Humanitarian relief has important linkages with and shares many of the same objectives as efforts to sustain peace and deliver the SDGs.

Humanitarian activities aim to save lives, alleviate suffering and protect and safeguard the human dignity of communities affected by crises, whether caused by natural disasters or conflict, often in cases where the host state or government is not in a position to provide such basic services to the population. Many peace operations missions have been mandated to contribute to the creation of a secure environment to enable the delivery of humanitarian aid. Nonetheless, maintaining and managing the relationship between humanitarian actors and a peace operation is a fine balancing act, as humanitarians are required to preserve their independence, impartiality and neutrality, as set it out in humanitarian principles. The MLT has an important role to play in managing this relationship, while ensuring that the mission mandate is delivered.

Although it plays only a supporting role, a peace operation can take on crucial tasks to facilitate the unimpeded delivery of relief by humanitarian agencies. In a relatively consensual environment – but one in which spoilers may still be active – these agencies value their “humanitarian space” and prefer to operate independently of and separately from uniformed UN personnel. At the same time, peacekeeping missions can provide valuable logistical support to humanitarian operations and are often ideally situated to support the creation of mechanisms that coordinate all stages of these efforts in concert with OCHA and other coordinating bodies. Coordination between humanitarian organizations and the mission can be “indispensable” in developing unarmed strategies to protect civilians.[1] Local actors, if engaged appropriately as part of “conflict-sensitive humanitarian action”, can ensure the sustainability of humanitarian action long after international actors have departed, supporting efforts to sustain peace.

In more volatile situations, humanitarian operations, for example aid convoys, may require peacekeepers to provide protection and in extreme situations international humanitarian staff may rely on the peacekeeping mission actually to deliver humanitarian assistance or assist in their evacuation. Given these sensitivities and very different requirements, it is imperative that the mission, usually with the DSRSG-RC/HC taking a lead role, closely coordinates, consults and shares information with humanitarian actors to bridge any differences and to coordinate plans and activities. In contexts where peace operations have an enforcement mandate, it is particularly important that a clear distinction is maintained between humanitarian actors and the mission.

The host government has primary responsibility for the provision of basic services such as shelter, the water supply, sanitation, food, basic education, emergency medical services and essential health care.

Nevertheless, quite often in the short term, humanitarian actors will have to step in to provide assistance in some of these areas. In some situations, peacekeepers may find it necessary to take action in this area, as they are the only ones with access to isolated communities. A peacekeeping mission may also find that it can establish, strengthen or maintain relations with host communities by assisting, and sometimes delivering, low-cost solutions. These will often take the form of quick- impact projects, implemented for the direct benefit of local communities. Such activities should always be carried out in consultation and coordination with humanitarian and development actors already engaged in these areas, through the DSRSG-HC/RC, the cluster system and the civilian–military coordination mechanisms.

Quick-impact projects are only ever a temporary measure and efforts must be made to ensure that more sustainable development initiatives are put in place in the longer term.

6.1.1 Operational activities

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

  • Providing a secure and stable environment to allow the unobstructed and safe delivery of humanitarian relief, including mine clearance of access routes and areas.
  • Supporting UN agencies with monitoring and assessing humanitarian needs and contributing to the formulation of humanitarian appeals.
  • Ensuring information sharing and joint planning between the peace operation and humanitarian agencies.
  • Establishing civil–military coordination (CMCoord) centres, coordinating activities through CMCoord mechanisms with OCHA and other humanitarian agencies.
  • Providing protection and security for humanitarian facilities and convoys as and when required, in keeping with humanitarian operational principles.

6.1.2 Benchmarks

Short-term

  • Humanitarian agencies and populations in need have access to each another.
  • Humanitarian agencies have conducted a needs assessment and identified priorities.
  • CMCoord mechanisms are established and functioning.
  • Quick impact projects are being implemented.
  • Main access routes are safe and cleared of mines.
  • Basic services start to reach isolated communities, including the provision of food and medical support.

Medium-term

  • The number of attacks on humanitarian convoys has fallen and the active support of former belligerents facilitates the delivery of humanitarian assistance.
  • Humanitarian and security vulnerabilities have been mapped for shared use by the peacekeeping mission, and by international security, law-enforcement and host-government entities.
  • Service providers are operating effectively and upholding the responsibilities they have been assigned, with the support of the peacekeeping mission.
  • Excessive speculation and price swings on basic service items have been reduced.

Long-term

  • Local capacity and reliable mechanisms for delivery of humanitarian relief exist.
  • National and international humanitarian policies and responses are better integrated with the host country and long-term development frameworks.
  • Service providers operate self-sufficiently, but not necessarily without the support or mentoring of peacekeeping personnel.
  • Black-market structures have been overtaken by the public sector as providers of goods and services.
  • National and local institutions begin to demonstrate autonomy and self-sufficiency.

6.1.3 Responsibilities and coordination

While the main responsibility for the delivery of basic services rests with the national authorities, relevant UN agencies and other actors may need to assist the government in the short term. The mission, however, should stress the primacy of the host government, in order to avert the potential perception by the population that the peacekeepers and other external actors, rather than the national authorities, are the service providers.

The main responsibility for the coordination and delivery of humanitar- ian relief rests with relevant UN agencies, most notably OCHA, the World Food Programme (WFP), UNICEF and UNHCR, which have a cluster responsibility for coordinating the UN’s efforts with those of relevant NGOs. UNDP has a role in mainstreaming early recovery, thereby promoting an early transition to nationally designed and owned recovery efforts. Within the mission, the DSRSG-RC/HC, in their role as Humanitarian Coordinator, is responsible for ensuring coordination of humanitarian and development activities and maintaining close contact and cooperation with all relevant agencies. The parameters for the use of mission assets or personnel in support of any UN humanitarian activities should be based on existing guidelines and a detailed agree- ment between members of the MLT and the DSRSG-RC/HC, under the overall authority of the HoM.

Quick-impact projects and similar activities carried out by the peace- keeping mission should be managed under the overall authority of the HoM and coordinated with the office of the DSRSG-RC/HC. Facilitating interaction between civilian and military actors will be essential and should be coordinated through established CMCoord mechanisms.[2]

6.1.4 Resources

A peace operation’s mandate and resources are rarely adequate to provide basic services for the local population, even though the re-establishment of these services is essential for the consolidation of security. The resources available to a peacekeeping mission for the provision of basic services are limited to spare capacity generated from the mandated force levels, such as engineering and mine clearance, and the allocation of funds for quick impact projects, which come from assessed contributions and donors.

Since emergency assistance is a civilian undertaking, military assets should only be used in a humanitarian response when the civilian capability is insufficient to meet the need, and under the overall guidance of humanitarian actors. Mindful of humanitarian space and resource constraints, the MLT will need to carefully assess and decide when and how military assets should be used for humanitarian purposes.

6.1.5 Challenges and risks

  • The delivery of humanitarian aid becomes politicized, aggravating armed groups and increasing insecurity for humanitarian workers and the recipient population.
  • Peacekeepers in pursuit of “hearts and minds” objectives might, through their humanitarian activities, blur the distinction between politically driven mandates and neutral, independent and impartial humanitarian needs.
  • Supporting humanitarian operations without compromising the neutrality, impartiality and independence of humanitarian actors and infringing their humanitarian space, which they need for their own protection.
  • Humanitarian relief falls into the wrong hands or is showcased for political purposes.
  • Support to humanitarian operations diverts the resources required for other mandated tasks.
  • Lack of consultation and coordination between the peacekeeping operation and humanitarian agencies.
  • Quick-impact projects and other activities by the mission could create unsustainable expectations and dependency among local communities.
  • Activities aimed at providing basic services may lead to mission creep and blur the line between humanitarian and peacekeeping efforts.
  • Quick-impact projects and similar activities by the peacekeeping operation are of a limited and short-term nature and may be politicized and exploited by belligerents and spoilers alike.

6.1.6 Considerations

Addressing humanitarian needs and the safety and security of UN personnel

Judgements have to be made by the MLT between the need to gain access to populations in need, and the safety of the UN personnel, for whom the HoM (as the DO for security) is ultimately responsible. Key members of the MLT are part of the SMT, alongside the heads of the principal UN humanitarian and development agencies. This responsibility creates a requirement for an understanding by the MLT of threat- and risk-analysis procedures, and the use of security-risk-mitigation measures, which often consume scarce mission resources.

Balancing humanitarian imperatives and the political requirements of peacekeeping

Peacekeeping missions are largely driven by political mandates. Humanitarian action is driven by the principles of humanity, impartiality, neutrality and independence. The MLT needs to understand the differences in the application of these principles by peacekeepers and humanitarians. For example, for the mission, impartiality refers to the even-handed execution of a political mandate rather than an impartial response to an assessed humanitarian need. This different interpretation of impartiality can lead to misunderstandings and friction. The role of the DSRSG-RC/HC, as well as joint strategic frameworks designed to assist consultation, coordination and information sharing, can alleviate some of this tension.

Balancing short-term gains and long-term benefits

The UNCT will usually be in a mission area before the deployment of a peacekeeping operation and will remain after the peacekeepers depart. There are always pressures on a peacekeeping mission to make a difference, to meet national and international expectations and to achieve some quick wins in order to demonstrate progress. These pressures must be balanced against the long-term approach of the UNCT, which is to respond to needs and tackle the root causes of conflict through development activity.

Balancing force protection and the considerations of humanitarians

Civil–military activities by the mission’s military component are ultimately designed to improve the standing of the peacekeepers among the local population. This is sometimes called “winning hearts and minds”. The MLT should be clear that this is a force- protection measure. As such, it may be seen by humanitarians to be at odds with humanitarian principles. Potential tensions can only be reduced by the engagement of the MLT to ensure coordination and mutual understanding of the validity of both activities. CMCoord mechanisms need to be in place and, broadly speaking, peacekeepers should defer to the knowledge and counsel of humanitarians before embarking on “hearts and minds” activities which, unless sustainable, can be damaging.

Finally, it should be recognized that many TCCs like to see their peacekeepers involved in “hearts and minds” activities and fund them accordingly. Guidance by the MLT is required to ensure that this activity is not perceived as political, is effectively focused on the long-term benefit of the local community and does not lead to unsustainable dependency or unrealistic expectations.

  1. UN General Assembly and Security Council, ‘Report of the High-level Independent Panel on Peace Operations on uniting our strengths for peace: politics, partnership and people’, A/70/95-S/2015/446, 17 June 2015, p. 38. ↵
  2. Because of the sensitivities involved, the UN has developed extensive guidance on the relationship and working methods, including Military and Civil Defence Assets Guidelines and the Inter-Agency Standing Committee Reference Paper on Civil–Military Relationships in Complex Emergencies. ↵

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