The protection of civilians (POC) is included in the mandates of most contemporary peace operations. Civilians are at risk in fragile environments and are targeted during armed conflict. The most vulnerable groups are women, children, refugees, IDPs, minorities and the elderly. Protecting these groups is vital to preventing suffering and strengthening confidence in the peace process in the eyes of the local population, neighbouring countries and the international community. The mission’s protection activities need to be framed within a sound political process and go well beyond physical security. This calls for a comprehensive approach involving all mission components and external actors.^[1]

POC refers to “all necessary action”, up to and including the use of deadly force, aimed at preventing or responding to threats of physical violence against civilians, within the capabilities and areas of operations, and without prejudice to the responsibility of the host government to protect civilians. All necessary action includes any political, developmental, humanitarian or other non-violent means that may be required to ensure civilian protection in the long term. It therefore requires an all-of-mission approach if threats are to be countered. A “threat” exists from the moment it is identified as a potential source of harm to civilians to the time it is no longer determined as such.

The three tiers of protection of civilians

Tier 1. Protection through dialogue and engagement

Tier 1 covers political or diplomatic efforts encompassing political engagement in, advocacy for and assistance with the effective implementation of a peace agreement, conflict mediation, political pressure and advocacy, community reconciliation efforts or other political measures to resolve conflict (see 3.2 Peace Process Supported, and 3.4 National Reconciliation Promoted).

Tier 2. Provision of physical protection

Tier 2 includes patrolling outposts, monitoring force deployments, area security and other actions to prevent, deter and respond to situations in which civilians are under threat of physical violence. These are normally duties for the military component, but FPUs from UNPOL are also armed and likely to be in the front line of physical protection (including deterrence).

Tier 3. Establishing a protective environment

Tier 3 encompasses efforts to enhance the safety and support the rights of civilians through promoting and monitoring legal protections and human rights, facilitating humanitarian assistance, supporting national institutions and facilitating SSR, DDR and transitional justice. It includes peacebuilding measures to further good governance, the rule of law, social well-being and economic sustainability to reduce the chances that future grievances will result in conflict that threatens civilians. The role of UNPOL’s international police officers (IPOs) should be considered.

However, the provisions on protection from physical violence are open to interpretation. In many cases, there can be very different views – including within the UN Security Council, in the mission and among TCCs – on their exact scope and nature. In addition, a mission’s resources, ability and capacity to protect all civilians do not always match the expectations of the international community and the local population. A strategic communications plan will be vital to manage these expectations.

Missions should support the three tiers of POC from an understanding of the changing vulnerabilities and levels of threat to the various sections of the civilian population. This requires a regular assessment of the operating environment, its actors and dynamics. Missions must conduct effective assessments and manage intelligence and multi-source information to guide their actions on protecting civilians.

4.2.1 Operational activities

The key operational activities by the mission to support this output include:

• Developing a POC strategy.
• Identifying vulnerable sections of the population, such as women, children, minorities and IDPs, and their protection needs, including sexual and gender-based violence (SGBV) and conflict-related sexual violence (CRSV).
• Establishing a presence in key areas of potential volatility.
• Establishing joint protection teams consisting of Military, Police and Civilian components.
• Responding to or preventing the forced displacement of civilians.

4.2.3 Responsibilities and coordination

Notwithstanding the host government’s primary and ultimate responsibility for protecting civilians, peace operations are often mandated to protect civilians, in part because the national authorities lack the capacity or will to protect the civilian population. Increasingly missions are judged upon their ability to protect civilians. POC requires a whole-of-mission effort; it therefore becomes the MLT’s business to ensure that POC responsibilities are clearly cascaded down throughout the mission. Protection efforts should therefore include multiple components of the peace operation, in addition to the uniformed personnel, such as Political Affairs, Human Rights, Public Information, and Civil Affairs, as well as coordination mechanisms such as the JOC and JMAC. This requires a mission-specific POC strategy and, where necessary, regional POC plans. Additionally, regular political engagement with the host government and major political parties by the HoM and the MLT is essential to preventing and bringing to a halt to attacks and violence against civilians.

No single actor has access to all of the information or expertise required to plan and conduct the wide range of protection activities that can be used to support civilians in conflict and post-conflict settings. In addition to improving cooperation between the components of the mission, the MLT must establish effective coordination and communications arrangements with other relevant UN agencies and other actors on protection issues. Developing protection strategies in consultation with humanitarian actors is crucial. Protection activities – including the mitigation of CRSV – should also be coordinated with the national authorities, civil society groups and other representatives of the civilian population. SGBV should be recognized as a responsibility of the host government. Gender discrimination and inequality lie at the heart of CRSV.

4.2.4 Resources

If the mandate of a peace operation has POC provisions, the mission should have the training, early capacity and capability to carry out the necessary tasks. Within the broad range of resource requirements, the availability of enabling assets, particularly aviation, is critical. UNPOL may deploy FPUs.In addition, the mission needs high quality information management and intelligence to be successful, as well as sufficient numbers of translators and interpreters to enable communication and understanding of cultural sensitivities.

In the likely event that a mission faces gaps in these resources, the MLT should inform UNHQ and the Security Council of its requirements and the implications of continuing shortfalls. The mission should also prioritize its requirements and the allocation of protection assets.

UNPOL plays a significant and flexible role in protecting civilians. IPOs are often the main interlocutors with host-state police and therefore have both a presence and a network among host-state police officers and local communities.

The basic needs of the people should be met primarily by the government or through humanitarian operations, which should be adequately supported (see 6.1 Secure and Effective Humanitarian Relief Supported on page 189). Since long-term solutions depend on the development of local capacity and capability, international donors and UN entities such as UNDP should marshal adequate resources.