiative. ment facility at Qom. The resolution urged • S/PV.4223 and resumption 1 (15 and are expected to draw on their practical Iran to comply with all its international legal November 2000) was the debate on experience during the discussions. Brazil obligations (including by suspending “no exit without strategy”. believes that sustainable peace should be immediately construction at Qom), and to the end goal of a peacekeeping mission Other engage with the IAEA on all outstanding and that exit strategy language is unhelpful • A/64/573 (22 December 2009) issues (including by clarifying all aspects of to a more holistic approach. Nigeria prefers was the Secretary-General’s report for the Qom facility). It also called on Iran to to talk about achieving objectives and the C34. comply with its safeguards obligations and meeting benchmarks rather than talking • S/2009/659 (17 December 2009) was implement and ratify the additional protocol about an exit. Japan, reflecting its role as the Working Group on Peacekeep­ to the Non-Proliferation Treaty. Twenty-five chair of the Working Group, seems to prefer ing’s report. of the 35 Board members, including China to highlight some of the key issues raised in • S/2007/479 (8 August 2007) was the the Working Group.

12 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org and Russia, voted in favour of the resolu­ Human Rights-Related tion, the first adopted on Iran since 2006. Developments SECURITY COUNCIL REPORT On 29 November 2009 Iran said it had The UN High Commissioner for Human Monthly approved construction of ten additional ura­ Rights Navi Pillay issued a statement on nium enrichment plants. And President FEB 2010 30 December 2009 expressing shock at FORECAST Mahmoud Ahmadinejad said on 2 Decem­ violence that had led to deaths and inju­ ber 2009 that Iran would enrich uranium to ries in Iran, and called on the Iranian targeting the country’s petroleum indus­ a higher level itself, apparently rejecting the government to curb excesses by secu­ try or financial sector; October IAEA proposal and taking off the rity forces. She also expressed concern n establishing a sanctions monitoring table earlier conditional counterproposals. about continuing reports of arrests of group in response to the recent incidents On 10 December 2009 the chairman of the political activists, journalists, human indicating violations of existing sanc­ Iran Sanctions Committee, Japanese rights defenders and other civil society tions; and Ambassador Yukio Takasu briefed the actors. Pillay said, “Those who have n pressing the P5 for a more inclusive pro­ Council. (The Committee is required to been arrested, for whatever reason, cess which could include an orientation report to the Council every ninety days.) must be accorded due process that is discussion in informal consultations. fully in line with international human Takasu confirmed that the Committee had Council and Wider Dynamics rights standards and norms, including received reports from three states of viola­ Within the P5, divisions remain on the best the International Covenant on Civil and tions by Iran of the provisions of resolution approach on Iran. France, the UK and the Political Rights.” The Universal Periodic 1747 imposing an export ban on arms and US now support prompt action on further Review of Iran’s human rights record by related materials. The violations involved sanctions. the vessels MV Hansa India and Francop, the Human Rights Council is scheduled both chartered by the Islamic Republic of for 15 February. China seems to maintain that further dia­ Iran Shipping Lines. (According to media logue might be productive and that there is Key Issues reports the German owned MV Hansa India still space for further negotiations with Iran. A key issue for the Council as a whole is its was intercepted in October 2009, appar­ It is therefore not the right moment for continued position on the sidelines of the ently on its way to Syria. And in a 5 sanctions. However, China agreed to the P5+1 discussion, waiting either for the dip­ November letter, Israel informed the Com­ joint statement from the January meeting lomatic track to yield results or to start mittee that it had discovered hundreds of which began a process to discuss addi­ discussions on additional measures tonnes of arms aboard the Francop, also on tional measures. against Iran. its way to Syria.) Russia does not seem to rule out additional A further issue, if the P5 agree on submitting On 2 January, Iranian Foreign Minister sanctions. It seems to have been particu­ a new draft sanctions resolution, is what Manouchehr Mottaki set a deadline of one larly concerned at the revelation of the Qom kinds of additional measures should be month for Iran’s international counterparts enrichment facility, as well as Iran’s rejec­ imposed. to accept its position on the October 2009 tion of the IAEA October 2009 proposal offer or it would start further enrichment A related issue is whether the Council should which it saw as a fair compromise. In a itself. On 20 January there were reports that address reported violations of the weapons statement on 22 January, Russian Foreign Iran had sent a formal response to the IAEA, export ban on Iran as a distinct issue. Minister Sergei Lavrov said Russia wanted essentially confirming what it had already to see “constructive actions” from Iran. Options said publicly. As has been the case in the past, it seems Some elected Council members seem On 16 January the P5 plus Germany met in that the Council as a whole will have few sceptical about the utility of further sanc­ New York to discuss next steps. (Their previ­ options on Iran other than those that may tions at this stage. There are also concerns ous meeting was held on 20 November.) be agreed by the P5. At this time options about the impact of increased international The Chinese political director did not may include: pressure on the fragile internal situation attend, but China was represented by a dip­ n continuing to wait on the sidelines in the in Iran. lomat from its UN mission. The chair of the hope that progress on the Iran nuclear Brazil and Turkey both abstained when the meeting, EU’s political director Robert Coo­ issue may still occur in the context of the 27 November 2009 resolution on Iran was per, said in an agreed statement that the six P5+1 negotiations; adopted in the IAEA and believe there is still countries had concluded that Iran’s n taking action on any P5 draft resolution room for further negotiations on the basis of response was “inadequate”. While they imposing new sanctions on Iran which the October offer. They have both engaged remained committed to a dual-track could include additional measures bilaterally with Iran. Lebanon is also con­ approach involving a negotiated solution, against the Iranian Revolutionary Guard cerned about premature Council action. “consideration of appropriate further mea­ Corps, a full arms embargo, or measures sures” had begun.

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org 13 Many elected members also seem con­ Other Relevant Facts On 16 November 2009 the Secretary- cerned about the failure of the P5 to consult General’s report highlighted three critical Chair of the 1737 Sanctions Committee with them collectively as Council members tracks towards a political settlement: in the process. Yukio Takasu (Japan) n continuing dialogue between the govern­ UN Documents ment and armed groups to agree on Selected Council Resolutions Sudan/Darfur sustainable security arrangements; n addressing the concerns and priorities of • S/RES/1835 (27 September 2008) Expected Council Action representatives of Darfurian civil societies reaffirmed the Council’s commitment In February, the Council is expected to for inclusion in a political settlement; and to an early negotiated solution to the review a report from the Secretary-General n supporting Chad-Sudan reconciliation Iranian nuclear issue and called upon on Darfur. Discussions will likely focus on efforts. Iran to comply with its obligations the strategic elements laid out in July 2009 under previous Council resolutions in resolution 1881 and in particular on In a letter dated 14 December 2009, the and IAEA requirements. efforts to accelerate the Darfur peace pro­ Secretary-General advised the Council that • S/RES/1803 (3 March 2008) reiterated cess, taking into account the briefing to the four experts had been appointed to the existing measures against Iran and Council on 21 December 2009 on the rec­ Sudan sanctions Panel of Experts until 15 imposed additional ones. ommendations of the AU High-Level Panel October 2010. On 12 October 2009, the • S/RES/1747 (24 March 2007) estab­ on Darfur. experts briefed the Council on their plans in lished a ban on Iran’s arms exports the coming year. and added names to the list of people The mandate of UNAMID expires on 31 July. Clashes between the Sudanese army and and entities subject to assets freeze. Key Recent Developments Sudan Liberation Army/Abdul Wahid Fac­ • S/RES/1737 (23 December 2006) On 25 January, Ibrahim Gambari, the new tion (SLA/AW) continued in January in banned trade with Iran of items related AU-UN Joint Special Representative arrived North Darfur, with some 18 civilians killed. to nuclear enrichment, reprocessing, in El Fasher, the headquarters of the AU-UN On 14 January UNAMID appealed to the heavy water activities and nuclear Hybrid Operation in Darfur (UNAMID). Gam­ parties to allow them to conduct an investi­ weapon delivery systems, imposed an bari stated that top priority for UNAMID is gation and assess the needs of the asset freeze on a list of persons and consolidating the peace process in Darfur. population affected by recent clashes. entities involved in proliferation-sensi­ On 29 December 2009 UNAMID and the tive activities and established a On 30 November 2009 the Assistant Secre­ Sudanese government signed a framework sanctions committee. tary-General for Peacekeeping Operations, to increase the safety of UNAMID personnel • S/RES/1696 (31 July 2006) demanded Edmund Mulet, briefed the Council on the and assets following recent attacks. Sepa­ that Iran suspend all enrichment- unstable security situation and the obsta­ rate attacks by unidentified militias on 4 and related and reprocessing activities, cles faced by UNAMID. The Joint AU-UN 5 December led to the killing of five Rwan­ including research and development, Chief Mediator for Darfur, Djibril Bassolé, dan peacekeepers. to be verified by the IAEA. briefed the Council that lack of confidence Selected Letters On 7 December 2009, the Council urged between the parties impacted progress in • S/2009/633 (7 December 2009) was the Sudan government to ensure that all the peace talks. Mediation efforts had been from the Secretary-General to the perpetrators are brought to justice and focused on building consensus among civil Council conveying the resolution on called on all parties to cooperate fully with society groups, organising negotiations Iran adopted by the IAEA Board of UNAMID. The Secretary-General’s 16 between the movements and the govern­ Governors on 27 November 2009. November 2009 report had warned that ment and assisting Chad and Sudan to • S/2009/574 (5 November 2009) was until all parties provide unconditional secu­ improve relations. rity, challenges will continue for UNAMID. from Israel to the Secretary-General In July 2009, in resolution 1881, the Council and the Council relating to violations On 21 December 2009, former South Afri­ asked the Secretary-General to submit a of resolution 1747. can President Thabo Mbeki and AU strategic workplan containing benchmarks Other Commission Chairperson Jean Ping briefed for the implementation of UNAMID’s man­ • S/PV.6235 (10 December 2009) was the Council on the recommendations of the date and report on progress against these the latest briefing by the chair of the AU High-Level Panel on Darfur. Mbeki benchmarks, including the political pro­ 1737 Committee. stated that peace, reconciliation and justice cess, on the humanitarian and security • GOV/2009/74 (16 November 2009) in Darfur are linked to any comprehensive situation and on compliance by all parties was the latest IAEA report. peace agreement. with their international obligations.

14 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org Key Issues group” to provide direct member state The first issue is whether there is anything support for the mediation. the Council can do to assist the peace pro­ SECURITY COUNCIL REPORT Council Dynamics cess. A related issue is the implementation of Monthly As elections approach, many Council mem­ the AU High-level Implementation Panel rec­ bers are increasingly anxious about the FEB 2010 ommendations, including on power-sharing, FORECAST north-south Sudan issue and the likely wealth-sharing, security and compensation. impact for Darfur. Another related issue is whether the efforts of • S/PV.6227 (30 November 2009) was mediators alone are sufficient to bring all par­ Council members seem agreed on the the briefing by Assistant Secretary- ties together for a settlement, and whether peace process as the key to achieving a General for Peacekeeping Operations the Council can be more effective in support­ sustainable solution for Darfur. However, Edmond Mulet to the Council regard­ ing the mediation efforts. most members also emphasise that the ing the Secretary-General’s report in security and governance issues also need November on UNAMID. A second key issue, also a strategic priority to be addressed in this process. • S/PV.6135 (5 June 2009) was the brief­ in resolution 1881, is reducing the continu­ ing of ICC Prosecutor Luis ing violence in Darfur which limits the Most members are encouraged by Mbeki’s Moreno-Ocampo to the Council. freedom of movement of UNAMID and the briefing on the report of the AU High-Level • S/PV.6131 (28 May 2009) was the access of humanitarian personnel as they Implementation Panel. They seem comfort­ briefing on the Council Mission to respond to the needs of populations able with many of the recommendations Africa from 14 to 21 May 2009. impacted by the evolving security environ­ which address peace, justice, accountabil­ ment. A related question is whether the 29 ity and reconciliation in Darfur. Selected Letters December 2009 framework agreement is • S/2009/639 (14 December 2009) was The UK is the lead country on Darfur in the having any positive impact. from the Secretary-General informing Council. the Council about the appointment of A third key issue highlighted in resolution people to serve on the Panel of 1881 is ensuring the rule of law, strength­ UN Documents Experts. ened governance and human rights Selected Security Council Resolutions • S/2009/599 (17 November 2009) protection. A question for the Council is • S/RES/1881 (6 August 2009) renewed transmitted the report of the AU High- what it should do to respond to the appar­ UNAMID. Level Panel on Darfur. ent lack of progress in these areas. • S/RES/1593 (31 March 2005) referred • S/2009/369 (16 July 2009) was from Another further key issue is political settle­ the situation in Darfur to the ICC. Sudan informing the Council of Chad­ ment in Darfur, which would allow the • S/RES/1591 (29 March 2005) and S/ ian bombing incidents in Darfur. people of Darfur to participate in the RES/1556 (30 July 2004) imposed • S/2009/255 (16 May 2009) was from approaching elections. sanctions. Sudan detailing complaints against Selected Presidential Statement Chad. Options • S/PRST/2009/13 (8 May 2009) called • S/2009/249 (12 May 2009) contained Options include: on Chad and Sudan to respect and the 3 May 2009 Doha agreement n renewing the Council’s demands for the fully implement their mutual commit­ between Chad and Sudan. government and rebel movements to ments. • S/2009/144 (6 March 2009) was the fully commit to the peace process; AU Peace and Security Council com­ Latest Secretary-General’s Reports n emphasising credible participation by muniqué on the ICC arrest warrant for Darfurians in the elections as a way to • S/2009/592 (16 November 2009) was President Bashir. build confidence for a political settle­ on UNAMID. • S/2009/100 (18 February 2009) trans­ ment; • S/2009/391 (28 July 2009) was on mitted the text of the Agreement of n noting the role of the report of the AU possible UN support for the upcoming Goodwill and Confidence-Building for High-Level Implementation Panel and its elections in Sudan. the Settlement of the Problem in Darfur. complimentarity with Council objectives Selected Security Council Meeting Other for Darfur and the importance of forging a Records closer partnership between the UN and • SC/9805 (7 December 2009) was the • S/PV.6251 (21 December 2009) was AU in strengthening and supporting the press statement condemning attacks the briefing by former South African mediation; and on UNAMID peacekeepers. President Thabo Mbeki and AU Com­ • S/2009/562 (27 October 2009) was a n deciding to invite members of the Secu­ mission Chair Jean Ping on the rity Council and the AU Peace and report of the Sanctions Panel of Experts. recommendations of the AU High- Security Council to form a joint “contact • AU/Dec.245(XIII) (3 July 2009) was the Level Panel on Darfur.

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org 15 On 5 November 2009 the General Assem­ decision of the AU Assembly about 2009: 9,569 military personnel bly endorsed the Goldstone Report in non-cooperation with the ICC. • Police Strength as of 31 December resolution 64/10 and requested the • A/HRC/11/L.17 (16 June 2009) was a 2009: 693 police personnel Secretary-General to report on implementa­ resolution from the Human Rights • Cost: 1 July 2009 - 30 June 2010: tion of the resolution “with a view to Council establishing the mandate for $958.35 million the Independent Expert on human considering further action…including [by] UNMIS: Duration rights in the Sudan. the Security Council.” 24 March 2005 to present; mandate • A/HRC/11/14 (June 2009) was the expires 30 April 2010 In November 2009, the Secretary-General report of the Special Rapporteur for transmitted the Goldstone Report to the Sanctions Committee Chairman Sudan to the Human Rights Council. Security Council. Both parties were given a Thomas Mayr-Harting (Austria) late January 2010 deadline to advise the Other Relevant Facts Secretary-General of progress with their UNAMID: Joint AU-UN Special investigations. Representative for Darfur Israel/Palestine In December 2009, an Israeli delegation Ibrahim Gambari (Nigeria) Expected Council Action visited New York to brief the Secretariat. Joint AU-UN Chief Mediator A briefing on the Middle East is expected. The delegation included Brigidier General Djibril Yipènè Bassolé (Burkina Faso) No outcome is expected. However, Avichai Mendelblit, the Chief Military Advo­ UNAMID: Force Commander members will be mindful that the Secretary- cate General for the Israel Defense Forces. The delegation reportedly advised that Lieutenant General Patrick Nyamvumba General is due to submit a report to the broad investigations were underway and (Rwanda) General Assembly on Israeli and Palestin­ that information was being drawn from a UNAMID: Size, Composition and Cost ian investigations into violations of international humanitarian and human rights wide range of sources, including from • Maximum authorised strength: up to law in Gaza, following the Goldstone Report. reports by human rights organisations, 19,555 military personnel, 3,772 police including some cited in the Goldstone and 19 formed police units (total Key Recent Developments Report. It seems no details regarding police 6,432) In January 2009 the Human Rights Council which incidents were being investigated • Main troop contributors: Nigeria, (HRC) approved an investigation into the were shared at that time (though media Rwanda, Egypt and Ethiopia Gaza conflict between 27 December 2008 reports indicate it might include an Israeli • Military Strength as of 31 December and 18 January 2009. In April 2009 Richard rebuttal regarding the destruction of the 2009: 15,374 military personnel Goldstone was appointed as the head of only flour mill in Gaza and a wastewater • Police Strength as of 31 December the investigative team, accepting the role plant). The delegation also reportedly 2009: 4,575 police personnel only after revision of the original mandate underscored that the investigations were • Cost: 1 July 2009 - 30 June 2010: was amended to include all violations. an Israeli initiative and were not in $1,598.94 million The report, released on 15 September response to the Goldstone Report’s rec­ UNAMID: Duration 2009, made recommendations to the UN, ommendations. 31 July 2007 to present; mandate expires Israel, Palestinians and the ICC. It recom­ On 25 January Palestinian President Mah­ 31 July 2010 mended that the Security Council monitor moud Abbas announced a committee UNMIS: Special Representative of the investigations by both Israel and Gaza had been formed to investigate violations. Secretary-General and Head of Mission authorities and consider referring the situa­ The committee will be led by the Chief Ashraf Jehangir Qazi (Pakistan) tion to the ICC if there was a lack of credible Justice of the Palestinian High Court, UNMIS: Force Commander investigations. (For further details please located in the West Bank. Reportedly, the see our Update Report of 12 October 2009.) Major-General Paban Jung Thapa committee will also include a judge from (Nepal) On 14 October 2009, during the Security Gaza. It is possible this initiative is related to the Arab League proposal to appoint an UNMIS: Size, Composition and Cost Council’s open debate on the Middle East, international committee to assist investi­ • Maximum authorised strength: most Council members said it would be gations. It is unclear if Hamas has been up to 10,000 military and 715 premature to consider the report while it approached with the Arab League pro­ police personnel was in the hands of the HRC. posal or whether it will cooperate with the • Main troop contributors: On 16 October 2009 the HRC endorsed the committee seated in the West Bank. (In India, Pakistan and Bangladesh Goldstone Report’s recommendations and October 2009 Hamas had indicated it • Military Strength as of 31 December is expected to take it up again at its next would investigate violations. On 27 session in March.

16 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org January, Hamas announced it had estab­ Human Rights-Related lished its own committee and would Developments submit its findings to the Gaza office of the SECURITY COUNCIL REPORT High Commissioner for Human Rights.) On 23 December 2009 the Human Monthly Rights Council’s Special Rapporteur for On 20 January the US Special Envoy for FEB 2010 the Occupied Palestinian Territories, FORECAST Middle East Peace, George Mitchell, trav­ Richard Falk, drew attention to the situa­ elled to the region to meet Israelis and The issue of Israeli soldier Gilad Shalit, held tion in Gaza. Speaking one year after the Palestinians in a continued effort to get the start of the Israeli military campaign captive in Gaza since 2006, is still unre­ parties back to the negotiating table. Peace against Gaza, Falk said that “two urgent solved. talks were suspended in December 2008 types of action should be encouraged and the issue of settlements has been a key There has been no progress with Hamas- on this dismal anniversary”. Western Fatah reconciliation, which will be crucial if factor in the stalemate. Prior to the 22 Sep­ nations should insist that Israel immedi­ tember 2009 trilateral meeting between US elections are to be held in 2010. ately end its blockade of Gaza, backed President Barack Obama, Israeli Prime Min­ up by a credible threat of economic Options ister Benjamin Netanyahu and Abbas, held sanctions. In addition, Falk asserted that The option of taking up the Goldstone in New York on the sidelines of the General the Goldstone Report’s recommenda­ Report in February seems remote, if only Assembly, Abbas had reiterated that a com­ tions, having confirmed the commission because of uncertainty about the Secretary- plete Israeli settlement freeze would be of war crimes by Israel and Hamas, General’s report. essential prior to his participation in any should be fully and swiftly implemented. renewed talks. If Mitchell were to secure some break­ Key Issues through towards resuming talks an On 25 November 2009 Israel announced a A key issue for the Council is how to handle important option would be a Council press ten-month slow-down in settlement activity. the Goldstone Report. Discussion of the release or presidential statement support­ However, it excluded East Jerusalem and report in the Council could hamper Israel’s ing the process. also permitted natural growth in existing current willingness to resume talks. On the settlements. If the situation continues to deteriorate, with other hand, it could be an important factor no progress made on renewing talks, On 21 January the Secretary-General in persuading Israel that airing such issues Council concern could be signaled by: stressed the importance of a settlement may be strategically useful, especially if it n adopting a presidential statement freeze. becomes part of a carrot to get Abbas to emphasising the need to implement res­ reenter negotiations. On 22 January Israel reimbursed for dam­ olutions 1850 and 1860 (as was done in a age to UN facilities during the conflict, A related issue is the Secretary-General’s May 2009 presidential statement) and resolving the financial aspects arising from expected report and whether it will be touching on the importance for both sides of accountability; and a UN Board of Inquiry investigation. (How­ delayed. ever, Israel did not accept legal n a debate on the desirable parameters of Other issues for the Council include imple­ peace negotiations with a view to a final responsibility for the incidents.) The Board mentation of resolutions 1850 and 1860. of Inquiry had recommended that the UN status agreement. 1850 declared Council support for the seek formal acknowledgement by Israel, Annapolis process and called on both par­ Council and Wider Dynamics accountability and reparations, and obtain ties to fulfill their obligations under the Road Most Council members seem to be in a guarantees from Israel against the repeti­ Map (which includes a settlement freeze). “wait and see” mode. tion of such incidents. 1860 called for access to deliver humanitar­ Some members think the Secretary- On 27 January the Council was briefed by ian aid in Gaza, encouraged intra-Palestinian General’s report should include an initial Assistant Secretary-General for Political reconciliation and called for renewed efforts assessment of whether the actions taken by Affairs Oscar Fernández-Taranco followed to achieve a comprehensive peace as the parties meet international standards. by an open debate on the Middle East. (The envisaged in resolution 1850. Others prefer a simply descriptive report. format of the January meeting became con­ Another issue is the Secretary-General’s troversial because of Libya’s last minute Some members believe the HRC is the Board of Inquiry report and the recent decision to make a presentation to the proper body to take up the Goldstone agreement between Israel and the UN. A Council in December 2009, contrary to the Report since it mandated the fact-finding summary of the report was submitted to the previous understanding that any discus­ mission. They prefer the nexus of the Gold­ Council in May 2009. sion would be in informal consultations.) stone Report to shift back to Geneva. Underlying Problems Other members want to keep open the pos­ In Gaza, Israel’s blockade and the resulting sibility of considering the Goldstone Report humanitarian situation continue. No signifi­ but feel it is premature for the Security cant reconstruction has taken place.

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org 17 Council to consider it at this stage (i.e., most recent open debate on the Mid­ Independent High Electoral Commission before the conclusion of investigations) and dle East. (IHEC) which banned many Iraqi Sunni see value in delay, pending a resumption of • S/PV.6248 (17 December 2009) was a leaders from running in the upcoming peace talks. briefing by UN Special Coordinator for national elections on 7 March. On 21 Janu­ ary, the Iraqi Presidency Council requested Lebanon, which joined the Council in Janu­ the Middle East Peace Process Robert a court ruling on the legality of the decision. ary, is likely to be open to the views of the Serry. Arab Group regarding follow-up to the • S/PV.6201 and resumption 1 (14 Octo­ On 19 January Maliki said that Sunni Mus­ Goldstone Report. It seems the Arab Group, ber 2009) was an open debate on the lims were not being targeted. (On 14 following the Palestinian lead, currently pre­ Middle East. January the IHEC had upheld a decision to fers to wait for the outcome of the General Assembly prohibit more than 500 individuals from run­ Secretary-General’s report. • A/RES/64/10 (5 November 2009) ning in national elections on 7 March endorsed the Goldstone Report and because of their past links to the Ba’ath UN Documents requested a report from the Secretary- party of Saddam Hussein.) The IHEC sub­ Security Council Resolutions General with a view to consider further sequently stated that a roughly equal • S/RES/1860 (8 January 2009) called action, including by the Security number of Shi’a and Sunni were included in for an immediate, durable and fully Council. the ban. Critics contended that officials respected ceasefire leading to the full Human Rights Council appointed by Maliki largely control the IHEC and argued they were trying to bolster his withdrawal of Israeli forces from Gaza. • A/HRC/RES/S-12/1 (16 October 2009) position in the elections. • S/RES/1850 (16 December 2008) was the resolution endorsing the declared Council support for the Goldstone Report. On 18 January the Deputy Special Repre­ Annapolis process and its commit­ • A/HRC/12/L.12 (25 September 2009) sentative of the Secretary-General for Iraq, ment to the irreversibility of bilateral was the deferred draft resolution on Christine McNab, spoke in New York at a negotiations. the Goldstone Report. conference on the International Compact Security Council Presidential Statement • A/HRC/12/48 (15 September 2009) with Iraq. McNab stated that the Compact • S/PRST/2009/14 (11 May 2009) was the report of the UN Fact-Finding had accomplished much but Iraq was now reiterated the Council’s commitment Mission on the Gaza Conflict, or the ready to transition to a longer-term develop­ to the irreversibility of bilateral negotia­ Goldstone Report. ment agenda. The outgoing Special Advisor tions built upon previous agreements • A/HRC/S-9/L.1 (12 January 2009) was to the Secretary-General on the Compact, and encouraged steps toward intra- the resolution mandating the UN Fact- Ibrahim Gambari, also spoke. Palestinian reconciliation. Finding Mission on the Gaza Conflict. On 14 January an Iraqi court sentenced Security Council Letters Useful Additional Sources 11 Iraqis to death for the coordinated • S/2010/39 (22 January 2010) was the n Website of the UN Fact-Finding Mission bombings that took place in Iraq on 19 Secretary-General’s letter to Council on the Gaza Conflict http://www2. August 2009. noting the satisfactory resolution of ohchr.org/english/bodies/hrcouncil/ On 21 December 2009 the Council adopted the financial issues related to the specialsession/9/FactFindingMission.htm resolution 1905, extending the arrange­ incidents investigated by the Board n Palestine: Salvaging Fatah, International ments for the Development Fund for Iraq of Inquiry. Crisis Group, Middle East Paper Report (DFI) and the DFI auditing entity, the Inter­ • S/2009/586 (10 November 2009) was No. 91, 12 November 2009 national Advisory and Monitoring Board the Secretary-General’s transmission (IAMB), until 31 December 2010. The reso­ of the Goldstone Report to the Secu­ lution calls on Iraq to establish an action rity Council. Iraq plan and timeline for transitioning to a post- • S/2009/538 (7 October 2009) was DFI mechanism by 1 April, and thereafter Libya’s transmission of the Goldstone Expected Council Action for Iraq to report to the Council quarterly Report to the Security Council. The Council is scheduled to receive a brief­ through the Committee of Financial Experts • S/2009/510 (6 October 2009) was a ing on Iraq in February. Some discussion of on progress made. letter from Libya requesting a meeting the expected report from the Secretary- of the Security Council to discuss the General is likely. However no action is On 8 December 2009 coordinated vehicle Goldstone Report. expected. (UNAMI’s mandate expires on bombings in Baghdad killed 112 people. • S/2009/250 (4 May 2009) was the 6 August.) The Council issued a press statement con­ summary of the Secretary-General’s demning the bombings the same day. Key Recent Developments Board of Inquiry report regarding the Maliki said that the attack involved foreign On 23 January US Vice President Joe Biden Gaza conflict. support, and subsequently dismissed the met with Iraqi Prime Minister Nuri al-Maliki Security Council Meeting Records commander overseeing security in the cap­ and discussed a recent decision by Iraq’s • S/PV.6265 (27 January 2010) was the

18 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org ital. The attack followed two other Options large-scale coordinated bombings on 19 Options include: August and 25 October 2009. n members using the February meeting to SECURITY COUNCIL REPORT set out their concerns and objectives in Monthly On 8 December 2009 the Iraqi Presidency the lead up to national elections through Council set 7 March as the date for national FEB 2010 their individual statements; FORECAST elections after amendments to the election n the Council collectively recognising the law were finalised on 6 December 2009. need for safe, credible and successful • S/RES/1483 (22 May 2003) estab­ Human Rights-Related elections, and agreeing on the value of lished sanctions against the previous Developments emphasising this (and the significance Iraqi government, created the DFI, for the UN because of UNAMI’s role) provided immunity to Iraqi petroleum In its latest report published in Decem­ through a presidential or press state­ products and envisaged the termina­ ber 2009 (covering 1 January to 30 June ment; and tion of the oil-for-food programme. 2009), the UN Assistance Mission for n refraining from any formal discussion Iraq (UNAMI) placed special emphasis Selected Presidential Statement until after the national elections on 7 on the areas of rule of law, the reimple­ • S/PRST/2009/30 (16 November 2009) March. mentation of the death penalty, the reaffirmed support for UNAMI, wel­ situation in prisons and detention cen­ Council and Wider Dynamics comed the 8 November Iraqi tres, and allegations of torture. Concerns There is concern among many Council agreement on amendments to the included increased violence directed at members that the disqualification of so electoral law (the amendments were persons based on their perceived sexual many people from running in national elec­ later vetoed by Iraqi Vice President orientation and continued violence tions may precipitate a new political crisis. Tariq al-Hashemi), and encouraged against women, especially honour- (Members are very conscious of what hap­ the possibility of the Secretary- related homicides in the region of pened in the Afghanistan elections in 2009 General facilitating technical Kurdistan where many crimes went and the taint that affected not only the pro­ assistance to Iraq through the unpunished. During the reporting period cess of governance but also the UN itself.) Counter-Terrorism Committee 31 death row inmates were executed, Executive Directorate (CTED). Members are not pushing for resolving the including one woman. Noting that Selected Press Statements historical Council resolutions on Iraq at this UNAMI has continuously stated that stage. Many feel that advancement of this • SC/9810 (9 December 2009) con­ security in Iraq may not be sustainable issue is unlikely until after the elections. demned the 8 December coordinated unless significant steps are taken to bombings in Baghdad. uphold the rule of law and human rights, Some members now seem to believe that • SC/9775 (26 October 2009) con­ the report stressed that “significant prog­ progress on the contentious Iraq/Kuwait demned the 25 October coordinated ress remains to be achieved to fully issues may be necessary as an integral part bombings in Baghdad. restore the rule of law and to systemati­ of this process to facilitate the lifting of resolu­ • SC/9772 (22 October 2009) noted the cally address the issue of impunity”. tions and that increased efforts are therefore Council agreed to extend the financ­ necessary on Kuwait-related issues. Key Issues ing of the mandate of the High-Level Coordinator for Iraq/Kuwait missing The legitimacy of the national elections on 7 Selected UN Documents persons and property for eight March is an issue in light of the IHEC action. Selected Security Council Resolutions months. Members will want to see elections that are • SC/9733 (19 August 2009) condemned legitimate and credible so as to maintain • S/RES/1905 (21 December 2009) the 19 August coordinated bombings international acceptance and support. extended the arrangements for the DFI and the IAMB until 31 December in Baghdad. The issue of historical resolutions adopted 2010. Selected Secretary-General’s Reports during the regime of Saddam Hussein • S/RES/1883 (7 August 2009) extended • S/2009/585 (11 November 2009) was remains a problem but is unlikely to be the UNAMI mandate for another 12 the latest UNAMI report. addressed in February. months. • S/2009/539 (16 October 2009) was the Underlying Problems • S/RES/1859 (22 December 2008) latest report on Iraq/Kuwait missing requested the Secretary-General to An underlying problem is the still fragile persons and property. report on all Council resolutions con­ cohesion of the Iraqi state, despite some • S/2009/430 (24 August 2009) was the cerning Iraq since 1990; a letter from progress made in recent years. The percep­ latest DFI/IAMB report. Iraq requesting the lifting of Saddam- tion of some political actors that they are not • S/2009/385 (27 July 2009) was on the era resolutions is included as an equal partners in governance, and continu­ review of Iraq resolutions. annex to the resolution. ing violence, are related challenges. Fragile commitment to rule of law reinforces these problems.

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org 19 On 11 December 2009, Thailand seized an Other Relevant Facts Human Rights-Related aircraft flying from the DPRK after it landed Developments Special Representative of the Secretary- for refuelling. It was reportedly carrying General in Iraq approximately 35 tons of weapons and The outcome of the Universal Periodic Ad Melkert (Netherlands) related material, appearing to constitute a Review of the DPRK was adopted by the violation of the sanctions imposed on the Working Group of the Human Rights Useful Additional Resources DPRK in resolution 1874 (adopted after the Council (HRC) on 9 December 2009. n Iraq: Politics, Elections, and Benchmarks, DPRK’s underground nuclear test in 2009). The DPRK indicated that fifty of the Congressional Research Service, 8 The final destination of the arms shipment Working Group’s recommendations did December 2009 remains unclear. not have its support, while the remain­ n Iraq’s New Reality: The Politics of Gover- ing 117 recommendations would be the nance and Federalism, The Stimson Bosworth visited the DPRK from 8 to 10 subject of response after examination. Center and the Centre for International December 2009. He delivered a personal The reply of the DPRK to these recom­ Governance Innovation, November 2009 letter from US President Barack Obama to mendations will be included in the DPRK leader Kim Jong-Il. At the conclusion outcome report to be adopted by the of his trip, Bosworth stated that the DPRK HRC at its next session (1-26 March). had not agreed to resume negotiations on DPRK (North Korea) Recommendations made by partici­ its nuclear disarmament, but had offered pants in the Working Group during the Expected Council Action assurance that it still supported the six-party review included the need to ratify vari­ The chairman of the DPRK Sanctions Com­ process. The DPRK stated that while differ­ ous human rights instruments and to mittee is expected to brief the Council in ences with the US had been narrowed, join the International Labour Organiza­ February, but no Council action is likely. continued cooperation was needed for fur­ tion. A number of recommendations ther progress to occur. Key Recent Developments were based on concerns including the On 27 January the Democratic People’s On 19 November 2009 Council members need for cooperation with human rights Republic of Korea (DPRK) and the Republic met in informal consultations for a briefing mechanisms, promoting gender equal­ of Korea (ROK, or South Korea) exchanged from the DPRK Sanctions Committee ity, ensuring the access to food and artillery fire near disputed coastal waters. (established by resolution 1718 after the ending extrajudicial executions. No casualties were reported. DPRK’s 2006 nuclear test). In remarks to In January the HRC Special Rapporteur the press, members confirmed that they Wi Sung-lac, the top negotiator from the on DPRK, Vitit Muntarbhorn, expressed had received the Committee’s regular ROK met with US officials from 20 to 23 concern about the increased severity ninety-day report, as well as the Panel of January about restarting the six-party talks with which DPRK has punished citizens Expert’s interim report. Members welcomed involving the DPRK, China, Japan, ROK, who have tried to flee the country over the commencement of the Panel’s work Russia and the US. (The DPRK withdrew the last two years. from the talks in April 2009). and encouraged current diplomatic efforts, but stressed the need for the DPRK’s full Key Issues On 11 January the DPRK stated its willing­ compliance with Council resolutions. Japa­ As it remains unclear if or when the DPRK ness to negotiate on nuclear disarmament. nese Ambassador Yukio Takasu stated that will return to negotiations on its nuclear dis­ But it also insisted on the lifting of sanctions mixed signals from the DPRK continued, armament in a substantive way, an issue for and a peace treaty. (A peace treaty would with its possible return to six-party talks off­ the Council is whether it can play any role in formally end the Korean War, which con­ set by a continuation of provocative and bridging the gap between the parties. cluded in 1953 with an armistice unhelpful acts, as well as the Panel’s agreement.) These were the first indications assessment that the DPRK was actively A second and related issue is whether the from the DPRK about its possible return to attempting to evade sanctions imposed Council should limit its role to maintaining the six-party talks since Stephen Bosworth, against it. the continued implementation of sanctions the US Special Representative for North currently in place. Korea Policy, visited the DPRK in December On 10 November 2009 DPRK and ROK A third issue is whether sanctions should 2009. On 12 January both the ROK and the navy ships exchanged fire in disputed soon be modified to increase pressure on US said that it was not acceptable to estab­ waters. The ROK stated that it had suffered the DPRK, such as including additional enti­ lish preconditions such as a peace treaty or no casualties in the incident. ties or individuals subject to the regime. sanctions being lifted prior to the DPRK On 3 November 2009 the DPRK announced reengaging in talks. that it had completed processing 8,000 Underlying Problems A key underlying problem is the lack of During a news conference on 5 January, nuclear fuel rods, producing more pluto­ trust between the DPRK and other mem­ Ambassador Zhang Yesui of China—the nium for its nuclear weapons programme. bers of the six-party talks and the US. Past January Council president—stressed the The US stated that this continuing produc­ attempts to conceal its nuclear weapons importance of all parties taking steps to tion of plutonium violated Council resume the six-party talks. resolutions.

20 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org programme are also very real impedi­ UN Documents ments. It is unclear whether others can play any useful role in building the level of Selected Council Resolutions SECURITY COUNCIL REPORT trust necessary for meaningful negotia­ • S/RES/1887 (24 September 2009) reaf­ Monthly tions that might lead to a solution. firmed that nuclear proliferation is a threat FEB 2010 to international peace and security. FORECAST Options • S/RES/1874 (12 June 2009) con­ Options include: demned the DPRK’s underground Useful Additional Sources n the Council sending a further warning to nuclear test, expanded the arms n Shades of Red: China’s Debate over the DPRK by designating additional enti­ embargo and authorised inspection of North Korea, International Crisis Group, ties, individuals and goods that are cargoes to and from the DPRK as well Asia Report No. 179, 2 November 2009 subject to the sanctions imposed in reso­ as vessels on the high seas, and n Visit of the UN Special Rapporteur on the lutions 1718 and 1874; established a panel of experts. Situation of Human Rights in the Demo- n a statement of policy by the Council con­ • S/RES/1718 (14 October 2006) cratic People’s Republic of Korea firming to the DPRK its position on expressed grave concern over the (DPRK), Professor Vitit Muntarbhorn, to preconditions through a presidential or DPRK’s nuclear test, imposed sanc­ the Republic of Korea (ROK): 10-16 Janu- press statement; and tions and set up a sanctions committee. ary 2010, press release n taking no public action at present. • S/RES/1695 (15 July 2006) condemned Council and Wider Dynamics the DPRK’s launch of ballistic missiles. It is expected that the Sanctions Committee • S/RES/825 (11 May 1993) called on Reduced Security Council briefing will lead to discussion of the arms the DPRK to reconsider withdrawing Decision Making in 2009: shipment intercepted in Thailand, though from the NPT and to honour its non- A Year of Decline—Or Are the Committee is still in the process of gath­ proliferation obligations under the NPT. the Statistics Misleading? ering information about the incident. At Selected Presidential Statement The year 2009 has seen a dramatic drop in press time it appeared uncertain whether • S/PRST/2009/7 (13 April 2009) con­ the level of Security Council decisions. Out­ an initial assessment of state implementa­ demned the 5 April launch of a rocket put has reduced to levels not seen since tion of the sanctions regime, prepared for by the DPRK, saying it was in contra­ 1991. The chart on the next page demon­ the Committee by the Panel of Experts, vention of resolution 1718. strates graphically the overall situation. This would also be discussed. Though there is Sanctions Committee Annual Reports report gives a breakdown of the figures. It some difference of opinion with regard to also analyses some of the underlying fac­ the procedure by which the Experts under­ • S/2010/28 (14 January 2010) tors which may have influenced this take country visits, members seem satisfied • S/2008/830 (31 December 2008) situation. that this will be resolved. • S/2007/778 (31 December 2007) Selected Letters Council Decisions and Activity The consensus in the Council in 2009, • S/2009/416 (12 August 2009) was In 2009 the total number of Council which resulted in enhanced sanctions from the Secretary-General informing decisions (resolutions and presidential through resolution 1874, is holding. Mem­ the Council about the appointment of statements) decreased by 26 percent from bers remain supportive of the established a panel of experts. 2008. The number dropped from 113 to 83, Council approach to the DPRK. • S/2009/364 (16 July 2009) was from the lowest level since 1991. Resolutions There seems to be no momentum for the Sanctions Committee designating dropped from 65 to 48 and presidential expanding the scope of the current sanc­ additional entities and materials, as statements from 48 to 35. tions regime at this time. However, some well as individuals subject to sanctions. This significant trend is also mirrored in a members point to the recent arms shipment • S/2009/222 (24 April 2009) was from matching reduction in formal Council activ­ intercepted in Thailand as evidence that the Sanctions Committee designating ity. The number of formal Council meetings sanctions are having an effect on the new entities and materials subject to decreased by 20 percent, from 243 to 194. DPRK’s ability to generate income from sanctions. arms sales. The US, China and Japan still • S/2009/205 (14 April 2009) was from The number of press statements, which is seem convinced of the centrality of the six- the Sanctions Committee updating one indicator of Council decision making at party process. Most other Council members items, equipment, goods and technol­ the informal level, also decreased by 23 continue to defer to this view. Accordingly, ogy prohibited from being imported or percent, from 47 to 36. developments on this front (and the related exported by the DPRK. Some examples of this reduced Council DPRK-US direct engagement) remain the activity in specific cases can be seen in the determining factor in the Council. Other Relevant Facts numbers of formal meetings on Somalia Chair of the 1718 Sanctions Committee (down from 16 to 11) and Sudan (down Ertugrul Apakan (Turkey) from 22 to 16).

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org 21 Annual Statistics on Security Council Resolutions and Presidential Statements (1990-2009) 200 181 180

157 159 160 146 138 140 129

120 111 111 110 113 106 107 106 99 97 100 91 91 83 80 63 60 51

40

20

0 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009

There was also a decrease in Council deci­ 2009 down from five in 2008. The number 1992-1996 and 2004-2008. In these periods sions on thematic issues, although the of press statements issued in response to the average level of decision making was decline was less marked. The number of terrorist incidents also declined, from 15 134 decisions per year. thematic resolutions dropped by 17 per­ to ten. In the intervening period, 1997-2003, the cent compared to 2008 (from 12 to ten) and Four resolutions were passed relating to the average level of decision making was the number of presidential statements on International Criminal Tribunals for the for­ lower—but still averaged at least 100 deci­ thematic issues fell from 18 to 11. mer Yugoslavia and Rwanda as opposed to sions per year. The change in 2009, down On counter-terrorism Council decisions five in 2008. to a level of only 83 decisions, is therefore also decreased. In 2009 only one resolu­ quite unprecedented in the post-Cold War Background tion was adopted as opposed to three in era. The 2009 level represents a return to Since the end of the Cold War the Council 2008. There were four presidential state­ levels of activity not seen for almost has had two periods of very intense activity: ments condemning terrorist incidents in twenty years.

Annual Statistics on Security Council Resolutions and Presidential Statements (1990-2009) 200 181 Total Resolutions Presidential Statements 180

157 159 160 146 138 140 129

120 111 111 110 113 106 107 106 99 97 100 93 91 91 87 83 82 83 80 88 73 71 66 68 67 63 77 65 65 74 57 57 59 56 60 52 67 51 63 50 48 59 54 40 49 48 50 48 42 42 38 41 39 37 34 35 20 30 21 14 0 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009

22 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org Analysis n an intensive (and more transparent) The reasons for this new trend in 2009 can­ review process for improved decision not be simply explained. 2009 was not a making on peacekeeping operations; SECURITY COUNCIL REPORT year when the Council was stymied by reg­ n new processes for better input from troop Monthly ular use of the veto. In fact only a single veto contributors; FEB 2010 occurred in 2009. The overall atmosphere n a new “working method”—the Informal FORECAST in the Council seems to have been cordial Interactive Dialogue—which allowed the Other Factors in Play in 2009 Council, eventually, to address the Sri most of the time and generally construc­ It would be naïve not to give significant Lanka situation; tive—at least by contrast to some years in weight to the impact of the financial crisis n taking up nuclear and WMD disarma­ the recent past. The antagonisms between during 2009. There is no doubt that both the ment (as opposed to simply the the Council and the General Assembly, domestic and international dimensions of non-proliferation dimensions); which had marked much of the past the crisis have consumed a great deal of n significant new content in its resolution decade, actually seemed to recede in 2009. time and energy on the part of global lead­ on protection of civilians; Nor can the overall state of international ers. As a result there has not been the n innovative procedural solutions for taking peace and security during 2009 explain this traditional level of push for initiatives in the up cases not formally on the Council trend. Globally the number of conflict situa­ Security Council. agenda (e.g. Guinea); tions did not decline either in number or n an extensive open and transparent pro­ 2009 has also been a year in which most if seriousness from 2008. To the contrary cess for input to its review of resolution not all governments have faced very signifi­ there was an upsurge in serious violence, in 1540; and cant fiscal problems. Foreign ministries Gaza and Sri Lanka in particular, and a wor­ n a major revision of its processes for listing have been under strong pressure to reduce rying resurgence of unconstitutional and delisting persons for targeted sanc­ costs. Initiatives in the Security Council usu­ changes of government in parts of Africa. It tions, including improvements to address ally involve increased effort by nations is true that the 2007 Human Security Brief due process criticism. individually and collectively. And that means reported a significant decline in the number increased costs. of armed conflicts and combat deaths from More is not Necessarily Better the late 1990s up to 2006. However, recent Some Council members, including China In addition, two Council members which Crisis Group studies suggest that in the and Russia, have been quietly arguing for a historically have been drivers of much past year crisis situations overall have not number of years that the Council was over­ Council activity, the UK and France, seemed improved and perhaps have worsened. active, trying to adopt too many decisions in late 2008 and throughout 2009 to be And the 2010 publication The Shrinking that were overly reactive to short term con­ somewhat less focused on the Security Costs of War—released on 20 January from cerns and that, in their view, were not helpful Council than at times in the past. the authors of the Human Security Report— in addressing underlying issues. The change of administration in the US is indicates in its overview that the positive Some in the General Assembly have also also a possible factor. New administra­ trends identified earlier in the decade seem been very critical of Council activism for tions always need time to get their to have stalled. wider political reasons and may (or may appointees approved by the Senate and Progress is not Measured only by not) be relieved at this new trend. new policies developed, which tends to Formal Decisions mean fewer Security Council initiatives in And a number of former Council members In looking at the possible factors which the first year. In 2009, however, the out­ have hinted in retrospect that a lot of Coun­ might have contributed to the decrease in come of new policy reviews by Washington cil action—especially the rashes of Council activity in 2009, it is important to in a number of cases relevant to the Secu­ presidential statements adopted earlier in begin by acknowledging that metrics do rity Council was to seek to “engage” with the decade—proved to be at best ephem­ not always show the full picture. countries concerned. This led to some eral and often added little or no value on issues being pursued bilaterally or in During 2009 Council members actually the ground. forums outside the Council. spent a great deal of time—in negotiation in Nevertheless, it is very difficult to see evi­ meetings at the expert level—meetings Finally, the complexity of many of the issues dence that any of these factors played a which are not captured in any available sta­ facing the Council seems to have led a significant role in contracting Council tistics—or in working groups. These number of players in 2009—both states and decision making in 2009—and certainly processes have produced some mile­ NGOs—to a sense of frustration at the not to the extent that would explain a drop stones that are not reflected by the bare apparent intractability of the issues and a in the level of decision making of the order numbers. A few examples include: lack of ideas about initiatives that would which occurred. n establishment of a new expert group on make a difference, especially at a time of protection of civilians; seriously constrained financial resources.

Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org 23 Notable Dates for February Important Dates over the Reports for consideration in February Document Requesting Report Horizon

31 January Darfur (UNAMID) S/RES/1881 n The trial of former Liberian President 12 February Timor-Leste (UNMIT) S/RES/1867 Charles Taylor will continue in February. mid February Chad/CAR (MINURCAT) S/RES/1861 n Presidential elections are expected in mid-February Iraq (UNAMI) S/RES/1883 Côte d’Ivoire shortly. February 2010 Mandates Expire Relevant Document n General elections in Iraq are expected on 7 March. 26 February Timor-Leste (UNMIT) S/RES/1867 n An Arab League summit is expected to February 2010 Other Important Dates be held in Tripoli in March. 2 February The AU Summit will conclude in Addis Ababa n Elections in Sudan are expected in April. 11-17 February The Human Rights Council will conduct its Universal Periodic Review n Elections are expected for April in of Fiji on the 11th, Iran on the 15th, Iraq on the 16th and Bosnia and Northern Cyprus. Herzegovina on the 17th. n The Human Rights Council is expected to The Secretary-General is expected to report to the General Assembly conduct its Universal Periodic Review of on Israeli and Palestinian follow-up to the Goldstone Report. Guinea-Bissau, Haiti and Kenya in May. Also expected in February: n National elections are expected in the • a debate on transition and exit strategies in peacekeeping operations Central African Republic before the end • a meeting with troop and police contributors to MINURCAT of April. • a briefing on Darfur n The promulgation of Nepal’s new consti­ The Council is expected to be briefed by: • Ameerah Haq, the Special Representative for Timor-Leste tution is expected by 28 May. • Ad Melkert, the Special Representative for Iraq n The ICJ advisory opinion on the legality • The chair of the DPRK Sanctions Committee of Kosovo’s unilateral declaration of inde­ • Kanat Saudabayev, the OSCE Chairman-in-Office pendence is expected sometime during the first half of 2010. n Presidential and legislative elections are expected in Burundi on 28 June and in late July. n Parliamentary elections in Afghanistan are expected for September. n Legislative elections in Chad are expected for November. n General elections in Myanmar are expected later for 2010.

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24 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 31st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org