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20482 THE WHITE HOUSE

WASHINGTON

May 3, 1994

PRESIDENTIAL DECISION DIRECTIVE/NSC-25M E l I 0 R A N D U ~ 1 FOR THE VICE PRESIDENT

THE SECRETARY OF STATETHE SECRETARY OF DEFENSEDIRECTOR OF THE OFFICE OF } ~ N A G E M E N T AND BUDGETREPRESENTATIVE OF THE UNITED S1'ATES TO

THE UNITED NATIONSCHIEF OF S'TAFF TO THE PRESIDENTASSISTANT TO THE PRESIDENT FOR NATIONALSECURITY AFFAIRSDIRECTOR OF CENTRAL IN'rELLIGENCE

CHAIRMAN OF 'THE JOINT CHIEFS OF STAF'FSUBJECT: U.S. POLICY ON REFORMING MULTILATERAL PEACEOPERATIONS (U)

Ser ious t h rea t s to the se c u r i t y of the United St a t e s pe r S i s t inthe pos t-Cold War e ra . His tory sugges ts t h a t new t h r e a t s w i l lsur f ace . Th e United Sta tes remains committed to meeting sucht h r e a t s t .hrough e i t h e r uni la t_era l or m u l t i l a t e r a l ac t ion ! as ouri n t e r e s t s d ic t a t e . (D)Circumstances have a r i sen and w i l l a r i s e in the fu ture in whichit w i l l be in our i n t e r e s t to proceed in pa r tne r s h ip with o ther sto preserve! mainta in or r e s t o r e the peace . The United Nations(UN) can be an impor tan t ins t rument of such pa r tne r s h ip s . (U )

in UN peace opera t ions can never su b s t i t u t e for thef igh t ing and winning our own wars , nor can we a l lowit to reduce our c a pa b i l i t y t o r n e e t t h a t impera t ive . It canthowever, se rve , in e f f e c t , as a "force m ul t i p l i e r " in our e f f o r t sto promote peace and s t a b i l (U)During the Cold War, the United Nat ions could resor t . to mul t il a t e r a l peace opera t ions only under the r a re c ircumstances inwhich th e i n t e r e s t s of the Sovie t Union and th e West did no tc o n f l i c t _ Such ions can now se rve as a cost-effect_l .vet oo l in many cases to advance such American i n t e r e s t s as t.hemaintenance of peace in reg ions and th e r e l i e f of suf fe r ingabroad. (U)

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since it i s our to suppor t or UN peaceopera t ions on such occas ions , it i s also to seekto st rengthen our mm and the Un:Lted ' peace opera t ionscapab i l i t . i e s . That i s the ect. of th e at. tached "PolGuidance: u . s . on Reforming Mul t i l a t e ra l PeaceOpera t ions ," which elabora tes th i s Pres DecisionDirec t ive , and which I today. (U)The Role of Peace Operations in U.S. Foreign Policy

t o r i a l di spu tes , armed e thn ic conf l i c t s , c i v i l wars of ""hich s p i l l across in te rna t iona l borde rs ) , and the t o t a l of governmental au thor i ty in some s t a t e s a re nowamong the th rea t s to world peace. The UN has sought t.o aconst ruc t ive ro le in such s i tua t ions by media t ing disputes andohta ining agreement to cease- f i res and p o l i t i c a l se t t l ement s .Where agreements to t h a t e f f e c t have been reached, the i n t e rpos i t ion of neut ra l forces under UN auspices can f a c i l i t a t el as t ing peace. (U)Having cons idered the fac to rs in Annex I the United Sta tesw i l l vote in the UN Secur i ty Council fo r mul t i l a t e ra l peaceopera t ions , OT, where appropr ia te , take th e lead in ca l l ing fo rthem l when member s t a t e s a re prepared to suppor t the e f f o r t withforces and funds; when the U.S. dec ides t h a t the opera t ion ' sp o l i t i c a l and mil i ta ry objec t ives a re c l ea r and feas ib le ; andwhen UN involvement represen t s the b e s t means to advance U.S.i n t e re s t s . The U.S. w i l l not suppor t in the Secur i ty Councilproposa ls fo r UN involvement in s i t u a t i o n s '",here such involvement7>0t viable or t';hen it would U.S. i n t e re s t s .UN and othe r mu l t i l a t e r a l peace .....'1.11 a t t imes o f fe rthe b es t way to prevent , conta in: o r resolve co n f l i c t s t h a t couldotherwise be fa r more co s t :y and deadly . In such cases , the U.S.benef i t s from having to bear only a share of the burden. We alsob en e f i t by being able to invoke the voice of the community ofnat ions on behal f of a cause we suppor t . Thus, peacekeeping,peace enforcement and the es tabl ishment of a cap ab i l i t y toconduct mu l t i l a t e r a l peace opera t ions w i l l become p a r t of ourNat ional Secur i ty S t r a tegy and Nationa l Mil (D)Peace ons can be valuable too ls in cer ta into advance our na t iona l They cannot and w i l l notsubs t i tu te fo r u n i l a t e r a l or coa l i t ion ac t ion when t ha t i s whatour na t iona l i n t e re s t requ i res . Thus, in bui ld ing our capaci tyfo r peace f we wil l not di sca rd or y,'eaken othe r too lsfo r U.S. ohjec t ives . The U.S. w i l l mainta in thecapabi l a c t uni la t .e ra l ly o r in coa l i t ions when ourand those of our f r iends and a l l i e s a re a t s t ake .Mu l t i l a t e ra l peace opera t ions must, therefore , be placed in~ e r per spec t ive among the ins t ruments of U.S. fore

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U.s. Support fo r Mu l t i l a t e r a l Peace Opera t ionsThe United s t a t e s w i l l st rengthen i t s suppor t UnitedNat.ions and appropr ia t ,e reg ional peace opera t ions i t i ca l1 y Imi l i t a r i l y and In doing so , we w i l l suppor t whenwarranted the f u l l range of ac t i v i t i e s from prevent ivethrough peacekeeping and peace enforcement .As President , I re ta in and 11 not re l inqu ish command au thor i tyover U.S. forces . On a case-by-case bas is , I w i l l cons ide rplac ing appropr ia te U.S. forces and under theopera t iona l con t ro l of a competent UN commander fo r spec i f i c UNoperat. ions author ized by the Securit,y Council. In making th i sdec is ion , I w i l l take in to account such fac to rs as the na tureo f U.S. i n t e re s t s , the s ize of the proposed U.S. force , ther i sk to U.S. , the proposed durat ion of the mission andru les ,of and the nature and mandate of the( inc luding it i s Chapter VI or Chapter VII) . Such act ionw i l l be undertaken cons is ten t with the U.S. Const i tu t ion , U.S.fede ra l law and the Un Code of Mil i ta ry J u s t i ce . Theg rea t e r the U.S. mi l i t a ry ro l e , the l e s s l ike it w i l l be t h a tI w i l l agree to have a UN commander exerc i se o v era l l opera t iona lcon t ro l over U.S. forces . Any la rge sca le par t i c ipa t ion of U.S.forces in a major peace enforcement opera t ion t ha t i s I toinvolve combat should ord inar i ly be conducted under U.S. commandand opera t iona l con t ro l o r through competentorganiza t ions such as NATO o r ad hoc co a l iIt i s important t.o bui ld publ i c and Congressional suppor t fo rUN peace opera t ions pa r t i cu la r ly those in "'/hich U. S. forcesp a r t i c i p a t e . Accordingly, we w i l l take t he s t eps out l ined inAnnex VIII to ensure Congress i s regu la r ly and fu l ly br ie fedon such opera t ions , and, wherever poss ib le , consul ted about thepar t i c ipa t ion of U.S. armed forces in them. (U)The United Sta tes w i l l take a ro le in obta in ingint .ernat ional to enhance th e headquar te rs capabi l i t . iesof the UN to conduct peace opera t ions e f f ec t i v e l y , toeconomies of sca le and reap t he benef i t s of p as t exper ience . TheUnited Sta tes w i l l cont r ibu te personnel , t echn ica l ass i s tance ,equipment, f a c i l i t i e s and funding fo r t h a t enhancement. (U)While we work with the UN to make i t s opera t ions more e f f i c i en tand ef fec t ive , to reduce UN cos t s and to ensure our f i n an c i a lassessment i s more equi table! the United Sta tes w i l l aggressseek Congressional suppor t to meet i t s obl iga t ions fo rUN peace opera t ions . (U)Within the U.S. Gove.rnment, agencies w i l l t h e i rcap ab i l i t i e s to contr ibute to and coordina te with UN peaceopera t ions through s ign i f i can t organiza t ional changes . TheSecre ta r ies of Sta te and Defense w i l l be j o in t ly re spons ib lefo r obta ining adequate peace" opera t ions funds and fo r managingday- to-day U.S. suppor t fo r i n t e rn a t io n a l peace opera t ions .Decision-making and suppor t fo r UN peace opera t ions w i l l be ashared r e sp o n s ib i l i t y as elabora ted in the Pol icy Guidel ines In

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4diplomacy to ie sl l cases . theand our UN Miss York 11 Departmentre spons ib i l

Implementat ionAn Peace t h E ~ NSCrepor t ing to theof PDD, make recommendations on U,S.p ar t i c ip a t io n in peace , overseeof suppor t fo r peace operat ions in theand personnel and consider future U.S.Decis ions on ne,("J peacekeepingmade by an group, a tl eve l , t ak ing i n to account ava i l ab le anaCore . ~The Secret.ary of St.ate and of Defense s h a l l submit tome through the Assi s t an t to the Pres iden t fo r Nat ional Secur i tyAf fa i r s a j o i n t r ep o r t on the s ta tus of implementat ion o f t h i sdi rec t ive and the st.at_! of peace s ix months.y /

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THE WH ITE HOUSE 20482WASHINGTON

SUBJECT: POLICY GUIDANCE: . POLICY ON REFORMING f1ULTILATERALPEACE OPERATIONSi a l Decision 25 es tab l i shed U.S. pol onreforming mu l t i l a t e r a l peace opera t ions. In s ign ing t h a tdocument, the President approved the fyl lowing pol icy guidance,which elabora tes on th e Direc t ive . .fC)

Deciding When Peace Opera t ions l a re Appropr ia te1 . The fac to rs in Annex I wi l l be considered v.'hen deciding

\-lhether to suppor t in t.he Secur i ty Counci l a proposed UNpeace opera t ion or to suppor t a regiona -sponsored peaceopera t ion. The fac to rs w i l l be an a id in decision-making,not alone a prescr ip t ive device. Decisions w i l l be based onthe cumulat ive weight of the f ac to r s , with no s fac to rnecessar i ly being an absolute determinant . The U.S. wil lshare a vers ion of Annex I with t ~ e UN and regionalorganiza t ions as appropr ia t e . ~2. In addi t ion , each UN peace should have a c l ea rmandate and spec i f ied t imeframe t i ed to in termedta te o rf ina l objec t ives as wel l as an accompanying sunse t provis ion,an in tegra ted pol I i well coordinatedwith humanitarian assist_ance ied t roop l eve ls

and a firm budget est imate . Once fundingarrangements are in placer the U.S. iden t i fy fundingsources to pay i t s assessed and/or voluntary share(s ) of apeace opera t ion before the U.S. votes to approve a mandate.,.;3 . The. Administrat ion wi l l cons ider t.he fac to rs in Annex II whenassessing whether to recommend t.he Pres iden t t h a t u. S.personnel in a given UN or regional opera t ion.The recommendation w i l l be based on the cumulat iveof the fac to rs , ,,,i th no s Ie fac to r necessar i ly being anabsolute determinant ~

s impl ic i ty , the term peace i s used int .his document to mean the en t i re ac t iv i t i e s fromt r ad i t i ona l to peace enforcement aimed a t defusingand coni l i c t s . Annex V IIdef in i t ions useful in the implement:at ion of th i s (U)9"8 R:g:;p.-Declass on:



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4, As a matter of pr inc ip le , the U.S. w i l l suppor t peaceopera t ions as a too l to provide windows o f oppor tuni tyto al low combatants to resolve t h e i r andfa i l ed soc ie t i es t ~ to themselves. Peaceopera t ions should not be open-ended commitments bu t insteadl inked to concrete p o l i t i c a l solut ionSi otherwise , theynormally should not be undertaken. U.S. w i l l urge theUN Secre ta r i a t and Secur i ty Counci l members to inr igorous , s tandard evalua t ions of a l l proposed new peaceopera t ions, with sp ec i a l a t t en t io n paid to the aforement ionedpr inc ip les . (U)

5. Applying the fac to rs in Annex I , the U.S, w i l l c lose lyscru t in ize a l l ex i s t i n g peace opera t ions when they come upfo r regular renewal by th e Secur i ty Counci l to assess thevalue of cont inu ing them. In addi t ion , in appropr ia te cases ,the U.S, w i l l seek voluntary cont r ibu t ions by benef ic i a rynat ions or enhanced hos t na t ion suppor t to reduce or cover ,a t l e a s t p a r t i a l l y , the cos t s of cer ta in UN opera t ions .Fina l ly , the U.S. w i l l cons ider vot ing ag a in s t renewal ofcer ta in longstanding peace opera t ions t h a t a re fa i l i ng tomeet es tab l i shed ob jec t ives in order to f ree mil i t a ry andf inancia l resources fo r more pressing UN miss ions . (U)

6. Due to our cur ren t resource co n s t ra in t s , any proposed newl a rge UN opera t ions must be scru t in ized ca re fu l l y t o ensuret h a t adequate resources can be made av a i l ab l e . .J9fThe Role of Regional Organizat ions7. In some cases , the appropr ia te way to perform peaceopera t ions w i l l be to involve regional organ iza t ions .In consider ing t h e i r ro le , our pol icy w i l l be: (U)

The U.S. wil l cont inue to emphas the UN as thei n t e rn a t io n a l body with primary au thor i ty to conductpeace opera t ions . At the same t ime, th e U.S. w i l lsuppor t e f fo r t s to improve reg iona l organ iza t ions 'peace opera t ions cap ab i l i t i e s . (U)When regional organiza t ions seek to conduct peacekeepingwith UN Secur i ty Council (UNSC) bless ing , U.S. suppor tfor UNSC endorsement w i l l be condi t ioned on the adherenceof the reg iona l ac t iv i ty to the pr inc ip les of the UNChar ter f the c r i t e r i a es tab l i shed by the UNSC and t.hefac tors discussed in Paragraph 1 above. ~In Europe, the U.S. w i l l look also to the Conferenceon Secur i ty and Cooperat ion in Europe (CSCE) and otherregional organiza t ions to dea l wi th problems t h a t couldbe resolved through l ow- in tens i ty peacekeeping. On acase-by-case bas i s , the U.S. w i l l suppor t e f fo r t s toensure t h a t CSCE r ece ives p o l i t i c a l and mate r i a l suppor tin i t s conf l i c t re so lu t ion e f fo r t s . ~



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CSCENATO has confirmed i t s preparedness to peaceopera t ions the au thor i ty of the URSCon a case case bas i s and in accordanceprocedures . The U.S. w i l l work to ensurepreserves the i n t eg r i ty of its command s t ruc tu rewhen opera t ing fo r the UN or CSCE and w i l l encourage nonmembers ( inc luding both former European neu t ra l s andformer Warsaw Pac t s t a t e s ) to as so c i a t e with the All iancefo r peace opera t ions. The U.S. w i l l t ake th e lead inacce le ra t ing cooperat ion on peace opera t ions within theNACC. ~

8. U.S. pol icy on r eg iona l in the Former Sovie tUnion i s out l ined in AnnexStrengthening th e UN9. The UN needs to improve s ign i f i can t ly its capab i l i ty tomanage peace opera t ions ef fec t ive ly as an in tegra ted whole.At presen t , each opera t ion i s crea ted and managed sepa ra te ly

by an unders taf fed UN Department of Peacekeeping Operat ions(DPKO). As a re su l t , suppor t to the f i e ld may s u f f e r ,economies of sca le are l o s t and work i s dupl i ca ted .St ru c tu ra l a t UN Headquarters , some of which a realready underway, would make a p o s i t i v e d i f fe ren ce . (U)The U.S. w i l l share with the Council permanentmembers, the Sec re t a r i a t and the UN General AssemblyCommittee of 34 and the Contac t Group of major peacekeepingcont r ibu tors as soon as poss proposals to strengt.hen UNpeace opera t ions. In making these proposals , We w i l l s t re s sour wil l ingness to make spec i f i c commitments and providegoods and serv ices . In genera l , we w i l l seek e i t h e r d i r e c tre imbursement fo r U.S. provis ion of goods and serv ices orc red i t aga ins t our assessments . In ra re i ns t ances , we maycont r ibu te goods, se rv ices and funds on a voluntary b as i s .Included in the package of U.S. proposa ls w i l l be: (U)A. Expanded Sta f f : The UN should improve and expand

the s t a f f of DPKO with the addi t ion o f a t l e a s t 100 sk i l l edc iv i l i an and mi l i t a ry personnel . Sta te , DOD and o t he r U.S.agencies w i l l offe r to d e t a i l on a voluntary b as i s approximately20 percen t of the t o t a l personnel required. Addi t ional ly , theU.S. w i l l ac t ive ly suppor t the Fi f th Committee of the GeneralAssembly proposals to redeploy resources with in the UN to enablethe ef fec t ive augmentation of DPKO along the l i n e s o u t lbelow. pSB. Turn-Key Operat ion: The U.S. wi l l o f fe r to provide astudy of fac i l i t y requirements fo r DPKO and based on t h a t s tudy I

if a new DPKO f ac i l i t y is needed, the U.S. w i l l propose t h a tconcerned nat ions make a f ac i l i t y avai lab le to the UN on a t u rn-key bas i s fo r the DPKO. This f ac i l i t y could house a l l theelements o f DPKO. ~



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c. Organizat ion: The U.S.DPKO the fol lowing divis ions: UN to

plans Division:- To address the planning problemsfacing UN , the 11 support thecrea t ion a profess iona l peace opera t ions headquar te rss t a f f fo r planning. peace opera t ionsplanning should be with reg iona l o rgan iza t ions .The u.s. w i l l provide ex p e r t i s e to the UN tost rengthen i t s planning fo r peace (U)Information and Research Divis ion: Th e DPKO s t a f f shouldinclude an Information and Research (IRD) t h a ti s l inked to f i e ld opera t ions in order to obta in andprovide curren t informat ion . The IRD s t a f f could o f fe ra range of useful suppor t , publ ishing a dai lyrep o r t fo r pr inc ipa ls in the UN, DPKO and f i e ldopera t ions. It should a lso manage a 24-hour c e l l tomonitor open source mater ia l and informat ion submissionsfrom governments. The Direc tor o f Cent ra lwil l es tab l i sh a s ing le poin t o f con tac t with DPKO/IRDand wil l provide as much suppor t aspossible while ensuring fu l l pro tec t ion of sources andmethods. ~Operat ions Divis ion: The UN's command and con t ro lcapab i l i t i e s , par t i cu la r ly in complex opera t ions , needsubs tan t i a l As a he lpfu l DPKO shouldinc lude a modern command, con t ro l and communications (C3)fac i l i t y and arch i t ec tu re t h a t are based on commercialsystems. The U.S. w i l l o f fe r t o design a C3 systemsarch i tec tu re fo r such a C3 f a c i l i t y and s o l i c i t membersto donate spec i f ied components or funds fo r the faci l i ty_At the same t ime, the U.S. w i l l continue to work with theUN and othe r member s ta tes to s t reamline command andcont ro l procedures and maximize ef fec t ive coord inat ion onthe ground. Logist ics Divis ion: Peace opera t ions should have t h e i rown mil i t a ry l og i s t i c s system. Th e U.S. en thus ias t i ca l lysuppor ts the t r an s fe r of the Fie ld Operations Divis ion(FOD) from the Department of Adminis t ra t ion andManagement to DPKO. To minimize cos ts by achievingeconomies of sca le , much of the UN's l o g i s t i c a lrequirements should be contrac ted on a compet i t ive bas isto a smal l number of commercial con t rac to rs . Thesecont rac t s should be re -b id on the bas is of andperformance on a regu la r bas is . (U)Civi l i an Pol ice Cel l : Th e U.S. w i l l urge the UN toacce lera te plans to improve i t s capaci ty to suppor t UNc iv i l i an pol ice operat ions and re la ted ef fo r t s to bui ldpol ice and j u d i c i a l i ns t i t u t ions as p a r t of UN peaceopera t ions. The UN should form a smal l s t a f f to managecurrent pol ice opera t ions; compile lessons learned inEI Salvador , Somalia, Cambodia and elsewhere, conduct



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planning and develop standard procedures, doctrine andt ra ining for pol ice support operat ions. (U)Public Affairs Division: The UN shouldenhance i t s peace operat ions publ iccapabil i ty by hir ing highly qualif ied, experienced,mult inat ional specia l i s t s to serve in New York and,par t icu lar ly , in the f ie ld . The U.S. wil l offer tode ta i l public affa i rs specia l i s t s to perform keypublic affa i rs functions within DPKO and help t ra inother countr ies ' nat ionals . (U)

D. Logist ics Support and s tar t -up Capabil i ty: To avoid theneed for cost ly regional stockpiles, the U.S., with other members ta tes , wil l of fer to ass i s t the UN DPKO to es tabl ish animproved, cost-effect ive log is t ics system to support UN peaceoperations, including a computer network to l ink the UN DPKO witha s ingle log is t ics off ice in each par t ic ipat ing nat ion. Usingt ha t computer network, the UN could request price andavai lab i l i ty data an d order from par t ic ipat ing s ta tes .A U.S. decision to respond to a UN for price andavai lab i l i ty data using th is system would be contingent upon aninteragency policy decision t ha t the U.S. would be will ing toprovide the supplies or equipment, acceptable arrangements forreimbursement and upon sa t i s fac t ion of a l l legal requirements forthe t ransfer of technical equipment. Continued U.S.part ic ipat ion in this system wil l be reviewed in l igh t of thelevel of part ic ipat ion by other member s ta tes . ~

The UN should consider establ ishing, by contract , a readyor standing a i r l i f t capabil i ty . The U.S. wil l develop aplan for such a capabil i ty and share it with the UN.possible solutions could include contract ing withcommercial firms or with member s ta tes such as Russia fora small number of heavy l i f t cargo a i rc raf t t ha t couldoperate channel f l ights to support peace operat ions andwould be avai lable for emergency deployments. ~To el iminate lengthy and potent ia l ly disast rous delays indeployment a f te r the UN Securi ty Council has authorizedthe dispatch of a mission, DPKQ should have a rapidlydeployable headquarters team, a composite i n i t i a llog is t ics support uni t , and open, pre-negot ia tedcommercial contracts for log is t ics support in newmissions. The U.S. wi l l not i fy the UN of forces orcapabi l i t ies it would consider on short not icefor the composite i n i t i a l log is t ics support uni t . UNSC~ o v a l would be required to deploy the log is t ics unit .The UN should develop a data base of speci f ic ,potential ly avai lable forces or capabi l i t ies tha tcould be made available for the fu l l range of peace andhumanitarian operat ions. The U.S. wi l l provide input tosuch a database by not i fying the UN of the speci f ic U.S.forces or capabi l i t ies tha t could be made avai lable for



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the f u l l spectrum of peace or opera t ions .U.S. f icat ion no way impl ies a commitment toprovide those forces , i f reques ted . Th e U.S. w i l lto design aa t a of mil i t a ry forces of members t a t e s tha t UN reques t be contr ibuted to aUN peace or humanitar ian . ~

Nearly as d i f f i c u l t as rap id ly iden t i fy ing andappropr ia te mi l i t a ry forces f inding qual i f i edpersonnel to serve in UN peace opera t ions . To reduce theUN's cos t ly re l iance on the of UN Headquartersto f i e ld miss ions , U.S. wi l l urge the UNSec re t a r i a t to es tab l i sh a t ra ined c iv i l i an re se rvecorps as a ready, ex terna l t a l e n t pool to a s s i s t in theadminis t ra t ion, management and execut ion of UN peaceopera t ions. (U)E. Tra in ing: The UN should es t ab l i sh a profess iona l PeaceOperat ions Tra in ing Program fo r commanders and othe r mil i t a ryand c iv i l i an personnel . The U.S. w i l l to he lp crea te and

es tab l i sh t h i s program, as wel l as promote peaceopera t ions t ra in ing , exerc i ses , s imula t ions and l eade rsh ipdevelopment. The U.S. wi l l a lso crea t ion o fcorrespondence courses , along the success employedwith in the U.S. mil i t a ry , in order to make peace opera t ionsins t ruc t ion widely avai lab le a t low co s t . The u.s. o f fe r topar t i c ipa te in peace opera t ions t ra in ing e f fo r t s and of fe r th euse of U.S. f a c i l i t i e s . ~F. Protec t ion of UN Peacekeepers and UN Peace Enforcers :The U.S. remains concerned t h a t , in some cases , captured UNpeacekeepers and UN peace enforcers may not have adequateprotec t ion under in te rna t iona l law. The U.S. be l i eves t h a tindividuals captured while performing UN peacekeeping or UN peace

enforcement a c t i v i t i e s , whether as members of a UN force or aU.S. force executing a UN Secur i ty Counci l mandate, should, as amatte r of po l i cy , be immediately re leased to UN o f f i c i a l s i unt i lre leased, a t a minimum they should be accorded pro tec t ionsiden t i ca l to those afforded pr i soners of war under the 1949Geneva Convention I I I (GPW). The U. S. w i l l genera l ly seek toincorporate language in to UN Secur i ty Councilreso lu t ions es tab l i sh o r extend peace opera t ions order toprovide adequate l eg a l p ro tec t ion to captured UN peacekeepers .In appropr ia te cases , the U.S. would seek assurances t ha t U.S.forces ass i s t ing the UN a re t r ea t ed as exper t s on mission for theUnited Nations and thus a re en t i t l ed to appropr ia te pr iv i l egesand immunities and are sub jec t to immediate r e l ease whencaptured . Moreover, Adminis t ra t ion i s ac t ive ly involved innegot ia t ing a d ra f t in te rna t iona l convent ion a t the UnitedNations to provide a spec ia l in te rna t iona l s t a tus fo r individualsserving in peacekeeping and peace enforcement opera t ions under aUN mandate. Fina l ly , the. Adminis t ra t ion wi l l take appropr ia tes t eps to ensure t h a t any U.S. mil i ta ry personnel captured whileserving as p a r t of a mul t ina t iona l peacekeeping or peaceenforcement e f f o r t a re immediately re leased to UN au t h o r i t i e s .(U)



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G. Reducing UN Costs : The U.S. concerned t h a tUN has not sa t i s f ac to r i ly r ec t i f i ed i n e f f i c i en c i e sthat . r e s u l t in excessiv' cos t s and, on occasion , f raud and abuse.As a matter of p r i o r i t y , the U.S. w i l l cont inue to work fo rdramatic adminis t ra t ive and management improvements in the UNsystem. As a f i r s t s tep , the U.S. welcomes the crea t ion of anInspect ions and Inves t iga t ions Unit . However, the U.S. remainswholly committed to the immediate es tabl ishment of aindependent Inspec tor with overs igh t respons ib i l i t h a tinc ludes peacekeeping. (U)Th e U.S. w i l l press fo r a r educ t ion in the U.S. peacekeepingassessment to 25 percen t by January 1996 and inform the UN of theCongress ' possible r e fu sa l t o fund U.S. peacekeeping assessmentsa t a ra t e higher than 25% a f t e r January 1996. w i l l a lsohe U.S.urge ea r ly cons ide ra t ion th e Contact Group andimplementat ion by the Secretary-General of the package of UNpeacekeeping f inancing and budget management reforms l i s t e d inAnnex I I I . (U)The U.S. w i l l use i t s voice and vote in the Committee ofthe General Assembly of th e United Nations to conta in cos t s of UNpeacekeeping opera t ions once they a re author ized and underway.In addi t ion, in es tab l i sh ing o r renewing UN peace theU.S. w i l l requ i re t h a t cos t con t ro l measures be among those i temsrepor ted on in the Secre tary Genera l ' s per iod ic repor t s . TheU.S. w i l l i n s i s t on r igorous reviews of peace opera t ions with aview to te rminat ing those t h a t a re not success fu l o r havei n s u f f i c i en t prospect of meet ing t h e i r objec t ives .

H. Emergency Humanitarian Assis tance: Often humanitarianr e l i e f must take place in a peacekeeping contex t . Indeed, a tt imes , humani tar ian ass i s tance may be among the primary reasonsfo r deploying a peace opera t ion. The U.S. w i l l urge the UN toimplement rapidly the proposals in Annex IV to improvecoordinat ion among the UN's peacekeeping and humanitarian r e l i e forgans. Th e U.S. w i l l d e t a i l experienced mi l i t a ry and c iv i l i anpersonnel to the UN as appropr ia te to enhance the exper t i se of UNhumani tar ian agencies and to provide surge capaci ty in t imes ofhumani tar ian . ~I . Peace Negot ia t ions : As th e complexi ty and number ofpeace opera t ions has inc reased , the l ack of adequate coordinat ionbetween UN negot i a to rs and those in UN Headquarters (UNHQ) whow i l l implement eventual peace se t t lements has become espec ia l lyproblemat ic . To improve advance coordinat ion, th e u.s. w i l l urge

the UN to es t ab l is h c l ea r terms of reference fo r UN negot i a to rst h a t out l ine opera t iona l co n s t ra in t s and l i m i t th e nego t ia to r ' sab i l i t y to commit the UN the context of peace negot ia t ionswithout the e x p l i c i t consent of the UNse. When conduct ingnegot ia t ions t h a t may r e s u l t in poss ib le peace o p e r a t i o n ~ ~UN negot ia tors should have on-hand UN mi l i t a ry advice . J



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strengthening U.S. Support for Mult i la te ra l Peace Operations10. The U.S. Government must enhance i t s capabi to manage andsupport UN and other peacekeeping organizat ionsand must ensure t ha t it able to fund our peace operat ionsobl igat ions adequately. Towards th i s end, the USG wil l dothe f o l l o w i n g : ~

A. Organizat ional Changes: The Secre tar ies of s ta te andDefense wil l be jo in t ly responsible for obtaining adequateoperat ions funds and fo r managing day-to-day U.S. supportin te rna t iona l operat ions . Decision-making authori ty andsupport for UN peace operations wil l be a shared responsibil i tyas la id out below and in the Chart in Annex V. In a l l cases , theagency with lead respons ib i l i ty fo r a given operat ion wil l beresponsible for assessments associa ted with t ha t operat ion. Ina l l cases, the conduct of diplomacy and ins t ruc t ions to embassiesand our UN Miss io r :y New York wi l l remain a State Departmentrespons ib i l i ty . ~ )unless the President determines otherwise, a t the request of oneof the principals : (U)

The State Department wi have lead respons ib i l i tyfor the overs ight and management of those VIpeace operations in which U.S. combat uni t s are notpar t ic ipa t ing . The Administration wil l seek to fund theassessments for these operations through the exist ingState Contributions for In te rna t iona l Peace Act iv i t ies(CIPA) account, and; (U)The Defense Department wil l have lead respons ib i l i tyfor the oversight and management of those Chapter VIoperat ions in which there are U.S. combat uni t s and fora l l Chapter VII peace operat ions . The Administrationwil l seek to fund the assessments for these operationsthrough the establishment of a new CIPA account withinDOD. Once a DOD CIPA account i s establ ished, DOD mayreceive d i rec t reimbursement from the UN forcontr ibut ions of goods, services and troops to UN peaceoperat ions . (U)

Since peace operations are nei ther wholly mil i ta ry nor whollypo l i t i ca l in nature, consist ing instead of mil i ta ry , pol i t i ca l ,humanitarian and developmental elements in varying degrees, noone agency alone can manage a l l facets of an operationeffec t ive ly . Therefore, the designated lead agencies wil l engagein fu l l and regula r interagency consul ta t ion as they manage U.S.support for peace operat ions . In addi t ion , each agency wil l beresponsible for ensuring t ha t a l l appropriate funct ional bureauswithin the i r departments (such as the State refugee bureau or theDOD humanitarian bureau) are fu l ly invo lved ' decision-makingre levant to t he i r areas of competence .

SER'B'f


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-SECRETThe National Security Council wi l l continue to theCore Group (PCG). The PCGmake recommendations to the Deputies Committee on U.S. policy onpeace operations and u . ~ * support for and par t ic ipat ion in newand on-going UN opera t ions. In addit ion, the PCG wil l overseeinteragency management of U.S. support peace operations.When meeting to consider U.S. support for new and continUingoperations, the PCG wil l invi te representat ives of the regionaloffices of the various departments to at tend, and the regionalInteragency Working Group (IWG) leader wil l serve as deputy chairof the meeting. When lead agencies have been designated forspecif ic peace , those agencies may continue to chairindividual IWGs.

B. Reimbursements from the UN: The Departments of s ta te andDefense shal l credi t UN reimbursements to the 050 and 150 budgetfunctions according to the procedures in Annex VI. ~ S 1 'C. U.S. Funding of UN Peacekeeping: In the shor t term, theAdministration wil l seek Congressional support for funding the

USG's projected UN peacekeeping arrears . Over the long run, weview the shared responsibil i ty approach outl ined above as thebest means of ensuring improved management and adequate fundingof UN peace operations. (U)The Administration wil l make every e f for t to budget adequatelyfor knovm peacekeeping assessments and to seek Congressionalsupport to fund, in the annual appropr ia t ion, assessments fo rclearly anticipated contingencies. (U)

D. Legislat ive Changes: The Administration wil l beginimmediate conSUltations with Congress to seek to move the StateClPA account from the Commerce, Jus t ice , State (CJS)Appropriations Subcommittees to the Foreign OperationsAppropriations SubcoID.'Tlittees. In addit ion, a t some futureappropriate t ime, the Administration wil l seek the followinglegislat ive changes: ~Amending Section 7 of the UN Part ic ipat ion Act toremove the l imita t ions on deta i l ing personnel to the UNin Chapter VI operations and then, to the extent tha t iti s pol i t ica l ly feasible, to delete the prohibi t ionagainst using tha t sect ion as author i ty to s u p p o ~ ~Chapter VII operations and combatant missions. ~ )Amending DOD's author i ty to provide cross-servicing topeace operations {10 U.S.C 2341 e t seq.) to simplify thecurrent procedures (FAA Sec. 607 AECA). ~Obtaining permanent extraordinary t ransfer author i ty toallow the President to t ransfer up to $250 mil l ion ofcurrent year or unexpended pas t year funds in ternal lywithin the 050 function or internal ly within the 150function to s u ~ ! ) O r t urgent international peacekeepingac t iv i t i e s . ,..k8')



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1

E. U.S. Forces : w i l l notre l inqu i sh command over U.S. fo rces . On a case -casebas is , Pres iden t w i l l cons ider plac ing U.S.forces and personnel under t he ope ra t iona l o f a competentUN commander fo r ic UN opera t ions by theSecur i ty Council . In making t h i s ,President w i l lt ake i n to account such fac to rs as the na ture o f U.S.the s i ze of the proposed U.S. fo rce , the r i s k to U.S. personnel ,the proposed durat ion of the miss ion and ru l e s of engagement andthe nature and mandate of the opera t ion ( including whether it i sChapter VI o r Chapter VII ) . Such act ion w i l l be undertakencons i s t en t 'i"iith the U.S. Const i tu t ion , U.S. fede ra l law and theUniform Code of Mil i t a ry Ju s t i ce . The g rea t e r the U.S. mi l i t a ryro l e , the l ess it w i l l be t h a t th e U. S. w i l l ag.ree to havea UN commander o v era l l c on t r o l over U.Sfo rces . Any l a rge -sca le p ar t i c ip a t io n of U.S. forces in a majorpeace enforcement opera t ion t h a t l ike ly to combatshould ord ina r i ly be conducted under U.S. command and opera t iona lcont ro l o r th rough competent r eg iona l o rgan iza t ions such as NATOo r ad hoc co a l i t i o n s . )p">Even when the P res iden t determines t h a t U.S. forces beplaced t emporar i ly under the opera t iona l con t ro l of a UNcommander, the fundamental elements of U.S. command w i l l apply ,includ ing : y 1

The so le source of l eg i t imacy fo r U.S. commandersf lows from the Cons t i tu t ion o f th e United Sta t e s ,U.S. fede ra l law and the Uniform Code ofJu s t i ce . )1'1The chain of command from the Pres iden t to thelowes t U.S, commander in the f i e ld must remaini n v io l a t e . .yt)U.S. commanders w i l l mainta in the cap ab i l i t y torep o r t to higher U.S. mi l i t a ryau t h o r i t i e s , as wel l as to the UN commander. ~Commanders of U.S. mi l i t a ry u n i t s p a r t i c ip a t in g in UNpeace opera t ions w i l l r e f e r t o higher U.S. au th o r i t i e sorders t h a t a re i l l e g a l under U.S. or i n t e rn a t io n a l lawor a r e ou ts ide the mandate of the mission to which theuni ted Sta tes agreed with the UN, if they a r e ~ n a b l e tor eso lve the mat te r with th e UN commander. (.Q1The U.S. r ese rves the r i g h t to t e rmina te thep ar t i c ip a t io n of U.S. personnel in the peaceoperat ion a t any t ime and to t ake whatever a c t i onsit deems necessary to p r o t e c t them if they a reendangered. ~U.S. un i t s w i l l a t a l l t imes remain under U.S.adm inis t r a tive con t ro l fo r pur ses such asd i sc ip l in e and eva lua t ion .



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It important to bui ld publ ic and Congress ional suppor t fo rUN peace opera t ions, pa r t i cu la r ly those in which U.S. forcesp a r t i c i p a t e . Accordingly, we w i l l take s teps to ensurei s regu lar ly and fu l ly b r i e f ed on such , and, whereverposs ib le , consul ted about the of u.s. Armed Forcesin them. (U)

F. Art ic le 43 Stand-by Agreements: The U.S. not pursueany Art ic le 43 agreements with the UN a t t h i s t ime. Therecommendations contained in t h i s document a re a workable,pre fe rab le a l t e rna t ive to Ar t i c le 43 agreements a t th i s t ime.Y' G. U.S. Par t i c ip a t io n in UN Fie ld Assessments: To theex ten t poss ib le , U.S. personnel should accompany UN assessmentteams dispa tched to the f i e ld to ver i fy the f ea s ib i l i t y and cos tef fec t iveness of fo r UN peace opera t ions .H. U.S. Trainina: The Armed Forces w i l l include appropr ia tepeace operat ions/emergency humanitarian ass i s tance t ra in ing in

appropr ia te DOD t ra in ing programs as needed to ensure the U.S.has adequate mil i t a ry forces and cap ab i l i t i e s avai lab le toconduct o r p a r t i c i p a t e in the fu l l spectrum of peacekeeping andhumanitar ian opera t ions. Individual serv ices w i l l cont inue toconduct appropr ia te peace opera t ions and humanitar ian ass i s tancet ra in ing pursuant to Ti t l e X, U.S. Code re spons ib i l i t i e s .Training U.S. forces to f igh t and decis ive ly win wars wi l l ,however continue to be t he h ighes t t ra in ing pr io r i ty . ,j,.ilrf'Implementation11. To implement the recommend9Xions conta ined here in , agencies w i l l do the fol lowing: ~ )

A. Within 60 days, OMB, JCS, OSD and Sta te , wi l lproduce an est imate of the cos t of the proposed U.S. reformpackage and the budgetary i m p l i c a t i ~ ~ o f the u.s. cont r ibu t ionsof goods 1 se rv ices and personnel . ,...kO)B. As soon as possible t h e rea f t e r , USUN w i l l presen t o rreaff i rm U.S. proposa ls fo r UN peacekeeping reform i n i t i a l l y tothe Permanent Members of the Secur i ty Council and then to theSecre tary General . These proposals wi l l cons t i tu te the USG'sconsidered response to the Secre tary Genera l i s 1992 fo rPeace i n i t i a t i v e , bui ld ing upon the sugges t ions t h a t U.S.made to the P-4 in January 1993. USUN should continue i t se f fo r t s to ensure t ha t a Min i s t e r i a l Session of the UNSC i s held

a t an a p p r o p ~ ~ t e t ime to adopt a package o f peace opera t ionsproposals . r JC. USUN wil l urge the UN to coordinate a mu l t ina t iona l pledging ac t iv i ty , focusing on Japan and Germany, to expand the DPKO as descr ibed above. )-81



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D. Within 90 10MB, JeS, OSD and Sta t e w i l l completea s tudy of whether or no t it i s p rac t i ca l the U.S. tocont r ibu te a g r e ~ 7 r New York area USG f ac i l i t y to house theexpanded DPKO. ~ ) .-

E. Within 90 days , OMB/State/OBD w i l l complete a s tudy ofthe v i a b i l i t y of a number of add i t iona l proposals to improve UNpeacekeeping f inancing and budget management. ~F. As spec i f ied in Annex IV , with in 90 I angroup chai red by AID ",rill make spec i f i c recommendations fo renhancing the humanitar ian ass i s tance cap ab i l i t i e s of the UN andthe USG in the con tex t o f peace Recommendations w i l lbe presen ted to the in teragency Core Group. ~

G. The OSD and JCS w i l l immediately review t h e i rorganiza t iona l s t ru c tu res t h a t cur ren t ly suppor t peace opera t ionsand augment them as necessary by reassignments to ensure t h a tt he re are adequate personnel to suppor t DOD's newr e s p o n s i b i l i t i e s fo r managing and funding peace opera t ions asout l ined above. ~H. The peacekeeping Core Group w i l l review the sepa ra tequest ion of rapid reac t ion cap ab i l i t i e s once t he re l evan t U.S.recommendations have been presen ted to the UN and, to t he ex ten t

t implemented and eva lua ted . )I!5f12. The in teragency Peacekeeping Core Group s h a l l moni torimplementation of t h i s PDD. The Secre ta ry of Sta t e and theSecre tary of Defense s h a l l submit to th e Pres iden t throughthe Assi s t an t to the P res iden t fo r Nat ional Secur i ty Affa i r s

a j o in t , semi-annual repor t , beginning months from today,on the s ta tus of i m p l e m e n t a t i o ~ o f t h i s di rec t ive and on thes t a t e of peace opera t ions . ~ )13. All decis ions to approve a vote i n the UN Secur i ty Council infavor o f a new UN peace opera t ion w i l l be made by aninteragency group, a t l e a s t a t the Deputies Committee l ev e l ,

taking in to a ~ ~ n t ava i l ab le ana lys i s by the PeacekeepingCore Group. ~ )



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20482ANNEX I

A. UN involvement advances U.S. i n t e r e s t s , and there i s anin te rna t iona l community of i n t e r e s t fo r dea l ing with theproblem on a mult i basB. There i s a t h r e a t to or breach of in te rna t iona l andsecu r i t y , often o f a regional charac ter , as one or acombination of the fol lowing:

in te rna t iona l aggression;a humanitar ian te r urgent ac t ion ,coupled with vio lence;sudden and unexpected of es tab l i sheddemocracy or gross vio la t ion human r i g h t s , coupledwith vio lence or the t h rea t thereof .

c. There a re c l ea r objec t ives , an unders tanding ofwhere the mission f i t s on the between t r a d i t i o n a lpeacekeeping and peace enforcement.D. For peace opera t ions t h a t are not i c i t l y author izedunder Chapter VII , a c e a s e ~ f i r e be in place and theconsent of the pa r t i e s to the conf l i c t obta ined before theUN Secur i ty Counci l author izes loyment of thepeacekeeping opera t ion.E. For peace enforcement opera t ions, authorized under ChapterVII, the t h rea t to i n t e rn a t io n a l o r peace andsecur i ty i s s ign i f i can t .F. The means to accomplish the mission a re avai lab le , inc ludingforces ! f inanc ing and a mandate (reg.tonal or UN) appropriat .eto the mission.G. The p o l i t i c a l , economic and humanitar ian consequences ofinac t ion by the in te rna t iona l community have beenand are considered unacceptable .H. The opera t ion ' s an t ic ipa ted durat ion i s t . ied to c l ea r

objec t ives and r e a l i s t i c c r i t e r i a fo r ending the opera t ion.

LIBRARY mOTOCOPY



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Pa r t i c i pa t i on advances U.S.and r i sks to Americanand are cons idered (U)

20482 ANNEX I I

A. and both the uniquehave been weighed

B. Funds, personne l and o the r r esou rces a re a va i l a b l e fo r U.S.p ar t i c ip a t io n . (U)C. U.S. p ar t i c ip a t io n i s necessary fo r the success of themission o r to ~ ~ s u a d e o the r na t ions o r za t ions top a r t i c i p a t e . yt'}D. The ro le of U.S. forces i s t i ed to c l ea r e c t i ve s and anend po in t fo r U.S. p ar t i c ip a t io n can be i d e n t i f i e d . (U)E. There i s domest ic p o l i t i c a l and Congress ional suppor t fo rU.S. p ar t i c ip a t io n , or such suppor t can be marsha l led . (U)F. Command and c on t r o l arrangements governing the p ar t i c ip a t io nof American and fore ign forces are acceptab le to the U.S.(0)

Addi t ional Factors to be Considered fo r Si gn i f i c a n tU.S. Involvement in Chapter YII Peace Enforcement Opera t ionsAny - sca le p ar t i c ip a t io n of U.S. forces in a major peaceenforcement t h a t i s to involve combat shouldord ina r i be conducted under U.S. command andc on t r o l , th rough competent r eg iona l NATO orad hoc co a l i t i o n s . In some r a r e i n s t a nc e s , hm.,rever thes i t ua t ion might. d i c t a t e th e s i g n i f i can t use of o. S. force in anin ternat . ional peace enforcement co a l i t i o n ac t ing under theof th e United Nations Secur i ty Counci l pursuant to Chapter VII.In such ins tances , the fo l lowing condi t ions wouldapply. .Jl"'f

ab le to commit s u f f i c i e n t forces to achieve ourdef ined p o l i t i c a l and m il ec t iv es . j.Jd{G.

H. We par t : ic ipate with the c l e a r , t e n t i o n of dec isachiev ing these objec t ives . y)1 . The re l a t ionsh ip among the s i ze , compos i t ion , anddi spos i t ion of forces we have committed and our objectiv:::.....i s cont inua l ly r eassessed and, i f necessary , ad jus ted . ~ )

such as

We are

Declass on:


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to

20482ANNEX I I I

Financing ReformsEnable countr ies to reduce t h e i r assessedrece iv ing c red i t fo r in - cont r ibu t ionsse rv ices over and above those assoc ia ted withhave provided to a pa r t i cu la r opera t ion . The amount ofkind contribut_ions each member s ta te can c red i t should bel imi ted to 30 percent of i t s assessed payment fo r t ~ h e peaceopera t ion . yr)Consider revis ing the spec ia l sca le ofassessments to base it on a -year average of nat ionalincome of the c u r r e n t IO-year average . (U)Rat ional ize or e l imina te Group C (middle-income count r ie s )so t h a t a l l or some of these member s t a t e s pay t he i r regularbudget r a t e . the spec ia l ra t e fo r Group DJ l e a s tdeveloped count r i e s . The membership of Group D should bera t iona l ized t.O re f l e c t cu r ren t na t iona l income l eve l s .These changes are necessary to take account of c u r r e n tre l a t ive nat ional incomes. (U)

member s t a t e s with high GNPs (e .g . , Japan, ) andcount r i e s d i r ec t l y benef i t . t ing from peace opera t ions( inc luding hos t s t a t e s and s t a t e s loca ted within the region)to make s i g n i f i can t cash and in-kind cont r ibut ionsto reduce the cos t of peace opera t ions. JJ?1As th e Pres iden t has s t a t ed , the U.S. i s committed toreducing i t s assessment fo r peacekeeping opera t ions to 25%.The U.S. w i l l cont inue to r e i t e r a t e t h a t pos i t ion within theUN, as Congress has di rec ted . (U)Budget Hanagement ReformI f by December 1994, FOD has no t su f f i c i en t ly improved i t sbudget management , the SYG should s e t up a nevi,independent budget prepara t ion/execut ion off i ce in the UNDepartment of Peacekeeping Opera t ions . The USG ShOllld o f fe rto de ta i l highly q u a l i f i ed s t a f f on a non-reimbursable bas i sto UN HQ th i s purpose. ~Crea te spec ia l budget t .echniquesopera t ions inc luding: use of s tandardized cos t (based on ac tua l market clng) fo r common e

-eONFIDEN'1'lALDeclass i fy on:



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peacerequirements ;fac to rs t which vl0u-Idto est imate

"valua t ion"to enablein-kindcont r ibu t ions . (U)Estab l i sh a s tanding budget from members t a t e s , top contr ibut ing count r ies , to as s i s tthe UN in developing cred ib le budgets and f i n an c i a lThis vmuld enable the rna or cont r ibu t ions t.O take an ac t ivero le in co s t -e f opera t ions . It would alsoprovide member s t a t e s v l i t h ear ly! deta i l ed knowledge ofmission cos t s and help bui ld cred ib i l i ty fo r the es t imateswithin member governments. {Enlarge and expand the cur ren t revolving PeacekeepingReserve Fund (PRF) to $500 mil l ion with voluntarycontr ibut ions to help f inance the s ta r t -up cos t s of UN peaceopera t ions pending r ece ip t of assessed con t r ibu t ions . (U )Revise the UN's procedures to al low $10 mil l ion o r 20percent , whichever i s grea ter , of the i n i t i a l est imated co s tof a to be obl iga ted , with the concurrenceof Committee on Adminis t ra t ion and Budget.aryQuest ions (ACABQ), once it i s approved by the Secur i tyCounci l . This ,,;ould enable the UN t.O cover quickly th etyp ica l ly high s t a r t up cos t s of and con t rac t fo rlonger lead t ime i tems. Current. procedures al low $10mil l ion to be obl iga ted without spec i f i c approval of theGeneral Assembly. (U)

the UN to have a s t a t u s of forces agreement t ha tprovides hos t nat ion support to a peaceopera t ion with t.he except ion of countr ies where there is nocen t ra l government (e .g . , Somalia) . The shouldensure t h a t the hos t country provides necessary l o ca lf a c i l i t i e s on the most favorable terms (e .g . ,accommodations, suppl ies and l o ca l t r an sp o r t a t no chargewhen poss ible) and o f fe r s the UN the most favorable l ega lexchange ra t e . .Jll1Prohibi t the UN from "borrowing t' from peacekeeping funds tof inance cash shor t fa l l s in regu lar [IN admin i s t ra t iveopera t ions. Peacekeeping assessments should maintainedin separa te accounts and should not be used - - eventemporari for regular UN a c t i v i t i e s . (

the UN to cons ider es tab l i sh ing an uni f ied peaceopera t ions budget in conjunct ion with a cont ingency reservefund, by a s ing le annual peacekeeping assessment .A uni f i ed budget. should be accompanied by more andt imely cos t account. ing to t rack andensure ef fec t ive management. (D)



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20482ANNEX IV

The UN should t.ake a number o f e a r l y s t e ps to improve coord inat ion bet'l"leen i t s peacekeeping humani t a r i an ass i s t ance e f fo r t s : (U) 1. Estab l i sh c l ea r l i n es of au tho r the f i e l d between a Spec ia l Represen ta t ive of the -General and the humani ta r ian , peacekeeping and components of an opera t ion . Within the humani tar ian component, des a Humanitarian Coordina tor fo r a c r i s i s or country and es t ab l i sh h i s / he r r o l e and wi th respect . to lIN agencies and t h e i r irnplernenti.ng pa r t ne r s , other i n t e rn a t io n a l and non governmental organiza t ions . (U) 2. Consider the c r ea t ion of a Donors! Overs ight Committee to improve monitoring of humani tar ian programs. (U) 3. Implement a system to by U.S. exper t s t h a t

enables the UN to quant i fy t rack needs as they a r i s e inthe f i e ld as wel l as i n t e rn a t io n a l responses to those needs(from the emergency s i t e , donor c a p i t a l s and UN HQ). USAIDhas a f inanced the i n i t i a t i o n of t h i s fo r useby the UN r e l i e f agencies . (U)4. Request as needed the of fu l l - t ime U.S. and other member s t a t e s ' mi l i t a ry or c i v i l i an exper t s to the Department of Humanitar ian Affa i r s (DHA) and o the r UN humani tar ian agencies and th e :rapid ad hoc d e ta i l i n g of exper ienced personnel fo r surge c ~ a c i t Y / t a s k force membership in t imes o f c r i s i s . yc) 5. U t i l i ze a data bank to be des igned the U.S. of Americanpersonnel and t echn ica l resources , includ ing government andpr i va t e ind iv idua ls or organiza t ions with

var ious f ace t s of humanit.arian as s i s t an ce . Request o the r>ember s t a t e s to augment t h i s database ~

6. Improve coord inat ion among the Humanitarian Affa i r s , Peacekeeping and P o l i t i c a l Departments a t UN Headquar ters . (U )

In addi t ion , AID, with ives from Sta t e , Defense andAgr icu l tu re should formulate d e ta i l ed proposals fo r enhancinq thehumani tar ian ass i s t ance cap ab i l i t i e s of the USG and UN in thecon tex t of peacekeeping Recommendations should bemade to the Core Group with in 90 days . InI the humanitar ian working group should recommend improvements in USG capac i ty t o con t r ibu te to t.he

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implementation of human in tenren t ions ; examine means toenhance monitoring and respec t human r igh t s and humanitarianlaw in the context of peace opera t ions; the implicat ionsof consol the UN-'s humanitarian r e l i e f a c t i v i t i e s ino r Geneva; consider ways to improve informationoperat ional coord inat ion ; consider ways toto provide more t special izedto DHA and other UN humanitarian agencies , determineDRA needs i t s own contingency planning capaci ty; andpropose process for fu ture evaluat ion progress made by DRAin fu l f i l l i ng i t s mandat.e. Ultimately" the U.S. wi l l the

UN SYG with a non-paper recommending ways to enhance UN and DHA'smanagement and opera t iona l e f fec t iveness . J91



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20482ANNEX V

KEY ASPECTS OF THE SHARED RESPONSIBILITY MODEL

ChampionPeacekeeping Core Group Chairs ta r t /Termina te an

P o l i t i c a l AssessmentMil i t a r y AssessmentF ina l Recommendation

Day-to-Day Conduct of Opera t ionsConduct of Diplomatic E f f o r t sIden t i fy ing Funding Sources

Source of FundsUN Assessmentsvolunta ryDOD aSH (vJhich i s re imbursedby UN)

Author iz ing Committees

Appropr ia t ing Subcommittees

*El imina te ro le of CJS i f poss ib le

Sta te + DODNSCDeput ies Coromi t t .eeSt a t eDODSt a t e + DODLead AgencySt a t eLead

St.ate DODs t a t e + DOD

DODHFAC/HASC

Opera t ionsor CJS*Armed Serv ices

on;



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20482ANNEX VI

Reimbursement Po l i cy fo r U.S. Cont r ibu t ionsto UN Peace Opera t ions

There i s in te ragency agreement t h a t th e U.S. should be re imbursedby the un i t ed Nations (UN) when DOD t r oops , supp l i esor se rv ices t o assessed UN peace opera t ions . As a mat te r ofpo l i cy , u n t i l t.he l a t i o n pr ov id ing th e DOD CIPA account i senac ted , the Execut ive Order and o the r r e l e va n tau th o r i t i e s a re in p l a c e , and DOD has r ece ived CIPA

a p p r o p r i a t i o m ~ : . . . K S t a t e and DOD have agreed to th eprocedures: ye.} In th e sho r t te rm, Stat .e and DOD w i l l cont inue to cons ider each assessed UN peacekeep .opera t ion on a case by-case bas i s . )J/'{'

a . DOD Troop When DOD d e t a i l s fo rces toassessed UN under e i t h e r VI o rChapter VII the UN Char te r , the U.S. sha1 seek thenormal re imbursement to which all t roop c on t r i bu to r s a ree n t i t l e d ( cur r en t ly $ 988/ t roop/monthi or $1279/troop/mont.hfo r s p e c i a l i s t s , p lus o the r r e l a t e d i nd iv idua l al lowances ,e . g . , c lo th ing and ammunition a l lowances) . (U)Such reimbursement., in excess of DOD component inc rementa lt roop cos t s ! could be to th e e x t e n t provided underex i s t ing s t a t u t e s , t o o f f s e t the USG's peacekeep ingassessment - paid from th e Sta te peacekeeping account . ~b. DOD Goods and Serv ices : When DOD provides goods orse rv ices (e .g"! lift... l o g i s t i c s suppor t , medica l ortechnica l se rv ices ) to assessed UN peacekeeping opera t ions ,DOD s h a l l seek direc t . re imbursement from the UN. (U)

DOD and S ta t e w i l l consu l t in excep t iona l s i t u a t i o n s which mayr equ i r e waiver of re imbursement . In such excep t iona lc ircumstances , when DOD and Sta te ag ree , DOD would waivere imbursement . As a matt .er of pol icy { when re imbursement i swaived, the USG w i l l not seek to c r e d i t th e value of DODcont r ibu t ions of t roops , goods and s e r v i c e s a ga i n s t the USG UNassessment S ta t e and Defense agree t h a t we should cont inue tor eso lve t hese i s sues on a case-by-case ba s i s . ye1In the te rm, the Adminis t ra t ion w i l l handle re imbursementsfo r con t r ibu t ions of U.S. t roops! goods and s e r v i c e s inaccordance with e x i s t i ng l a t i o n and such ne w l eg i s l a t i o n asmay be enac ted . Reimbursement fo r c on t r i bu t i ons o f U.S. t roopsin excess of increment .a l cos t s w i l l or d i na r i l y be c r e d i t e d to theCIPA account of the agency which has l ead r e spons i b i l i t y fo r a

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In pursuing the aboveoppose any to authorize andfunds to Sta te to pay forto t ransfer State

ac t iv i t i e s

DODother re for(U)wil ldi rec t the t ransferassessments; orto pay fo r DOD



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20482ANNEX VII

Defini t ions

This annex def in i t ions use implementingPolicy Guidance: U. S. Polan Reforming Mul t . i l a t e ra l PeaceOperations."

Actions taken by the United under the au thor i ty ofChapter VI or Chapter VII of the United Nations Charter!regionai arrangements pursuant to VIII of the UNor by ad hoc coal i t ions pursuant to a UN Councilresolut ion under the author i of Chapter VI or VII of the UNCharte r or cons is ten t ,\,1ith VI of the UN Char ter in orderto preserve, maint.ain or res to re the peace.Preventive DiplomacyDiplomatic taken to resolve disputes before violencebreaks out .

Deploy"'TIlent of neu t ra l mil i t a ry and/or c iv i l i an '.vi th theconsent of the s t a t e or s ta tes involved and! more recen t ly , ofa l l s ign i f i can t to the in order to a s s i s t inpreserving or maintaining the peace. These a re t r ad i t i ona l lynon-combat operat ions (except for the purpose of se l f -defense)and are normally undertaken to monitor and f a c i l i t a t eimplementation of an t ruce agreement and in support ofdiplomat ic e f fo r t s to achieve a l a s t ing p o l i t i c a l se t t lement ofthe disputePeace Enforcement (Chapt.er VII Peace Operations)Actions the use of force o r the t h rea t of the use offorce, by the United Nations Secur i ty Council underChapter VII of the UN Char ter , to preserve , rna o r res torein te rna t iona l peace and sec u r i or address of the peaceor acts of aggression. Such do not requ i re theconsent of the s t a t e ( s ) involved or of other pa r t i e s to theconf l i c t .

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20482ANNEX VIII

1 . The Adminis t ra t ion w i l l c ons u l t a t i ons with theb ip a r t i s an l eader s and sen ior of the re l evan tcommittees of both Houses of Congress , as was begun l a s t year , t:oascer ta in Congress iona l vie\vs when it i s giving se r iouscons ide ra t ion to deployment of U.S. mi l i t a ry un i t s in a UN peaceopera t ion . Such c ons u l t a t i ons w i l l normally cover th ean t i c ipa ted UN command and cont ro l arrangements , the U.S.mi l i t a ry ro l e , the na tu re of the mission , i t s expected durat ionand how such deployment serves u.s. na t iona l Asreasons of na t iona l d i c t a t e , th e Adminis t ra t ion may useo the r appropr ia te methods to communicate and consu l t withCongress on these mat te r s .2. Sta te and Defense Depar tment o f f i c i a l s , with o the rAdminis t ra t ion represen ta t ives , w i l l hold monthly ings fo rthe combined maj and minor i ty s t a f f s of the fore ign a f f a i r s ,armed se rv ices and appropr ia t ions committees andl eader sh ip of each House Congress . These b r i e f in g s w i l linclude:

developments on going peaceand pro jec ted ac t ions to be taken by th e UNSecur i ty Counci l (UNSC) r e l a t ed to c u r r e n t or newopera t ions ;o fo r new opera t ions , to the e x t e n t poss ib le , thees t imated tot .al c os t of the mission th e es t imated U. S,share of the cost.s , th e UN mandate, UN ob j e c t i ve s , theexpected durat ion of the miss ion and, i f u.s. mi l i t a ryuni t s may be involved, UN command and cont ro larrangements ;o any reimbursable ass i s t ance to th e UN fo ropera t ions in the month,of which exceeds 20 milLion. In ex t r aord ina ryci rcumstances , where advance n o t i f i ca t io n i s no tposs ib le , the A d m i n i s t r a t ~ i o n w i l l informl a t e r than t h ree working days a f t e r such i sprovided.

3. In the event a s i t u a t io n a r i s e s t h a t was not included in themonthly br ie f ing and requi.res a UN8C vote , the Adminis t ra t ionw i l l endeavor to in the p r i o r to thevote . I f t h i s i s not poss ib le , Adminis t ra t ion \v i l l informappropr ia te commit tees with in th r ee working days of the vot.e.These br ie f ings will include t.he informat ion spe c i f i e d inparagraph 2 above

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4. UN Documents: f i n a l UNSCpeacekeeping the Secur i tyCounci l and member s t a t e s \-rl th in th reeof t h e i r .5. The Aciministrat ion zeS t h a t peace opera t ions and warpo';vers i ssues can overlap . The Adminis t ra t ion would supportl eg is la t ion along the l ines of t h a t in t roduced by SenatorsMitchel l , Nunn, Byrd and Warner to amend the War PowersResolut ion to in t roduce a consu l ta t ive mechanism and to e l imina tethe 60-day withdrawal provis ions.6 . Annual Comprehensive Report to on Peace ions:The Pres wil l provide to Congress with the submission of t"hebudget a comprehensive annual on opera t ionsac t i v i t i e s conducted th e previous i s c a lwith t.he FY 1996 ion . The theex ten t poss ib le , l ega l a l lre la ted such repor t s inc lude:a) th e number and nature of ongoing United Nat ionsac t i v i t i e s ;b) an assessment of the effec t iveness of each on-going UN peaceopera t ion, i t s re la t ionsh ip to U.S. in te res t s , and the e f fo r t s bythe United Nations to resolve the re levan t armed conf l i c t s iC) the t o t a l cos t s of each UN peace opera t ion, both on- andconcluded, fo r the pr io r f i s ca l year ;d) the amount o f U.S. assessed and voluntary contr ibut ions toeach such ac t iv i fo r the or f i s ca l year ;e) the na ture and value of in-kind ass i s tance and other suppor tmade ava i l ab le the United Sta tes from any agency fo r UnitedNations peace opera t ions, on both a reimbursable and non-reimbursable bas is , fo r the f i sca l year ;f) the es t imated incremental costs to DOD of UN peace opera t ionsac t i v i t i e s conducted during the f i sca l year ;g) an assessment. of the United Nations management and fo rUnited Nations peace a c t i v i t i e s , inc ludingrecommendations fo r improvement made by the Sta tes ,whether the UN has them, and act ion by the UN toimplement any such recommendations.7. I t i s the Adminis t ra t ion 's to make non-reimbursablecont r ibu t ions o f goods and to the UN per a l e t t e r ofas s i s t only in unusual ci rcumstances . However, when suchcontr ibut ions for peace opera t ions are made, the value of vlhichexceeds $10 mil l ion! the Adminis t ra t ion wi l l inform Congress 72hours in advance. In circumstances where anadvance repor t is not. possible! Adminis t ra t ion w i l l informCongress no l ess than 72 hours a f t e r such contr ibut ion i s made.A ll such non- cont r ibu t ions of l e s s e r value w i l l berepor ted to y as

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20482ANNEX IX

Reques ts fo r " t r ad i t i o n a l " UN b lue-he lmet t ed peacekeepingopera t ions on t he o f Soviet w i l lbe cons idered on th e same ba s i s as any o the r , using thefac to rs ou t l i ne d in Annex I . (U)As appropr ia te , on a case-by-case ba s i s and e c t to the

in Paragraph 1 o f the PaHey Guidance, the U.S. w i l lto suppor t Russian pr oposa l s to seek UNCounci l endorsement to or gan ize peacekeepingopera t ions on the of the independent s t a t e sof th e former Sov ie t Union. U.S. suppor t w i l l becond i t ioned on these opera t ions adher ing to th e i p l e sof th e UN Char te r and meet ing. e s t a b l i she d UNSC c r i t e r i a ,includ ing n eu t ra l i t y , consent o f th e p a r t i e s ,formal UNSC over s igh t and f i n i t e , renewable mandates . Whileth e CSCE may play an important. ro le in oversee ing Russiane f fo r t s , ul t ima te au fo r au thor iz ing andl eg i t imiz ing such opera t ions should re s a t th e UN. Ina dd i t i on , the U.S. 11 no t agree to accord the Commonwealthof Independent Sta tes in its c u r r e n t form th e s t a tu s of ar eg iona l o r g a n i z a : - ~ or under V I I I ofth e UN Char ter . y )

,,-

The U.S. w i l l suppor t , on a case-by case ba s i s , Russianproposa ls to es t ab l i sh a fund fo r r eg iona lpeacekeeping opera t ions in th e former Sov ie t union andendeavor to con t r ibu te to t h i s Fund, resourcesrIn its d i scuss ions with Hoscm, the U S . should make c l e a rto Russ ia t h a t UN over s igh t of any opera t ion must be r e a land ongoing and could r e s u l t in u.s. Russian pol icyd i f f e r ences over the mandate! scope and even th ead v i sab i l i t y of such opera t ions . At. the same t ime vIe w i l lengage in on-going dia logue wi th o the r newly independents t a t e s to ensure t h a t they unders tand th e ec t ives o f U.S.and to ensure t h a t and UN over s igh t ofopera t ions r e f l e c t th e i n t e r e s t s and concerns ofth e newly s t a t e s . The U.S. w i l l encourageRussia to ~ ~ n m u l t i l a t e r a l c ons u l t a t i ons on t hese i s suesas wel l . 7 '

'2o tlr'" I ~ f 1 . t - r -