UNDERSTANDING IMPACT OF POLICE, JUSTICE AND CORRECTIONS COMPONENTS IN UN PEACE OPERATIONS WILLIAM J. DURCH MADELINE L. ENGLAND AND FIONA B. MANGAN WITH MICHELLE KER Understanding Impact of Police, Justice and Corrections Components in UN Peace Operations by William J. Durch Madeline L. England and Fiona B. Mangan with Michelle Ker Future of Peace Operations Program, The Stimson Center Rev. 0.1 26 June 2012 ii Understanding Impact of Police, Justice and Corrections Components in UN Peace Operations Copyright © 2012 The Stimson Center 1111 19th Street, NW 12th Floor Washington, DC 20036 Telephone: 202-223-5956 Fax: 202-223-9604 www.stimson.org Email: [email protected] TABLE OF CONTENTS Glossary ............................................................................................................................................ vi Acknowledgments .......................................................................................................................... viii Preface ............................................................................................................................................. ix 1 Structure of the Report ..................................................................................................................... 1 2 Key Findings ...................................................................................................................................... 1 3 Factors Enabling and Inhibiting Impact ........................................................................................... 17 3.1 The Operational Environment .................................................................................................. 17 3.1.1 Politics and political economy .......................................................................................... 17 3.1.2 Security and the climate for violence ............................................................................... 19 3.1.3 The physical environment ................................................................................................ 19 3.1.4 The resource environment ............................................................................................... 20 3.2 Headquarters Knowledge Acquisition and Management ......................................................... 20 3.2.1 Research and analysis at headquarters level ................................................................... 20 3.2.2 Headquarters assessment missions ................................................................................. 21 3.2.3 Headquarters planning and guidance .............................................................................. 21 3.2.4 Mission-to-headquarters reporting and feedback ........................................................... 22 3.3 Mission Relations with Implementing Partners ....................................................................... 24 3.4 Mission Relations with the Host Government and Civil Society ............................................... 25 3.4.1 Component heads to mission leadership ......................................................................... 25 3.4.2 Mission leadership to national leadership ....................................................................... 26 3.4.3 Host government management style ............................................................................... 27 3.5 Accountability ........................................................................................................................... 27 3.5.1 Accountability mechanisms for mission personnel .......................................................... 28 3.5.2 Oversight and accountability mechanisms in host state institutions ............................... 28 4 Police Component ........................................................................................................................... 31 4.1 Designing and Building the Police Component ......................................................................... 31 4.1.1 Recruiting the needed skills ............................................................................................. 31 4.1.2 Pre-deployment and induction training ........................................................................... 32 4.2 Key Issues in Police Component Operations ............................................................................ 33 4.2.1 Police component planning .............................................................................................. 33 4.2.2 Knowledge management, turnover, handover and learning ........................................... 33 iii iv Understanding Impact of Police, Justice and Corrections Components in UN Peace Operations 4.3 UNPOL Operational and Operational Support Roles ................................................................ 34 4.3.1 Law enforcement in transitional administration .............................................................. 34 4.3.2 Operational support and assistance ................................................................................. 35 4.3.3 Formed police units .......................................................................................................... 36 4.4 Host State Police Development ................................................................................................ 37 4.4.1 Strategy and leadership when national will is lagging ...................................................... 37 4.4.2 Baseline capacity mapping and census projects .............................................................. 38 4.4.3 Building critical administrative support functions ............................................................ 38 4.4.4 Building operational capacity and professional values .................................................... 41 5 Justice and Corrections Components .............................................................................................. 51 5.1 Designing and Building Justice and Corrections Components .................................................. 51 5.2 Key Issues in Justice and Corrections Component Operations ................................................. 52 5.2.1 Planning in justice and corrections ................................................................................... 52 5.2.2 Information sharing in justice and corrections ................................................................. 53 5.3 Operations and Operational Support in Justice and Corrections ............................................. 54 5.3.1 Law reform ....................................................................................................................... 54 5.3.2 Direct support to host state justice and corrections ........................................................ 55 5.3.3 Structural support to host state justice and corrections .................................................. 56 5.3.4 Building capacities of ministries, courts and prisons ........................................................ 58 5.3.5 Promoting accessibility and understanding of the justice system ................................... 61 6 Concluding Observations ................................................................................................................ 65 6.1 On Police ................................................................................................................................... 65 6.2 On Justice and Corrections ....................................................................................................... 67 7 Annexes ........................................................................................................................................... 69 7.1 Methodology ............................................................................................................................ 69 7.2 Mission Leadership Structures ................................................................................................. 73 7.3 Programs and Outcomes by Mission ........................................................................................ 75 7.3.1 UN Police Programming and Projects .............................................................................. 75 7.3.2 Justice and Judicial Programming and Projects ................................................................ 91 7.3.3 Corrections Programming and Projects ........................................................................... 98 7.4 First-Generation Transition Benchmarks: A Preliminary Assessment .................................... 104 7.5 Building towards Real-Time Performance Assessment .......................................................... 106 8 Bibliography .................................................................................................................................. 109 Notes ............................................................................................................................................. 115 Table of Contents v TABLES Table 1: UNPOL levels of achievement ................................................................................................ 4 Table 2: UNPOL activities and levels of achievement in operational and development roles .............. 5 Table 3: Justice and corrections levels of achievement ....................................................................... 11 Table 4: Justice and corrections activities and levels of achievement in operational