UNSC: U/SYG HOLMES ON PROTECTION OF CIVILIANS IN

UNCLAS USUN NEW YORK 000541 SIPDIS SIPDIS DEPT FOR IO AND PRM; USAID FOR DCHA; NSC FOR PMARCHAM; GENEVA FOR NKYLOH E.O. 12958: N/A TAGS: PHUM PREF UNSC XA SUBJECT: UNSC: U/SYG HOLMES ON PROTECTION OF CIVILIANS IN ARMED CONFLICT SUMMARY ¶1. (U) On June 22, Under Secretary for Humanitarian Affairs John Holmes briefed the Security Council in an open session on the protection of civilians in armed conflict. His remarks included first-hand observations from recent field missions to Chad, Darfur, the Central African Republic, northern Uganda and Somalia. Holmes stressed the need for greater international efforts to protect civilians, focusing on three areas of particular concern: the targeting of civilians, forced displacement, and access and security. 2 (U) Though the topic of this biannual debate in the Security Council is normally not contentious, Holmes' statement included a reference to civilian casualties in Iraq and Afghanistan that failed to distinguish between the deliberate targeting of non-combatants by insurgents and military activity that inadvertently harms civilian populations. U.S. and UK interventions stressed this distinction, which Holmes acknowledged in his closing remarks. ¶3. (U) During more than four hours of statements, delegations emphasized the primary role of national governments in providing protection to civilians, although many also noted a role for the international community when states are unable or unwilling to provide this protection. Some stressed the role of the Security Council in conflict prevention and many emphasized the need to enhance protection for internally displaced persons (IDPs). Particular concern about sexual and gender-based violence was also raised by a number of delegations. The EU and others expressed support for the ICC's efforts to address impunity. Holmes proposed a review of the effectiveness of peace-keeping operations in integrating civilian protection components and recommended that the Secretariat more regularly bring situations of concern in this area to the Council's attention. TARGETING OF CIVILIANS ¶4. (U) Holmes condemned the impact of the recent violence in Mogadishu, Somalia on civilian populations and stated that fighting in the West Bank and Gaza has been "characterized by the indiscriminate use of force," including rocket attacks on Israel. Holmes also addressed the impact of conflict in Iraq and Afghanistan on civilians, making the following comment: "In Afghanistan and also in Iraq, in addition to the dreadful toll of civilian deaths caused by insurgents and militias on all sides, the civilian casualties resulting from security operations of multinational forces and government and security forces are of increasing concern, even if there is no suggestion of deliberate targeting." While other delegations did not explicitly connect the operations of multinational forces with civilian casualties, many did deplore non-combatant deaths in Iraq and Afghanistan, as well as other conflict locations like Sudan and Chad. ¶5. (U) During the U.S intervention, Ambassador Sanders responded that insurgent activity aimed at civilians is fundamentally different from operations by the multi-national forces aimed at restoring peace and stability for the people of Iraq and Afghanistan. (The U.S. statement can be found at www.un.int/usa/07 159.htm) The UK provided a similar response and in his closing remarks, Mr. Holmes reassured members that he recognized a difference between deliberate targeting of civilians and other actions that cause collateral damage to civilian populations. Nevertheless, Holmes stressed that it remains the duty of parties to conflict to avoid collateral deaths with all the means available to them. ¶6. (U) Holmes noted particular concern over the prevalence of sexual and gender-based violence in conflict settings, reiterating that UNSCR 1674 condemns "in the strongest terms" all sexual and other forms of violence against civilians in armed conflict, in particular women and children. The U.S intervention highlighted the use of rape as a tactic of war in Burma as well as ongoing concerns over gender-based violence in Darfur. Many other delegations expressed their grave concern both with the situation in Darfur specifically, and with gender-based violence more generally. FORCED DISPLACEMENT E ¶7. (U) Holmes cited a report of the United Nations High Commissioner for Refugees (UNHCR) that indicates an increase in the number of refugees in 2006 for the first time in four years. Holmes also cited concern over the estimated 24.5 million internally displaced persons (IDPs). He called for stronger efforts to prevent the conditions that lead to displacement as well as dealing with the results. Many member states also called attention to the plight of IDPs. Russia insisted that the status of IDPs is not recognized by international law and that UNHCR should only get involved at the request of the states concerned. ACCESS AND SECURITY ¶8. (U) Holmes stressed that the targeting and harassment of aid workers continues despite the Council's repeated calls for safe and unhindered access of humanitarian staff to civilians in armed conflict. Holmes cited particular concern over Darfur, where hijackings and abductions threaten humanitarian operations, and also noted restricted access in Sri Lanka and limited access in Iraq due to insecurity. Many delegations deplored the recent killings of humanitarian workers and journalists in Sudan, Sri Lanka, and other conflict zones. FOLLOW-UP AND RECOMMENDATIONS ¶9. (U) All delegations stressed the need to close the gap between policy and practice in the protection of civilians. Many cited a need for the Security Council to focus on conflict prevention. Holmes highlighted the important role of regional organizations and called upon African countries to include civilians in post-conflict reconciliation efforts. ¶10. (U) Nearly all delegations deplored the "culture of impunity" whereby perpetrators of acts of violence against civilians are not held to account. Many delegations, including Japan, Mexico, the EU, CANZ, Peru, Liechtenstein, and The Republic of Korea, emphasized the need for the ICC to meet this challenge, and Rep. of Congo urged that prosecutions not be "politicized." ¶11. (U) Holmes' statement provided two specific recommendations to enhance protection efforts. He proposed a review and evaluation of UNSC language on civilian protection and its implementation, recommending "a systematic look at the practical effect that the inclusion of protection of civilians in a number of peacekeeping mandates has had on the ground and to draw the right lessons for future deployments." Holmes also pledged to "bring situations of grave humanitarian concern to the Council's attention, through briefings, through the reports of the Secretary general, or where necessary, and pursuant to resolution 1674, directly through the Secretary General." WOLFF