Council of the European Union Brussels, 8 December 2015 (OR. en)

Transcription

1 Conseil UE Council of the European Union Brussels, 8 December 2015 (OR. en) 15135/15 LIMITE PUBLIC COPS 393 POLMIL 108 CIVCOM 228 EUMC 46 COAFR 360 CONUN 229 CSDP/PSDC 666 COVER NOTE From: To: Subject: European External Action Service (EEAS) Political and Security Committee (PSC) First Progress Report on Implementing the "Strengthening the UN-EU Strategic Partnership on Peacekeeping and Crisis Management: Priorities " Delegations will find attached document. Encl.: 15135/15 FP/oza DGC 2B LIMITE EN

2 EUROPEAN EXTERNAL ACTION SERVICE Crisis Management and Planning Department - CMPD Brussels, 7 December 2015 eeas.cmpd.4(2015) LIMITE PSC NOTE From: : To: : Subject : Crisis Management and Planning Department (CMPD) Political and Security Committee First Progress report on implementing the "Strengthening the UN-EU Strategic Partnership on Peacekeeping and Crisis Management: Priorities " Delegations will find attached First Progress report on implementing the "Strengthening the UN-EU Strategic Partnership on Peacekeeping and Crisis Management: Priorities "

3 I. Introduction 1. This is the first report to inform on progress made to date in implementing the "Strengthening the UN-EU Strategic Partnership on Peacekeeping and Crisis Management: Priorities " (7632/15) that was endorsed by the PSC on 13 of May II. Context 2. "Strengthening the UN-EU Strategic Partnership on Peacekeeping and Crisis Management: Priorities " is a joint EU-UN document outlining a prioritized forward looking agenda for the EU-UN cooperation in the areas of peacekeeping and crisis management. 3. Since the 2003 EU-UN Joint Declaration and 2007 EU-UN Joint Statement on Cooperation in Crisis Management, the partnership between the EU and the UN in peacekeeping and crisis management has been extended and deepened continuously. Three areas of cooperation are of key importance: (i) multi-annual initiatives such as the "Strategic Partnership in Crisis Management and Peacekeeping: Priorities "; (ii), the EU-UN Steering Committee on Crisis Management; and (iii) the extensive cooperation between the EU and its Member States in theatre, including in the Central African Republic and Mali. The cooperation is based on the added value of both organisations and on producing mutual operational benefits building on complementarity of efforts on the ground. 4. At the Peacekeeping Summit on 28 September 2015 President Tusk delivered an EU pledge to strengthen support to UN peacekeeping in line with the priorities in the Strategic Partnership. Since the adoption of the Strategic Partnership two Steering Committee meetings have been conducted on 13 July and 3 December respectively. At staff level there is ongoing cooperation between EEAS and UN interlocutors on crisis management and peacekeeping issues, including the EU Delegation in New York and the UN Liaison Office for Peace and Security in Brussels. Cooperation includes intensive contacts between CMPD, CPCC, EUMS and UN counterparts (for EUMS - UN Office of Military 2

4 Affairs contacts a working tool, an informal game plan, has been established focusing on the military work strands of the Strategic Partnership). III. State of play and results Priority 1: Rapid Response a) Put modalities in place to facilitate rapid deployment of CSDP operations 5. A joint UN-EU After Action Review (AAR) on the EUFOR bridging operation in Central African Republic is underway on the basis of an exchange of draft documents. Based on the AAR, possible measures that would facilitate the rapid deployment of a CSDP operation and eventual handover to a UN operation will be identified. 6. In a separate track, and as a useful complement, Georgia has shared their lessons learned from their participation in EUFOR RCA with the EEAS. b) EU Battlegroups 7. At the EU-UN Steering Committee in July 2015 the UN officially transmitted a "Note on Options for an EU Battlegroup deployment in support of UN Peacekeeping" to the EU. The paper was then presented by UN Under-Secretary General Hervé Ladsous to the EU Member States at the informal Defence Ministers Meeting on 3 September and at the Political and Security Committee (PSC) on 4 September. It was then further detailed by the Head of the UN Liaison Office for Peace and Security, Rory Keane, at the Politico- Military Group (PMG) on 30 September and by the Expert on Defence Cooperation of his office, Col Christian Eder, at the EU Battlegroup Community Meeting (EU BGCM) on 21 October. On 3 November PMG issued recommendations to PSC on the UN Battlegroup options paper. The recommendations were endorsed by the PSC on 5 November. Recommendations include continuing the staff to staff dialogue and, depending on the results of this dialogue, the need for additional military assessment as well as considering the possibilities of expert-level meetings of the EEAS and Member States with UN representatives. The recommendations also suggest broadening the range of options for cooperation in the field of rapid response, looking into area of enablers such as logistics, strategic lift and infrastructure. 3

5 c) The European Gendarmerie Force 8. The head of the Police Division in the UN Office for Rule of Law and Security Institutions (OROLSI) will attend the European Gendarmerie Force (EGF) High Level Interdepartmental Committee Meeting in Bucharest on 11 December It is envisaged that this meeting will enable the UN to formulate a basis for more structured cooperation with the EGF. The EEAS already has a cooperation agreement with the EGF. d) Discuss synergies between different rapid response models 9. EU, UN and AU officials had a trilateral discussion on peace operations in Addis Ababa in October 2015 when participating in a trilateral seminar organised by the Center for International Peace Operations in Berlin (ZIF). A proposal was put forward for more regular trilateral dialogue between the UN, EU and AU on issues such as rapid response. Priority 2: Support to the African Peace and Security Architecture a) Lessons learned 10. The UN-AU lessons learned exercise on AU bridging operations in Mali and CAR has been completed last year. In a separate track, but linked to some of the lessons identified, initial discussions on AU financing are in progress. b) Closer trilateral cooperation 11. To promote regular trilateral dialogue between the UN, EU and AU the organisation of an ad hoc high level meeting is being considered. 12. AU-UN-EU officials met in Addis Ababa on 3 December 2015 to discuss SSR cooperation. c) Maritime security 13. On issues of maritime security current cooperation is based on joint participation in the Contact Group on Piracy off the coast of Somalia and the UN inputs to the EU maritime 4

6 security strategy. In staff-to-staff contacts possibilities for further cooperation are being explored. d) Capacity building of African Troop and Police Contributing Countries 14. Related to capacity building of African Troop and Police Contributing Countries there are a number of ongoing activities. The ESDC network can be used for projects to support training programmes in Africa. A majority of ESDC courses are open to third states and to UN personnel. Courses include various topics such as SSR, POC, gender in operations, anti-corruption, mediation and courses for specific functions in missions and operations (POLAD, LEGAD, Senior leadership etc.). Training to support LAS and AU is being considered. The EU and UN have discussed the possibilities of using the ESDC network for training in support of APSA. 15. Europe's New Training Initiative for Civilian Crisis Management (ENTRi) is an EUfunded (IcSP) capacity building programme for civilian personnel in crisis management missions. ENTRi courses are open to individuals from all over the world who are either going to or already working in crisis management missions for organisations such as the European Union (CSDP missions), the United Nations (UN), the Organization for Security and Co-operation in Europe (OSCE), and the African Union (AU). 16. The EU and the UN have supported the 4-year effort of the Amani Africa II exercise for the African continent that took place in South Africa in October/November The aim of the exercise was to validate the capacity of the African Union to mandate and employ a Rapid Deployment Capability of the African Standby Force as a start-up operation and to run a multi-dimensional peace support operation. The After Action Review is yet to be completed. The EU was the largest financial contributor to the exercise and provided civilian, military and police expertise in the planning and conduct phases of the exercise. The UN supported the exercise with expertise during the planning and conduct phases. e) Strategic Guidance Framework for International Police Peacekeeping 5

7 17. EEAS expertise has been consulted for the UN development of the Strategic Guidance Framework for International Police Peacekeeping (SGF). The UN is consulting with both EU and AU, among others, to ensure consistency in policy and guidelines as far as possible. The objective is to form a shared understanding of fundamental principles, tasks and approaches of police in peacekeeping and crisis management. 18. Similarly, the ongoing development of operational guidelines within the CPCC related to policing and civilian crisis management will be consulted with UN DPKO/Police Division. In addition, a joint "drop box" of EU and UN guidelines on policing is being discussed to serve as a joint library, which can include the AU as appropriate. 19. To further deepen cooperation in this area the Director of CPCC visited the UNHQ in October 2015 and the Head of the UN Police Division in OROLSI will visit Brussels in January Priority 3: Facilitating EU Member States' Contributions to UN Peacekeeping a) Engagement with EU Member States 20. The EU Member States together constitute the biggest financial contributor to UN peacekeeping operations, and the Department of Peacekeeping Operations maintains daily contacts with EU Permanent Representations in New York, as well as in Brussels through the UN Liaison Office for Peace and Security. There is excellent UN-EU information exchange on the political, operational and technical level. 21. The pace of UN participation in EU fora has been maintained and the EU has made a number of platforms available to the UN to discuss operational needs and partnership issues. This includes participation by USG Ladsous in the informal EU defence ministers meeting on 03 September in Luxembourg. USG Ladsous and other UN officials have also engaged with the Political and Security Committee (PSC), the Military Committee of the EU (EUMC) at CHODs level, the Politico-Military Group (PMG) and the EU Battlegroup Community Meeting (EU BGCM). The EU will continue to offer different platforms to 6

8 the UN USG for Peacekeeping Operations (and to other UN officials), including participation of the USG in the informal defence ministers meetings. 22. EU Member States participating in UN peacekeeping operations have shared their experiences of current UN engagements. (The Netherlands and Sweden briefed the PMG on 25 November 2015 on their participation in MINUSMA). 23. There has been regular UN follow up with EU Member States on the UN requirements in Peacekeeping Operations as set out in a UN capability gap list, developed under the CSDP Plan of Action on EU Support to UN Peacekeeping, in particular in the run up to the 2nd Peacekeeping Summit on 28 September 2015 where the EU as an organisation and twelve EU Member States pledged contributions. b) Exploring further how the EEAS can play a role 24. UN Police Division would like to explore the possibilities of the identification and use of Specialised Police Teams (6-8 police officers on longer commitment) from EU countries to be deployed in UN peacekeeping operations or to states asking for assistance from the UN. Policing expertise related to organised crime, intelligence, gender based- and domestic violence issues are of particular interest. c) Encouragement of EU partner countries 25. EEAS will explore how to encourage EU partner countries to contribute to UN peacekeeping. Priority 4: Cooperation in Rule of Law and Security Sector Reform (SSR), including in the area of Defence Sector Reform (DSR) a) Security/ Defence Sector Reform - mapping exercise 26. In the field of DSR, an initial mapping has taken place in close coordination with NATO. A staff to staff non-paper on the findings of the mapping and a proposed way forward (agreed by the Principals in the margins of the previous Steering Committee) was 7

9 distributed to Member States on 6 November It is expected that key recommendations in the non-paper will be carried forward in the course of b) SSR mapping exercise 27. The final report from the SSR mapping exercise is expected to be ready by the end of It will provide a detailed overview of the main findings as well as propose some initial recommendations for enhancing the effectiveness and coherence of multilateral actors support for SSR. The follow up of this SSR mapping will focus on case studies and analyse coordination practices in country contexts. 28. The Chief of the UN SSR Unit of OROLSI visited Brussels on 19 November and met with several SSR experts to coordinate EU-UN cooperation on SSR, including concrete agreements to start joint EU-UN SSR pre-planning in CAR. c) Capacity Building in support of Security and Development 29. The Joint Communication by the HR and the Commission on Capacity Building in Support of Security and Development (CBSD, formerly known as 'Train & Equip') was presented on 28 April 2015 ahead of the European Council in June 2015 which in its conclusions recalls the needs on e.g.: - intensifying partnerships, namely with the UN, NATO, OSCE and AU; - empowering and enabling partners to prevent and manage crises, including through concrete projects of capacity building with a flexible geographic scope. 30. Proposed measures have since entered into implementation with a dual track and learning by doing approach. This approach combines immediate concrete projects in the field (in particular the pilot cases of Mali, Somalia and APSA) and longer term improvement on funding (including possibility of a new dedicated instrument) as well as coherence and coordination of all actors concerned: EU institutions and instruments, Member States as well as other international actors (UN, NATO, individual countries). Concertation is ongoing with the UN on better coordination and possible synergies on this area of joint interest (including at the level of the EU-UN Steering Committee). 8

10 31. As an example, the UN (OROLSI) has presented a paper to the EU (CPCC) for non-lethal support for the Police in Somalia. d) Collaboration in the field 32. Discussions are ongoing on possible joint assessment missions. EU and UN services will explore the feasibility, objectives and modalities of joint assessments in specific cases. 33. On coordinating assistance to host-state agencies, Mali serves as a model example for such UN-EU interaction. e) Cross-cutting issues 34. On cross-cutting issues the EU and the UN have exchanged contact details of gender advisers and focal points in operations in order to facilitate cooperation in the field in the area of gender and SCR The UN has shared lessons and experiences beneficial to the EU for its upcoming baseline study on integrating human rights and gender into CSDP. Women, Peace and Security was addressed as a stand-alone agenda item at the UN-EU Steering Committee on Crisis Management in July this year and the issue was mainstreamed across all agenda items in the December meeting. UN interlocutors have participated in the annual meeting of the informal EU taskforce on 1325 which focused on gender, counter-terrorism and violent extremism. Moreover, EU participated in the Global Leaders' Summit on Women on 27 September where the EU delivered strong commitments for the advancement of gender equality and women's empowerment. The EU also made strong pledges at the Open Debate for the 1325 Global Review at the UN Security Council on 13 October. Priority 5: Cooperation in Support and Logistics, finalize and implement a framework agreement on support issues 35. The UN and the EU are in the process of finalizing a Framework Agreement for the provision of mutual support which will provide a legal framework for handover of infrastructure and the sharing of services between the two organizations. The framework agreement will have positive implications for EU-UN cooperation in the field and is 9

11 foreseen to deliver benefits in terms of cost-savings, more rapid deployments and greater efficiency. Priority 6: Enhanced information and analysis exchange a) Administrative arrangement on the exchange of classified information 36. An arrangement on the exchange of classified information (at the level of UN confidential and EU restricted documents) between DPKO/DFS and the EEAS is in the process of being signed. The arrangement will greatly facilitate information flow between the two organizations. b) Strategic Reviews 37. In December 2015 the EU and the UN agreed as a routine practice to inform each other about respective strategic reviews of missions and operations. The exchange of Strategic Reviews of missions and lessons learned will be facilitated by the arrangement on the exchange of classified information. c) Sharing lessons learned 38. Lessons learned from TCC/PCCs will be shared upon request subject to authorization from the relevant countries. d) Information sharing and exchange of analysis 39. The EEAS and the UN Liaison Office for Peace and Security (UNLOPS) maintains regular contacts and a high level of cooperation with the EEAS. The UNLOPS has also established regular contacts with EU Member States. Priority 7: Follow up the implementation of the EU Plan of Action a) Activities of the Action Plan ( ) to be completed Military capabilities 40. Under this works strand a request was made by the UN to receive EU Military Staff expertise in a range of areas. There are no developments to date in this field. 10

12 41. On the other hand, the EU Liaison and Planning Cell (EULPC) to the EU Delegation in Tripoli (currently located in Tunis) provides military and gendarmerie expertise in the field of security planning to the UN Support Mission in Libya (UNSMIL). The EULPC was established on 18 April 2015 in Tunis to support the work of UNSMIL's Security Sector Advisory and Coordination Division in order to enhance capacity and contribute to planning in line with the security track of the Libya Political Agreement. Civilian capabilities 42. The Goalkeeper platform needs a technical update, foreseen to take place in May 2016, before it can be opened up to the UN. A UN counterpart that will update the UN information on the platform will need to be identified. Operational coordination: Conduct guidelines 43. The UN has committed to prepare the first draft for 'Modalities for coordination during the conduct phase of missions and operations' immediately after the completion of the Peace Operations Review process. Gender aspects will be considered in the modalities. b) Follow up Action Plan modalities ( ) 44. The existing modalities in the four areas: planning, concepts/guidance, training and exercises and lessons learned/best practices are helping to inform the UN-EU partnership on the ground. Planning 45. Based on the jointly endorsed 'Modalities for coordination during the planning phase of missions and operations' and the results of a EU-UN Mil-Mil planning exercise in 2014, an annex to the planning modalities will be produced that describes all sequential planning aspects of UN and EU military operations. 46. In the first quarter of 2016, the EEAS will host in Brussels the second joint EU-UN Conflict Analysis Workshop on the Central African Republic. 11

13 Concepts/guidance 47. The EUMS organises an annual seminar that serves as an information depository concerning military conceptual development within the EU and in the Member States. The UN Liaison Office for Peace and Security in Brussels is participating in these seminars. 48. There are ongoing EU-UN consultations on the Strategic Guidance Framework for International Police Peacekeeping and on operational guidelines for policing and civilian crisis management. Training and exercises 49. ESDC has contributed with expertise to the UN Training Architecture project in and to the development of UN Core Pre-deployment Training Materials in a workshop in April The EU and UN cooperate on ESDC training courses in Security Sector Reform, Protection of Civilians and Senior Mission Leadership. Also, the UN Integrated Training Services participated in the ESDC and EU ISS expert seminar on the CSDP training policy 2-3 July 2015 and in the CSDP annual meeting on training October In addition, the UN Liaison Office for Peace and Security is contributing to ESDC predeployment training courses in Brussels on a regular basis. 51. The UN has been invited to participate in the EU exercises Multi-layer 2016 and MILEX 16. Lessons learned/best practices 52. Staff-to-staff level contacts are ongoing, including visits in order to exchange information on working methods of managing best practices and lessons learned, as well as a lessons database. 12