The host government is primarily responsible for the security of the UN staff, their dependents and the UN resources in country. However, host-state capacity is often weak and UN field missions increasingly operate in high-risk environments. This requires a system-wide, multidimensional approach to ensure acceptable levels of staff safety and security. Security must not be looked at in isolation. Decisions need to be made in collaboration between the UN as a system and the responsible host government. A major challenge (polarity) for the MLT is to strike a balance between the mission’s accessibility and programmatic activity, while ensuring the safety and security of its personnel. Furthermore, because the UN operates an organization-wide security management system (SMS) there is potential for tension between the political and security focus and aims of the mission as articulated by its mandate and the MLT and those of the UNCT, whose focus is primarily humanitarian.
The UN Security Policy Manual contains a series of security policies that guide all actors within the UN SMS, including the Under-Secretary-General of the UN Department of Safety and Security (USG UNDSS).
There are four essential policies for any security decision maker in the UN system:
- The Framework of Accountability – who is responsible for what?
- The Applicability Policy – to whom does the SMS apply?
- The Policy on Security Risk Management (SRM)
- The Programme Criticality Framework
In addition to being personally responsible for the security arrangements of the mission, the HoM is often also appointed the Designated Official (DO) for all UN agencies operating in the mission area through the UN SMS. The DO chairs, and is advised by, the Security Management Team (SMT), which, in the presence of a peace operation, will contain heads of mission components (such as Military, Police and mission Support) as well as members of the UNCT. The DO is accountable to the Secretary-General, through the USG UNDSS, and is responsible for the safety and security of all designated UN personnel, premises and assets throughout the country or mission area.
Nevertheless, along with other members of the MLT, the HoM should discuss with the host government and other actors in the region their respective responsibilities under international law for ensuring the safety and security of UN personnel.
The DO is advised by the Principal or Chief Security Adviser (PSA/CSA), who is the secretary to the SMT and who has authority over the UNDSS staff in the mission area. It is important for senior leaders to understand that the UN’s SMS structure works in parallel with the mission’s structure while having numerous areas of overlap. The SMT effectively analyses and responds to safety and security issues, including by providing training and advice to all components and individuals through the Chief Security Officer and Area Security Officers. It is critical that the PSA/CSA works very closely with the mission’s FC and UN Police Commissioner, as all three act as key advisors to the HoM on all security-related matters and command the mission’s Security component. Each remains accountable for the command and control of their respective entities. When joint operations are conducted, they represent a complex planning and command system that requires joint planning and coordination. This must be clearly stipulated and regulated by policies and procedures and requires specific and well-practised standard operating procedures.
The SRM process is a structured and risk-based decision-making tool. It guides the process for the identification and assessment of threats to UN personnel, assets and operations in a Designated Area. It then identifies measures and procedures to reduce the level of associated risk in order to enable programme delivery within acceptable levels of risk. The process also includes a structured decision-making model for acceptable risk, which balances security risk with programme criticality.
SRM measures should include both passive and active security, such as security risk assessments, appropriate physical protection of facilities, observance of the agreed minimum operating safety standards, an active warden system, preparatory exercises and contingency planning, as well as the provision of adequate medical facilities and personnel.
SMS safety and security requirements may be in tension with the conduct of the mission’s political, operational and administrative activities, and may therefore involve difficult decisions on mission priorities. Mission leaders need to be clear on their and their components’ responsibilities for safety and security. This is especially important when the SMS overlaps the mission’s command and control structures, such as in integrated camps where civilian staff, police and military live alongside each other in high-risk environments. Given the frequent rotation of uniformed personnel, constant crisis drills and exercises are necessary in these circumstances to ensure security procedures are well understood and function properly.
The aim of the Programme Criticality Framework is to assess programmatic priorities in changing or volatile security situations and to determine the level of acceptable security risk for programmes and mandated activities implemented by UN personnel, particularly in high-risk environments. Its application is crucial to ensure integrated security decision making in an area. The responsibility for Programme Criticality lies with the SRSG or the RC. Programme Criticality assessments are also recommended as preparatory measures in countries with unpredictable or rapidly changing security environments. Such proactive assessments can facilitate rapid decision making if the security risks are suddenly elevated.