Operational Effectiveness and UN Resolution 1325 – Practices and Lessons from Afghanistan Louise Olsson & JOHAN Tejpar (Eds.) BIRGITH Andreassen, JosepH HOENEN, SYNNE HOLAN, SOPHIE Kesselaar, BJØRG Skotnes, JOHANNA VALENIUS � ���������������������� ������������������� RO_ BZ_Logo _2_301U_pos op wit_en.eps RO_ BZ_Logo _2 7462C_pos op wit_en.eps Logo ‘derden’ voor gebruik in colofon met Logo ‘derden’ voor gebruik in colofon met ongestreken papiersoorten ( UNCOATED ) op witte achtergrond gestreken papiersoorten ( COATED ) op witte achtergrond Kleur is gebaseerd op PMS 301U Kleur is gebaseerd op PMS 7462C Bij gebruik in full colour offsetdruk Bij gebruik in full colour offsetdruk omzetten naar: C100 M54 Y4 K19 omzetten naar: C100 M45 Y6 K28 RO_ BZ_Logo _2_301U_pos op kleur_en.eps RO_ BZ_Logo _2 7462C_pos op kleur_en.eps Logo ‘derden’ voor gebruik in colofon met Logo ‘derden’ voor gebruik in colofon met FOI, Swedish Defence Research Agency, is a mainly assignment-fundedongestreken papiersoorten agency under the ( UNCOATED Ministry of Defence. ) op gekleurde The core activitiesachtergrond are research, methodgestreken and technology papiersoorten ( COATED ) op witte achtergrond development, as well as studies conducted in the interests of Swedish defence and the safety and security of society. The organisation employs approximately 1000 per- sonnel of whom about 800 are scientists. This makes FOIKleur Sweden’s is gebaseerd largest research op institute. PMS FOI301U gives its customers access to leading-edge expertiseKleur in a islarge gebaseerd number op PMS 7462C of fields such as security policy studies, defence and securityBij gebruik related analyses,in full colour the assessment offsetdruk of various types of threat, systems for control and Bijmanagement gebruik of in crises, full colour offsetdruk protection against and management of hazardous substances,omzetten IT security naar: and theC100 potential M54 offered Y4 by K19 new sensors. omzetten naar: C100 M45 Y6 K28 FOI Defence Research Agency Phone: +46 8 55 50 30 00 www.foi.se Defence Analysis Fax: +46 8 55 50 31 00 FOI-R--2760--SE User report Defence Analysis SE-164 90 Stockholm ISSN 1650-1942 May 2009 Louise Olsson & Johan Tejpar (eds.) Birgith Andreassen, Joseph Hoenen, Synne Holan, Sophie Kesselaar, Bjørg Skotnes & Johanna Valenius Operational Effectiveness and UN Resolution 1325 – Practices and Lessons from Afghanistan Cover photos: PRT Tarin Kowt: The District Chief of Deh Rawod, sitting next to a female Mission Team Deputy Commander, at a meeting in the village Dorshanak to intervene in a local dispute between two village elders. Photo by: Captain Steffie Groothedde. PRT Mazar-e Sharif: The Swedish PRT Commander and Gender Field Adviser. Photo by Louise Olsson. PRT Meymaneh: A girls’ school outside Meymaneh. The teaching facilities consisted of tents. Photo by Synne Holan. Kabul: Meeting the Director of Training, his staff and the highest ranked female military officer in ANA at the Afghan Ministry of Defence. Photo by Johan Tejpar. FOI-R--2760--SE Title Operational Effectiveness and UN Resolution 1325 – Practices and Lessons from Afghanistan Rapportnr/Report no FOI-R--2760--SE Rapporttyp Användarrapport Report Type Sidor/Pages 151 p Månad/Month Maj/May Utgivningsår/Year 2009 ISSN ISSN 1650-1942 Kund/Customer Försvarsdepartementet Kompetenskloss Operational Analysis and Support Extra kompetenskloss Projektnr/Project no A 12014 Godkänd av/Approved by Maria Lignell Jakobsson FOI, Totalförsvarets Forskningsinstitut FOI, Swedish Defence Research Agency Avdelningen för Försvarsanalys Division of Defence Analysis 164 90 Stockholm SE-164 90 Stockholm FOI-R--2760--SE Sammanfattning Den 12 december 2007 beslutade det Nordatlantiska rådet att utveckla gemensamma koncept och policydirektiv avseende FN Resolution 1325. Som del i detta arbete har åtta experter från fyra länder gjort denna studie om hur Resolution 1325 har integrerats i NATO Provincial Reconstruction Teams (PRT) i Afghanistan. I studien utvecklas ett ramverk som används för att analysera arbetet med Resolution 1325 i fem fallstudier av lika många besökta PRT. Dessa är det Nederländernas PRT i Tarin Kowt, Italiens PRT i Herat, Nya Zeelands PRT i Bamyan, Norges PRT i Meymaneh och Sveriges PRT i Mazar-e Sharif. Studiens analytiska ramverk bygger på en modell där Resolution 1325 innehåll bryts ner i representation (manligt och kvinnligt deltagande) och integration (hur resolutionen används för att uppnå önskad effekt). Dessa teman analyseras i dimensionerna internt (hur missioner och operationer är organiserade) och externt (hur missionerna eller operationerna bemöter situationen i det geografiska ansvarsområdet för att uppnå önskat resultat). I arbetet med att analysera arbetsområdena framkom att de olika PRT hade skiftande kunskaper såväl om Resolution 1325 som om kvinnors och mäns olika säkerhetssituation och behov. Det framgick att PRT i studien såg hur Resolution 1325 kunde vara användbar i deras dagliga arbete, bland annat genom att ha: fler kvinnliga soldater för att öka kontaktytan och därmed få mer underrättelse (Meymaneh), experthjälp i planeringen av operationer (Mazar-e Sharif), kunskap om hur man kan hantera könsrelaterat våld (Bamyan), bättre kunskap om kvinnors behov i CIMIC- projekt (Tarin Kowt), och effektivare ’force protection’ (Herat). I studien visar det sig också att ledarskap och expertfunktioner är centrala för att genomdriva förändringar mot fullständig integrering av Resolution 1325. Tre områden som krävs för att integrera Resolution 1325 i NATO operationer identifieras slutligen. Dessa är 1) vikten av att använda en allomfattande strategi för att integrera Resolution 1325; 2) vikten av att hålla ledarskapet ansvariga för att integrering av resolutionen genomdrivs; samt att 3) skapa expertfunktioner för att lyfta upp och effektivisera integreringen. Dessa tre råd beskrivs mer djuplodande i expertgruppens policyrekommendationer som överlämnades och presenterades för NATO och Euroatlantiska partnerskapsrådet i maj 2009. Nyckelord: FN Resolution 1325, NATO, ISAF, PRT, Afghanistan, gender, operationell effektivitet 3 FOI-R--2760--SE Summary On December 12, 2007, the North Atlantic Council decided to develop common concepts and a Policy Directive on UN Resolution 1325. As part of this process, eight independent experts from four countries have conducted this study, identifying best practices and lessons learned from the implementation of Resolution 1325 in NATO’s Provincial Reconstruction Teams (PRTs) in Afghanistan. Practices and lessons relate both to effectiveness and the process to integrate Resolution 1325 in operations. An analytical framework has been developed and applied on five different PRTs; the Dutch PRT in Tarin Kowt, the Italian PRT in Herat, The New Zealand PRT in Bamyan, the Norwegian PRT in Meymaneh and the Swedish PRT in Mazar-e Sharif. The analytical framework is based on a model in which the content of Resolution 1325 is broken down into representation (male and female participation) and integration (the use of the content of Resolution 1325 in the process to achieve a desired output). These themes are analyzed internally (how NATO Operations are organized) and externally (how Operations address the situation in the area of responsibility to obtain the desired output). Using this model, a set of work areas are identified and analyzed. When analyzing the work areas in the PRTs, it showed that the awareness of Resolution 1325 and of women’s and men’s different security situation and needs varied. However, PRT personnel agreed that a substantial part of the Resolution’s content is, or could be, helpful in their day-to-day operations. Examples given include: having more female soldiers to better reach the local population and collect intelligence (Meymaneh), having expert support in the planning of operations (Mazar-e Sharif), better handling issues of gender-based violence (Bamyan), better addressing women in CIMIC-projects (Tarin Kowt) and having women to better handle force protection issues (Herat). It was also apparent that the leadership, supported by expert functions, plays a crucial part to drive change towards a complete integration of Resolution 1325. To fully integrate Resolution 1325 in NATO Operations, three principle actions are identified: These are 1) use a comprehensive strategy to integrate Resolution 1325, 2) hold commanders accountable for progress, and 3) establish expert functions to enhance integration. These actions are specified in the expert group’s policy recommendations which were handed to NATO and the Euro-Atlantic Partnership Council in May, 2009. Keywords: UN Resolution 1325, NATO, ISAF, Afghanistan, PRT, gender, operational effectiveness, women and men 4 FOI-R--2760--SE Contents About the Authors................................................................. 11 Acknowledgements............................................................... 12 Acronyms and Abbreviations............................................... 14 1 Introduction................................................................... 15 By Louise Olsson and Johan Tejpar 1.1 Contribution of the Report...............................................................16 1.2 Structure of the Report....................................................................17 2 How to Address Resolution 1325: The Framework... 19 By Louise Olsson and Johanna Valenius 2.1 Point of Departure...........................................................................19 2.2 Representation................................................................................21