In their efforts to improve integration, coordination and cooperation, MLTs may wish to consider the ways in which they can:

• Optimize the aims of functionally integrated teams and their co-location
• Take a collaborative and flexible approach
• Develop a shared understanding
• Leverage organizational and cultural diversity
• Manage change when needed
• Accept responsibility and ensure accountability
• Promote integrated planning and action
• Utilize planning and assessment tools effectively and creatively, including prioritization and sequencing

While any positive response by an MLT to the above considerations is likely to enhance the effectiveness of a leadership team, the collective impact of any action rests on the willingness and ability of the HoM or SRSG, and their respective teams, to develop a culture of unity, trust, commitment and mutual respect.

1.1.1  Ensuring the primacy of politics and sustaining peace

The civilian leadership of most field missions reflects the fundamentally political nature and profile of UN peacekeeping.^[1] Today’s multidimensional peacekeeping operations are both driven by and the drivers of political processes. This central feature affects every aspect of the mission’s mandate. Accordingly, the MLT needs to positively and proactively facilitate the political process aiming at sustaining peace, while being constantly alert to the principle of national ownership.

The political process can include a range of activities, including: the negotiations on an enduring and comprehensive peace agreement between the parties to a conflict; the holding of what is hoped will be peaceful and credible elections; the strengthening of democratic processes; assistance to the host government with the extension of state authority; national reconciliation; continual attention to the avoidance of a breakdown in the peace or political process; and supporting and facilitating an inclusive political process that can successfully and sustainably move the country from a post-conflict state to a sustainable peace (which is the overarching objective of the mission). All these activities constitute core peacekeeping business.

Depending on the mission’s mandate, seeking and maintaining support for the political process to achieve the above-mentioned goals can take up a sizable amount of the mission’s time and resources. In particular, and again depending on the mandate, the role of the HoM can be seen on three levels: first, s/he is the lead political representative of the international community through the mandated authority of the Security Council and the Secretary-General; second, s/he is the head of the UN peacekeeping operation and responsible for all of its mandated activities; and, third, of increasing importance, s/he is the coordinator of all UN activities and programmes beyond the peacekeeping and political/security tasks. All these activities are aimed at assisting a country’s transition from conflict to a sustainable peace and ensuring that the international community vigorously supports this effort.

The political process in any country is complicated by contending pressures and actors. The mission leadership will have to continually manage the expectations of the various actors involved in the process, and indeed the entire population. Accordingly, the consent of the parties for mandate implementation can never be taken for granted. The impact of spoilers should also be taken into account. Perhaps more than in any other aspect of the mission’s mandate, and owing to the centrali- ty of the political process, the mission leadership should continually reassess and adjust every decision against the peacekeeping principles of impartiality, the non-use of force except in self-defence or defence of the mandate, legitimacy, credibility and the promotion of national and local ownership. At the same time, the mission must monitor consent at all levels – including the working and local levels – with great political sensitivity to ensure that the mandate is being properly implemented and that possible breakdowns in consent are anticipated and addressed.

1.1.2  A human rights mindset

The MLT has a responsibility to ensure that the mission promotes and protects human rights throughout its activities. The responsibility to implement a mission’s human rights mandate lies primarily with a dedicated human rights team, which reports both to the mission and to the Office of the UN High Commissioner for Human Rights (OHCHR) in Geneva. However, all mission components should be familiar with established policies on human rights, which are part of the UN’s normative framework. Moreover, they should be active promoters of these fundamental principles (see 5.1 Human Rights and Protection Promoted).

The MLT should develop a comprehensive strategy on human rights issues, with outputs integrated into the mission plan, and should consult and make effective use of the Human Rights section and encourage other components to do the same. As a matter of principle, a mission should always report and take action on human rights violations. Reports should always be coordinated with OHCHR. In those situations where a direct release of information on violations by the mission might jeopardize a delicate relationship with the host country, the mission might wish to manage such a release from Geneva.

While mission mandates differ, the promotion and protection of human rights remain core goals of many peace operations, regardless of the phase of the peace process. The different phases or situations simply determine how these goals can best be achieved. In most cases, the main aim is to assist and empower national communities, institutions and authorities to take ownership of human rights issues.

Human Rights Due Diligence Policy

Human rights also represent an important part of the normative framework for UN action and establish the ‘rule book’ for the activities of a mission and the conduct of its staff. In this regard, the UN has put in place a Human Rights Due Diligence Policy (HRDDP), which specifies that before providing support to any non-UN security force, a UN entity must conduct an assessment of the potential risks and benefits involved. This assessment must include consideration of the human rights record of the intended recipient of support and the adequacy of the measures in place to prevent human rights violations. The intent of the HRDDP is to be supportive rather than proscriptive, so that where necessary, the scope and nature of mitigating measures should be identified, agreed and put into effect.

1.1.3  Mainstreaming the Women, Peace and Security Agenda

Conflict and violence affect men, women, boys and girls differently. The MLT should systematically integrate and apply this understanding if the mission’s various activities are to have the intended results. Gender mainstreaming means that, in all mission planning, implementation and evaluation, the MLT should consider, and report on, how activities, processes and procedures help to ensure equality in the situations of women and men. It is also important to ensure that the approach advocated by the MLT is culturally sensitive to the wider social contexts in which the mission is operating. The MLT has clear responsibilities to incorporate a gender-sensitive approach in all of the mission’s activities and policies, while also setting standards and encouraging actions that demonstrate and promote a gender balance and gender mainstreaming across all grades and mission components.

The MLT has an obligation to lead by example and to champion policies and strategies – both within the mission and in all its dealings with national and local authorities – that incorporate a gender perspective at both the political and the organizational levels. The MLT should establish clear goals and ensure that there are sufficient resources in mission budgets to support the deployment of gender advisers and resources to ensure that gender is mainstreamed effectively across the different functions of the mission. It should review and monitor progress on compliance with the policy on gender-responsive peacekeeping. The MLT should consult and make effective use of gender advisers and encourage other components to do the same. The mission should also ensure that female staff participate in meetings held with government officials, local community and civil society, and that women’s groups are consulted on the implementation of the mission mandate. The full participation of women in the peace process is essential in order for the process to be genuinely inclusive, legitimate and sustainable.

1.1.4  Conduct of personnel

The success or failure of a mission can rest on the performance and good conduct of its personnel. All cases of misconduct have a negative impact on the image and legitimacy of a mission, which in turn can erode consent and have concomitant security implications for mission personnel. The MLT should set the tone and exhibit the highest standards of personal conduct and behaviour at all times. It must seek to ensure that UN policy is enforced and that all complaints are investigated thoroughly. Efforts should also be made to promote the welfare of and recreation for personnel, as this will help to strengthen morale and discipline. Most missions have conduct and discipline teams that provide policy guidance and technical advice to the mission leadership on conduct and disciplinary issues and organize training for mission staff.

The MLT has a command responsibility to ensure that specific and proactive measures are taken to prevent cases of sexual exploitation and abuse (SEA), and that the UN’s policy of zero tolerance in this area is enforced. Preventing SEA is about upholding the human rights of individuals that missions serve. The MLT needs to be proactive in promoting a transparent system that sets and maintains the highest standards of discipline and conduct by all mission components. While the MLT plays a key role in this regard, close cooperation with the UN Office of Internal Oversight Services (OIOS) as well as troop- and police-contributing countries (TCCs/PCCs) is central to ensuring good conduct and discipline and addressing violations of relevant UN policies.