UN: FIFTH COMMITTEE TO CONSIDER SG'S REPORT ON

UNCLAS USUN NEW YORK 000894

SIPDIS

SIPDIS

E.O. 12958: N/A
TAGS: AORC KUNR PREL UNGA
SUBJECT: UN: FIFTH COMMITTEE TO CONSIDER SG'S REPORT ON
DISARMAMENT, DEMOBILIZATION AND REINTEGRATION



1. Summary. The report of the Secretary-General (SYG) on
disarmament, demobilization, and integration (A/60/705) notes
an increased engagement of the United Nations in disarmament,
demobilization and reintegration (DDR) processes in complex
peacekeeping and non-peacekeeping operations over the past
five years, including lessons learned from the operations.
The report also addresses the development of a new approach
to DDR within the United Nations system, based on lessons
learned. This new policy approach, referred to as the
integrated DDR standards, was created by the Inter-Agency
Working Group on DDR, comprising 15 United Nations agencies,
departments, funds and programs. The standards provide a
comprehensive set of policies, guidelines and standard
operating procedures on all aspects of DDR. They emphasize:
a people-centered approach, stressing the inclusion of
intended participants, and beneficiaries, specific needs in
DDR; a flexible, transparent and accountable approach; an
integrated approach centered on the principles of
integration, especially in the area of program planning and
implementation; and a national ownership centered approach,
encouraging governments and citizens in post-conflict
countries to take on responsibility for DDR programming. The
conclusions and recommendations of the report are detailed
below. End summary.


2. Review of UN engagement in DDR since 2000: Since the
issuance in 2000 of the SYG report on the role of UN
peacekeeping in DDR (S/2000/101),six peacekeeping operations
(MONUC, UNMIL, UNOCI, ONUB, MINUSTAH, UNMIS) have included
DDR as part of their mandate. The United Nations Development
Program (UNDP) and other agencies, funds, departments and
programs of the UN system have also played a key role in
supporting the development of DDR programs, strategies and
the implementation of a variety of activities. The UN has
placed particular emphasis on demobilizing and removing
children used by armed forces and groups in situations of
ongoing conflict.


3. Lessons learned: As a result of the UN engagement in DDR,
a number of important lessons have been learned on how to
approach this process going forward. Some key lessons
learned are: (a) DDR cannot be implemented in isolation from
the broader peacebuilding and recovery process; (b)
successful DDR is contingent on the political will of all
parties to the conflict; (c) the sustainable reintegration of
ex-combatants is a key objective and determinant of success;
(d) given a number of converging factors, HIV/AIDS and sexual
and gender-based violence are widespread in armed conflict
and post-conflict environments and DDR programs must include
HIV/AIDS awareness, prevention and treatment.


4. New UN approach to DDR: The Inter-Agency Working Group on
DDR was established and mandated to carry on the work of
improving the Organization's performance in the area of DDR.
Fifteen departments, agencies, funds and programs are
represented in the Working Group and together they have
developed new policies and concepts for planning and
implementing DDR operations in a peacekeeping context. These
policies and concepts are known as the integrated DDR
standards (IDDRS).


5. Integrated DDR standards: The IDDRS have been developed
by the Inter-Agency Working Group in order to better plan,
develop, implement and monitor DDR programs. The standards
are divided into five levels: (1) introduction to the
standards and a glossary; (2) strategic concepts of an
integrated approach to DDR in a peacekeeping context; (3)
planning and implementation structures used at Headquarters
and in the field; (4) considerations, options and tools for
undertaking DDR operations and; (5) UN approach to critical
cross-cutting issues, such as gender, youth and children.


6. Integrated DDR standards (cont.): The development of the
Organization's integrated approach to DDR represents an
important first step towards greater integration. The IDDRS
are expected to contribute towards a common UN approach;
improved planning, communication, coordination and
cooperation at Headquarters and in the field; a coherent and
comprehensive basis for the UN to engage with different
partners, including Member States; timely, effective and
well-resourced implementation of DDR programs through both
assessed and voluntary contributions; greater cooperation
between military and civilian training centers and;
development of the capacity and knowledge of field-based UN
staff.


7. Disarmament: Lessons learned have shown that the failure
to comprehensively disarm former combatants and to develop
legislation and policy to manage and control legally and
illegally held weapons can seriously undermine long-term
peace, stability and recovery efforts.


8. Demobilization: The demobilization strategy needs to


strike a balance between assistance and entitlement so as to
avoid any perceptions that combatants are being rewarded for
their role in a conflict. In particular, cash benefits for
children should be avoided. In the aftermath of the DDR
program in Liberia, the UN found that the payment of a US$300
transitional safety-net allowance had a significantly
negative impact on children, who were exposed to abuse and
exploitation by their commanders, who wanted a share of the
cash benefit.


9. Reintegration: Sustainable social and economic
reintegration of former combatants should be the ultimate
objective of DDR programs. Failure to assist ex-combatants
to reintegrate will undermine the achievements of the
disarmament and demobilization phase, placing the entire
program at risk and increasing instability. A successful
reintegration program will not only prevent a return to
violence, it will also contribute to the recovery and
development of a State that is emerging from a conflict.
Reintegration benefits must also be tailored, based on
gender, age, educational qualifications and physical ability
of the recipient. The role of women and girls in providing
care for demobilized combatants, especially those who are
underage, traumatized, disabled or chronically ill, must be
recognized and supported.


10. Funding: One of the main problems encountered in past UN
DDR operations is the absence of adequate, timely and
sustained funding. This has frequently resulted in a gap
between disarmament and demobilization on the one hand, which
are relatively easy to fund, plan and implement, and
reintegration on the other, which is dependent on voluntary
contributions and on expertise and conditions that are not
always present in a timely manner in a post-conflict
environment. However, with proper planning and coordination,
it is possible for the reintegration programs to be
adequately resourced from the outset. Comment: Funding for
disarmament and demobilization is included in the assessed
budget of peacekeeping missions while funding for
reintegration is provided solely from voluntary
contributions. End comment.


11. Recommendations: Headquarters would ensure additional
support to DDR programs in the field through integrated
program support. The Inter-Agency Working Group would
continue to strengthen and consolidate the partnership it has
built up over the past two years. It would also engage with
partners outside the UN, assist with training, resource
mobilization and planning, and provide support to current and
future DDR programs. The existing secretariat should
therefore be expanded to include additional staff from other
departments, agencies, funds and programs and mandated to
provide wider support to DDR. With regard to the
implementation of the integrated DDR standards, this would
require the establishment of new coordination mechanisms
which could include all or some of the following: (a)
integrated DDR teams (such as those in Haiti and the Sudan),
staffed jointly by personnel of UNDP and the DPKO, as well as
other agencies; (b) a UN country team DDR steering group to
facilitate the exchange of information, joint planning and
operations within the peacekeeping mission and with the
country team. Comment: The resource implications of these
recommendations to assessed peacekeeping budgets are unclear
and USUN will seek further clarification when the report is
introduced in the Fifth Committee this Spring. End comment.



12. Recommendations (cont.): Integration, especially at the
country level, is constrained by administrative, managerial,
budgetary and operational challenges. These challenges must
be overcome if the new approach to DDR is to be achieved. It
is therefore recommended that efforts be made to continue to
build an organizational culture receptive to integrated DDR
programs and units through the continued provision of joint
training, mission etc. Also, the departments, agencies,
funds and programs that have contributed to the development
of the new approach to DDR should continue to participate in
integrated planning, implementation and evaluation. It is
also recommended that the online resource center be further
developed for it to remain a useful tool for policymakers and
practitioners both at Headquarters and the country level.
Apart from consolidating information and lessons learned on
past and current programs, it should also function as a
communication and exchange platform for those working on DDR
issues. This would require further voluntary funding, which
the SYG encourages Member States to provide. The UN would
also support strong national ownership throughout the DDR
process. A key priority in the coming years would be to
strengthen and consolidate partnerships with the World Bank,
regional organizations and non-governmental organizations.
Finally, the process of developing the integrated DDR
standards in itself provides a good lesson for the UN ahead
of the establishment of the peacebuilding commission.




13. The Fifth Committee is expected to consider the report
of the SG at its second resumed session this Spring.

BOLTON