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Final Draft Approved by SRSG: 4 June 2012
UNMISS Protection of Civilians Strategy
Introduction
1. The protection of civilians (PoC) is a central part of UNMISS’ mandate to support the
consolidation of peace and security in South Sudan, and is a key priority of Mission
leadership. The Government of the Republic of South Sudan (GRSS) has the primary
responsibility to provide security and protection for its civilian population. The role of
UNMISS is to advise and assist the GRSS to fulfil this responsibility, but also act
independently and impartially to protect civilians when the GRSS is not providing security.
2. The Security Council has requested in resolution 1894 (2009) that all UN peacekeeping
missions with protection mandates develop comprehensive PoC strategies. This strategy
builds upon the planning documents that were developed during the establishment of
UNMISS in 2011.1 It has been developed based on the DPKO/DFS ‘Framework for Drafting
Comprehensive Protection of Civilians Strategies in UN Peacekeeping Operations’, using the
strategy template proposed in this guidance.
3. The aim of the strategy is to ensure a more coherent and coordinated approach to the
implementation of UNMISS’ protection mandate and demonstrate the Mission’s added value
compared to other protection actors. In particular, it provides strategic direction to all
relevant parts of the Mission involved in this important mandated task. It does not intend to
duplicate the workplans of different mission components, divisions and sections, but rather
provide a common framework to implement this whole-of-mission responsibility.
4. The document focuses on the strategic level and therefore does not provide specific
operational plans and guidance, which will need to be developed on the basis of this strategy
to address specific protection challenges. In particular, given that the threats to civilians are
not the same across South Sudan, each UNMISS state office will be required to develop its
own action plan2 during the second half of 2012. Different mission components, divisions
and sections might also choose to develop more specific guidance and directives on PoC
relevant to their actions.3 Specific planning documents will also be developed for protection
challenges confronted by the Mission, such as occurred in relation to civilian disarmament in
Jonglei at the beginning of 2012.
1 See the PoC concept of operations developed as part of the ITAPT for the planning of UNMISS and the Mission
framework on PoC developed in October 2011. 2 These action plans will build on the protection risk assessment completed for each state and will be overseen by the
PoC Working Group in Juba and developed according to a common template. 3 The police component has, for instance, already started to develop a document on its role in relation on PoC.
2
5. The strategy has been drafted based on an extensive process of consultation with all relevant
components, divisions and sections in UNMISS, through the PoC Working Group at
headquarters and PoC Task Forces at the State level. Consultation has also taken place with
external protection actors including the Protection Cluster, the SPLA and the SSPS.
Vision statement
6. UNMISS action on the protection of civilians will contribute to establishing a safe and secure
environment, in which the physical integrity and rights of all civilians in South Sudan are
fully respected, protected and promoted. This shall be achieved through a combination of
preventive, responsive and institution-building approaches.
Purpose
7. The overall purpose of the UNMISS PoC strategy is:
To prevent and reduce the threat to the civilian population from armed conflict and violence
by building the capacity of the Government of the Republic of South Sudan (GRSS) and,
when it is unable or unwilling to protect civilians, UNMISS will act independently to prevent
harm to civilians within its resources and capabilities.
The benchmark4 that has been presented to the Security Council and will be used, amongst
other means, to measure progress against this purpose is:
The Republic of South Sudan has developed sufficient capacity to prevent, mitigate and
resolve conflicts and effectively carry out its responsibility to protect civilians.
It should be noted that this benchmark relates to overall context in South Sudan and not
necessarily the effectiveness of UNMISS in fulfilling its protection mandate, which will be
monitored by the indicators related to the strategy’s objectives and activities outlined below.
Scope
8. The protection of civilians is a central and cross-cutting element of UNMISS’ mandate that
touches upon a number of different mission tasks. The scope of the strategy includes all the
PoC-related tasks included in the mandate of UNMISS, which is derived from Security
Council resolution 1996 (2011), in particular:
(iv) Advising and assisting the Government of the Republic of South Sudan, including military and police at
national and local levels as appropriate, in fulfilling its responsibility to protect civilians, in compliance with
international humanitarian, human rights, and refugee law;
4 In resolution 1996 (2011) the Security Council requested that UNMISS develop benchmarks and indicators of
progress in relation to its mandated tasks.
3
(v) Deterring violence including through proactive deployment and patrols in areas at high risk of conflict,
within its capabilities and in its areas of deployment, protecting civilians under imminent threat of physical
violence, in particular when the Government of the Republic of South Sudan is not providing such security;
(vi) Providing security for United Nations and humanitarian personnel, installations and equipment necessary
for implementation of mandated tasks, bearing in mind the importance of mission mobility, and contributing to
the creation of security conditions conducive to safe, timely, and unimpeded humanitarian assistance;
9. These operative paragraphs above set out the Chapter VII physical protection mandate of
UNMISS to protect civilians under imminent threat of physical violence. This unique ability
to use force and provide physical protection, combined with politically engaging the GRSS at
the highest levels on its protection responsibilities, give the Mission a comparative advantage
as compared to other protection actors. However, the PoC role of UNMISS is broader that
this part of the mandate and includes a number of other mandated tasks5 including: conflict
prevention, mitigation and resolution (Op 3 b) i), human rights (Op 3 b)6 iii), security sector
reform and rule of law (Op3 c)), child protection (Op 3 c) v and Op 10), mine action (Op3 c)
vi), and sexual violence (Op 24.) The scope of the strategy, therefore, also includes all these
tasks.
10. The PoC is a whole-of-mission responsibility that is mainstreamed across the mission. The
strategy is applicable to all Mission components, divisions and sections working on the
relevant mandated tasks mentioned above, which make up the membership of the PoC
Working Group (see below). Compliance with this strategy is mandatory for all relevant staff
within these components, divisions and sections.
11. The scope of the strategy does not include the actions of humanitarian organisations that have
their own protection strategy, developed by the Protection Cluster and included in the
Consolidated Appeal Process (CAP). While UN agencies and NGO actors working on
protection have been consulted in the development of this strategy, it is not applicable to their
actions. However, the implementation of the UNMISS PoC strategy requires close
coordination with the Protection Cluster and other protection actors in the mission area,
particularly in relation to common activities, as set out subsequent sections.
12. The strategy does not duplicate, but needs to be closely coordinated with, a number of other
planning documents and strategies in the Mission, including the Mission Concept, Results-
5 See the DPKO/DFS Operational Concept on the Protection of Civilians which sets out the full range of activities
that fall within this mandated task. 6 (iii) Monitoring, investigating, verifying, and reporting regularly on human rights and potential threats against the
civilian population as well as actual and potential violations of international humanitarian and human rights law,
working as appropriate with the Office of the High Comissioner for Human Rights, bringing these to the attention of
the authorities as necessary, and immediately reporting gross violations of human rights to the UN Security
Council;
4
Based Budget, the Early Warning and Emergency Response Strategy, and the Peacebuilding
Support Plan.
Timeframe
13. The expected timeframe of the UNMISS PoC Strategy is 12 months from the date when it is
endorsed. It will be revised after 12 months or if there is a significant change in context or
the Mission mandate, as decided by the UN Security Council.
Protection of civilians risks, including threat and vulnerability analysis
14. In order to identify the threats to the civilian population to which the UNMISS PoC strategy
will respond, each of the ten State Coordinators was requested to undertake a protection risk
assessment. This was done according to a common template and in coordination with
relevant actors (including humanitarian organisations) through the state-level PoC Tasks
Forces. The table on the following page summarises the information that was collected and
analysed from this exercise. In particular, it lists the generic threats that are faced by civilians
and matches these threats with underlying vulnerabilities of civilians to produce the risk
assessment.
15. The threats – resulting from the actions by both armed groups and the GRSS security forces –
relate not only to the physical integrity of civilians (e.g. killing and injuries), but a range of
other threats, including forms of coercion such as forced displacement or recruitment. They
are organised around a typology of different armed conflicts and other situations of violence
that are found in South Sudan. It is not easy to categorise the multitude of different situations
in South Sudan in which civilians face the threat of violence. Furthermore the protection
challenges are influenced by wider dynamics, such the rapidly changing economic situation
and austerity measures. However, this typology helps focus what situations the Mission will
respond to in relation to its protection mandated in a more systematic basis. If a situation
arises that falls outside the scope of this typology, but is considered by Mission leadership
that UNMISS should respond as part of its protection mandate, then an approach will be
developed for this scenario and/or this strategy would be revised.
Type of armed conflict/violence Characteristics
International armed conflict between
Sudan and South Sudan
Despite the CPA, there have been aerial
bombardments and incursions within South Sudan
from Sudan, including through proxy armed groups
(e.g. JEM). The unresolved situation in Abyei has
implications for South Sudan as well as the return
movement of South Sudanese from Sudan, which
presents serious protection concerns. The annual
migration of pastoralists across the border can also
lead to conflict.
Internal armed conflict between SPLA There are a number of armed groups that have
5
and non-state armed groups (Rebel
Militia Groups)
refused to integrate into the SPLA and have clashed
with the national army. These Rebel Militia Groups
(RMGs) are in decreasing number and their activities
have posed fewer threats to civilians.
Inter-communal violence, including the
involvement of armed civilians and
militia
Ethnic tensions, competition over resources, land
disputes and grabbing, cattle-raiding, disaffected
armed youth, lack of sustainable livelihoods, and
migration are all the causes of serious inter-
communal violence in a number of States. These
situations are characterised by a serious breakdown
of law and order and criminality. Tensions between
IDP and refugee returnees and the receiving local
populations have also created inter-communal
violence.
Potential attacks and human rights
violations by SPLA/SSPS against
civilians during security operations
(especially civilian disarmament)
Rather than providing security and protection for the
civilian population, the SPLA/SSPS have been
responsible for attacks against civilians and human
rights violations. The context of civilian disarmament
has presented significant problems, while DDR could
also present a threat to civilians if those demobilised
remain a threat to civilians. Although not common in
South Sudan political strife also presents another
situation in which attacks against civilians could
occur.
Activities of foreign armed groups e.g.
Lord’s Resistance Army
The LRA has been active in various parts of South
Sudan (including Western Bahr el Gazal and Western
Equatoria) and carried out attacks on civilians
NB. Threats to humanitarian personnel and property are considered as part of the strategy but not
necessarily analysed in conjunction with threats to the civilian population.
6
UNMISS PoC strategy protection of civilians threat and risk assessment
Situation Threats Vulnerability Risk States Main counties Main actors
International
armed conflict
between Sudan
and South Sudan
- Aerial bombardment
- Refugee movements
- Insecurity for refugees
- Landmines
- Forced
repatriation/return
- Restriction on freedom
of movement
- Displaced persons from
Abyei
- Forced recruitment
- Child Recruitment
- Conflict-related sexual
violence
- Proximity of
communities to the
border and military
bases
- Lack of
humanitarian
access and
insecurity
-Lack of legal
status and
documentation
- Lack of respect
for refugee law
High - Upper Nile
- Northern Bahr el
Gahazal
- Western Bahr el
Ghazal
- Unity
- Warrap
-Maban
- Aweil North,
Aweil East
-Raja
-Pariang
- SAF
- SPLA
- SPLA-N
- JEM
Internal armed
conflict between
SPLA and non-
state armed groups
(Rebel Militia
Groups)
- Killings
- Destruction of property
and livelihoods
- Attacks and occupation
of schools and medical
facilities
- Child recruitment
- Conflict-related sexual
violence
- Landmines
- Forced displacement
- Women,
children, disabled,
young males and
elderly
- Communities in
which reintegration
of RMGs remains
problematic
- Lack of
law/policy on
internal
displacement
Medium - Upper Nile
- Unity
- Jonglei
- Warrap
-Fashoda, Piji,
Doleib Hill, Banglai
-Mayom, Abiemnon,
Pariang
- Khorflus, Pigi and
Fangak
- Twic
- Shilluk
RMGs
- SSLM/A
- SSDM
Inter-communal
violence, including
the involvement of
armed civilians
and militia
- Killings and injured
- Incitement to violence
- Destruction of property
and livelihoods
- Attacks and occupation
of schools and medical
- Women,
children, disabled,
young males and
elderly
- Weak law
enforcement
High - Jonglei
- Upper Nile
- Western Equatoria
- Most counties
affected
- White Army
- SSPS
- SPLA
- Armed youths
7
facilities
- Looting
- Theft (of cattle)
- Abductions
- Sexual violence
- Forced displacement
agencies
- Availability of
small arms
- Lack of access to
justice and respect
for human rights
- Warrap
- Eastern Equatoria
- Central Equatoria
- Unity
- Lakes
Potential attacks
and human rights
violations by
SPLA/SSPS
against civilians
during security
operations (
especially civilian
disarmament)
- Arbitrary killing
- Arbitrary and prolonged
detention, including of
children
- Physical abuse,
harassment, intimidation
and other forms of ill-
treatment
- Looting and theft
- Sexual violence,
including rape
- Excessive and
disproportionate use of
force
- Communities
without presence of
security forces or
those that are ill-
disciplined.
- Lack of law and
order
- Lack of access to
justice system
- Availability of
small arms and
light weapons
- Poor arms
management
systems
- Poor conduct and
discipline of
security forces
Medium - All states - SPLA
- SSPS
Activities of
foreign armed
groups e.g. Lord’s
Resistance Army
- Killings
- Abductions
- Conflict-related sexual
violence
- Forced displacement
- Women and
children
- Lack of respect of
international
humanitarian and
human rights law
Low - Western Equatoria
- Western Bahr el
Ghazal
- Central Equatoria
- LRA
POC risk (i.e. probability) = Threats (intentions and capabilities of perpetrators) x Vulnerabilities (of targets)
8
16. Given that UNMISS has limited resources and cannot respond to all threats to civilians, it is
important that the Mission prioritises those protection risks to which it will respond. Such a
prioritization is a continuous process based on an on-going analysis of the context through
the early warning system (see below). Each situation will be assessed on a case-by-case basis
for Mission leadership to decide whether the Mission should respond. As per the mandate, of
the mission the main priority are situations in which civilians face the “imminent threat of
physical violence”. In addition, the following criteria will be used when making such
operational decisions on prioritisation:
Accordance with the mandate of the Mission – see relevant paragraphs of resolution 1996
(2011)
Threats to civilians that arise within the context of one of the five different types of
armed conflict and other situations of violence listed above.
Actual, or potential, gravity of the attacks against civilians, including the real or potential
scale of deaths and injuries.
Clear evidence of serious violations of international humanitarian and human rights law.
Indication that the GRSS is unable or unwilling to provide security and protection for
civilians.
Broader impact on peace and security in South Sudan and UNMISS’ mandate in this
regard.
Potential for UNMISS to avert the greatest loss of life and injury to civilians.
Analysis of the Mission’s resources and capabilities (see below) in relation to the
potential threat.
Early warning and response system
17. While the table above provides an overview of the threats to civilians that UNMISS will
respond, it only provides a snap-shot of the risk of these at a given time. The protection risk
assessment is a dynamic and on-going process to identify patterns of abuse and priority areas,
which will take place both as part of the on-going work of key sections in the field, and as
part of the implementation of the UNMISS Early Warning and Response System.7 As
required, contingency plans will also be developed in anticipation of scenarios that may have
a serious impact on the civilian population.
18. The principal PoC elements of this Early Warning and Response System that will be taken
forward in conjunction with JOC and JMAC include:
The development of protection indicators to identify threats to civilians, vulnerabilities
and risks that form part of the Priority Information Requirements (PIR)
7 See UNMISS Early Warning and Early Response Strategy (September 2011) and the draft UNMISS Early
Warning and Early Response SOP.
9
The development of collection of information processes to monitor these indicators,
particularly by: strengthening early warning links with the Church and other civil society
actors in partnership with the NGO Catholic Relief Services (CRS); using community
police relations committees and other civil society groups; improving the protection
reporting of Integrated Monitoring Teams (IMTs) and Integrated Teams/Patrols; and
improved coordination with the Protection Cluster (including for example the
development of a Protection Matrix.)
Improved consultation with local communities to understand better their threats.
Monitoring of PoC threats and civilian casualties as part of the conflict database being
developed by JOC.
The identification of PoC threats as part of the weekly conflict and protection early
warning matrix.
The production of quarterly analytical reports on the medium-to-long terms threats to
civilians with JMAC.
A protocol will be developed with Human Rights Division for the sharing of sensitive PoC
information, particularly in relation to individual protection cases.
Objectives, activities and indicators of progress
19. The DPKO/DFS Operational Concept on PoC provides the conceptual framework for the
implementation of protection mandates by UN peacekeeping operations. It is based around
three tiers of action: 1) protection through political process; 2) providing protection from
physical violence; and 3) establishing a protective environment. Based on UNMISS’
mandated PoC tasks, the strategy’s objectives and activities are organised around these three
tiers in the following table. In terms of tier two and crisis response, the Mission will follow a
cycle of first taking every effort to prevent threats to civilians. Iff this fails, it shall respond,
potentially with the use of force. Onence the crisis subside, it shall consolidate the protective
environment for civilians.8
20. UNMISS has two principal strategic approaches to PoC. Firstly, given that the GRSS has the
primary responsibility to provide security and protection for its civilian population, the
priority role of UNMISS is to assist and advise the GRSS to fulfil this responsibility through
the actions in the table below. Secondly, when the GRSS is either unable or unwilling to
protect civilians, UNMISS will act independently and impartially to protect civilians,
including, if necessary, the use of force. In accordance with the Mission’s Rules of
Engagement, this would only be after all other measures have failed and as a last resort . The
decision about which approach to adopt will be taken by Mission leadership on a case-by-
case basis given the particular PoC challenge confronted by the Mission.
8 See the DPKO/DFS Operational Concept on the Protection of Civilians
10
21. The activities listed in the table are not necessarily undertaken in a sequential manner, but
may be implemented simultaneously for a comprehensive approach to preventing and, if
necessary, responding to threats and attacks against civilians. Mission leadership will decide
what tools and approaches are necessary to address a particular threat to civilians through the
various coordination mechanisms relevant to the protection mandate (see below.)
22. While the table does not relate to the UN County Team and the Protection Cluster and its
Sub-clusters, there are activities contained in it that are also undertaken by these actors.
Where this is the case, UNMISS shall ensure coordination to avoid duplication and
enhancecommon efforts. Each individual humanitarian and development organisations has
not been named in the table, but their complementary protection activites are nonetheless
recognised.
23. The indicators of progress in italics in the table are those that have been presented as part of
the benchmarks to the Security Council, pursuant to resolution 1996. Since these do not
relate to the activities in the table, they have been supplemented by other indicators that are
related to the objectives and activities in the table. However, these indicators do not represent
an exhaustive list of the ones that would be required to monitor the implementation of the
Mission’s protection mandate. Therefore, a more comprehensive list of indicators will be
developed as part of a monitoring plan for the implementation of the strategy and the
UNMISS protection mandate – see section on monitoring below.
11
TIER 1: PROTECTION THROUGH POLITICAL PROCESS
Objective Activities Indicators of progress Responsible
1. I
Increased willingness and
capacity of the GRSS to
fulfil its responsibility to
provide security and
protection for civilians
Advocacy towards, and dialogue with, the GRSS to
ensure a better understanding of the state’s
responsibility to protect civilians.
Support the development of GRSS policies and
strategies on the protection of civilians
Promote improved conduct to reduce the ill-discipline
of SPLA and SSPS in locations where civilians are at
risk of physical attack,
Advocacy towards GRSS to tackle impunity and
strengthen accountability
The incidence of large-scale
armed violence in South Sudan
is reduced consistently over
time.
Effective local and national
mechanisms to mitigate and
resolve conflicts have been
developed, and the public
perceives that the Government
has this capacity.
Early warning and early
response mechanisms are
functional and help identify
threats to civilians.
Protection of civilians is being
accepted as a key responsibility
of the country’s security forces
and enforced by directives and
command orders
Reduced number of acts of ill-
discipline and human rights
violations attributed to the
SPLA and SSPS
Number of peace conference
and other conflict mitigation
and peacebuilding processes
supported
Mission leadership
(SRSG, DSRSGs, FC,
PC, etc.), State
Coordinators
2. A
Armed conflict is reduced
through conflict prevention
and mitigation measures.
Providing ‘good offices’ in peace negotiations between
different parties.
Supporting local government authorities to extend state
authority.
Facilitate and support the work of state and local level
peace actors, including the GRSS (e.g. South Sudan
Peace and Reconciliation Comission), traditional
leaders, youth, women, church groups and others.
Supporting the Government in effectively using its
early warning mechanisms
CAD, PAD, State
Coordinators
TIER 2: PROVIDING PROTECTION FROM PHYSICAL VIOLENCE
Objective Activities Indicators of progress Responsible
3. R
Reduced physical threats to
civilians in the mission area
Technical advice to GRSS security forces (including
the SPLA, SSPS and Wildlife Services) on PoC,
including supporting the production of directives and
Civilian casualties from armed
conflict and violence are
reduced.
Military component,
police component, HRD,
CAD, DMS, JOC,
12
through timely preventive
and if necessary responsive
actions by UNMISS.
codes of conduct.
Assistance to the GRSS security forces to protect
civilians in accordance with the UN Human Rights
Due Diligence Policy (HRDDP). A specific SOP will
be developed by HRD as a framework to guide such
assistance under the HRDDP. 9
Coordination with SPLA/SSPS in relation to their
operations.
Preventive deployment of UNMISS military (including
Company and Temporary Operating Bases) in
prioritised areas at risk of conflict in order to deter
violence against civilians.
Air reconnaissance, short and long duration patrols,
integrated teams of military and civilians, or civilians
only.
Medical evacuation of injured ex-combatants and
civilians, according to developed SOP
Mine action, including the removal of landmines and
explosive remnants of war, and mine risk education.
Engaging with local populations to understand better
their protection concerns and self-protection
mechanisms that the Mission can without exposing
them to greater risk based on do-no harm approaches.
Refuge for civilians that seek safety at UNMISS bases
for which contingency plans should be developed by
the military component in situ.
Engaging with non-state armed groups to remind them
of their obligations to protect civilians (not including
negotiating humanitarian access).
Developing a system for civilian casualty and
protection incident monitoring.
As a last resort, use of force (potentially lethal) against
any party to the conflict found attacking civilians
according to the UNMISS Rules of Engagement.
Cases of forced displacement of
civilian populations are
reduced.
Number of patrols undertaken
by the military, police and
civilian components.
Number of Company and
Temporary Operating Bases
Number of medical
evacuations.
Improved perception of the
civilian population that
UNMISS military presence
enhances their protection
Number of landmines removed
from the ground and areas
cleared
Number of violent attacks
against humanitarian personnel
and property
Number of force protection
escorts/deployments for
humanitarian organisations
UNMACC , State
Coordinators
4. R Deployment, upon request, of UNMISS military in Military component,
9 UNMISS does not in general provide logistical or material support to the operations of SPLA or SSPS and is not mandated to engage in joint operations with
them. Any such role will only be considered on an exceptional basis, if it will demonstrably contribute to the protection of civilians and is in accordance with the
UN Human Rights Due Diligence Policy (HRDDP).
13
Reduced security threats
against humanitarian
personnel and property, and
increased access for them to
populations in need of
assistance.
prioritised areas in which humanitarian operations are
planned or on-going.
Provision of security, including armed escorts as a last
resort, to humanitarian convoys and other movements.
Development – with humanitarian actors – of standard
operating procedures for UNMISS providing security
for humanitarian movements in accordance with IASC
Guidelines on the Use of Military or Armed Escorts for
Humanitarian Convoys.
Sharing security information with humanitarian actors
for their response and security planning.
Ensuring NGOs are invited to Security Management
Teams.
Allowing humanitarian actors to seek refuge and to
store assets at UNMISS bases as a last resort.
police component,
O/DSRSG/RC/HC
TIER 3: ESTABLISHING A PROTECTIVE ENVIRONMENT
Objective Activities Indicators of progress Responsible
5. I
Increased capacity of the
South Sudan Police Service
(SSPS) to provide security
and establish the rule of law.
Mentoring and advising the SSPS, including through
co-location arrangements.
Training the SSPS on human rights, child rights and
protection, gender-based violence, etc.
Facilitating community involvement in security and
law enforcement through the creation of Police
Community Relations Committees.
Advice on policy, planning and legislative
development in relation to the SSPS.
Monitoring and reporting on arbitrary and prolonged
detention and other human rights violations.
Development of police misconduct and oversight
bodies.
Legislation governing SSPS
operations including
mechanisms for ensuring police
accountability, oversight,
reliable and transparent
registration is adopted.
A National Human Rights
Action Plan is adopted and
there is demonstrable evidence
of the National Human Rights
Commission meeting the Paris
Principles
Mechanisms are in place to
hold human rights perpetrators
among Security Forces
accountable..
Grave violations of child rights
are reduced as a result of the
Monitoring and Reporting
Police component, HRD,
Child Protection
6. L
Less impunity and greater
accountability for violations
of international
humanitarian and human
rights law.
Human rights investigation, monitoring and reporting,
including the issuing of public reports.
Strengthening civil society capacity on human rights.
Capacity building and strengthen national human rights
institutions, including the South Sudan Human Rights
Commission.
HRD
14
Mechanism and the
implementation of the Action
Plan by relevant parties
Child recruitment and use by
security institutions is
prohibited and enforced by
directives and command orders
Relevant parties support
monitoring and reporting
mechanisms on cases of sexual
violence in conflict and such
conflict-related cases are
reduced.
A national security strategy is
developed and is consistent
with international standards
and South Sudan’s
international obligations..
There is evidence of increased
effectiveness of the Rule of Law
and Justice Institutions
including the Prison System.
A Military Justice System,
complementary to the Civil
Justice System, is developed.
Arbitrary and prolonged
detention decreases
significantly
Number of training events on
various protection issues
Existence of commitments
related to conflict-related
sexual violence
7. Protection for groups
exposed to specific
protection risks, such as
women or children
Monitoring and Reporting Mechanism (MRM) on
children associated with armed conflict
Implementation of an Action Plan with SPLA to
prevent child recruitment and ensure release of children
from the SPLA and other associated security forces.
Release of abducted women and children
Establishment of Monitoring, Analysis and Reporting
Arrangements (MARA) on conflict-related sexual
violence (including collaboration with GBV sub-cluster
IMS system).
Negotiation with armed actors for them to adopt
commitments to prevent conflict-related sexual
violence
Support the Special Protection Units of the SSPS to
function more effectively
Child Protection,
Women’s Protection
Advisors, HRD, police
component
8. R
Reformed security sector
and justice system and
reduction of the availability
of Small Arms and Light
Weapons (SALW)
Support to bodies providing civilian oversight and
governance of the security sector
Support to the development of a national security
policy.
Advocacy and capacity building with the SPLA and its
Division of Military Justice to investigate and
prosecute SPLA members that have committed crimes.
In collaboration with UNDP, support to the prison
system Capacity building of national mine action
institutions
Support and technical advice to the South Sudan
Bureau for Community Security and Small Arms
Control and Ministry of Interior
Training and advocacy to SPLA, SSPS and civil
society on SALW control
Stockpile management (gun marking, storage and
registration) for all security forces
ROLSISO (SSR,
Military Justice, etc.),
UNMACC, DDR
15
Analysis of resources and capacities
24. According to resolution 1996 (2011) UNMISS should “use all necessary means, within the
limits of its capacity and in the areas where its units are deployed, to carry out its protection
mandate”. The Security Council has also requested in resolution 1894 (2009) “that mandated
protection activities must be given priority in decisions about the use of available capacity
and resources”. UNMISS should therefore ensure that all available resources and capacities
are used to protect civilians, especially in scenarios where this priority competes with other
elements of the mandate. However, there are significant constraints to what can be achieved,
given that these resources and capacities are limited. Furthermore, the Mission frequently
faces critical gaps in these resources and capacities that can significantly undermine its
ability to deliver its PoC mandate. A cursory analysis of the Mission’s resources and
capacities required for it to fulfil its protection mandate reveals the following most critical
gaps:
Current shortfall in the number of deployed troops compared to the mandated level of
7,000.
Insufficient logistical assets (particularly military aircrafts) to transport and support
deployed troops.
Lack of a riverine capability to patrol and respond to protection problems throughout the
country.
Limited UNMISS presence yet at the county level in County Support Bases
Limited time on the ground during military and civilian patrols and monitoring Missions,
due to lack of air assets and security constraints.
Incomplete recruitment process of staff working on protection issues.
Lack of sufficiently trained personnel on PoC in the Mission.
Impeded freedom of movement of UNMISS troops and personnel (including violations of
the SoFA).
25. UNMISS will use the recently-developed DPKO/DFS Resource and Capability Matrix to
develop a tool to more systematically identify and monitor the critical resources and
capability gaps and highlight these to headquarters at crucial milestones, such as the issuance
of the Secretary-General’s reports and the renewal of the Mission’s mandate.
Training
26. The Security Council recognized in resolution 1894 the importance of training on PoC for
UN peacekeeping operations. DPKO/DFS have recently finalized generic training modules
on PoC to be used in pre-deployment training and potentially for in-Mission training. The
UNMISS Integrated Mission Training Centre (IMTC) is the process of customising these
training modules to the South Sudan context. A training plan so that the modules can be
rolled-out to relevant UNMISS staff in a variety of different training and briefing sessions,
particularly at the State level, has been adopted to the PoC Working Group. By early 2013, a
training session on PoC will have been delivered in each of the ten States in South Sudan.
The UNMISS PoC Strategy will be an integral part of the training that takes place.
16
Coordination mechanisms
27. Coordination is vital to the implementation of the strategy given that PoC is a whole-of-
Mission responsibility requiring close coordination between a range of different components,
divisions and sections. The Mission also needs to coordinate closely with a number of
external protection actors. The principal coordination mechanisms related to PoC are:
Within the Mission
a. Protection of Civilians Working Group and Technical Group (Headquarters)
The PoC Working Group (see Terms of Reference) is the main coordination structure within
UNMISS at headquarters that brings together the relevant Mission components, divisions and
sections working on PoC. Chaired by the DSRSG/P, its purpose is to provide strategic
direction and policy guidance on the implementation of the UNMISS protection mandate. It
meets monthly and, as required, on a more regular basis on thematic issues or specific PoC
challenges. The PoC Working Group is supported by a PoC Technical Group (see Terms of
Reference). Chaired by the Senior Advisor on PoC and RRP, this meets on a weekly basis.
Its purpose is to discuss PoC issues and challenges confronting UNMISS, and formulate
proposals and documents to be addressed by the PoC Working Group.
b. Protection of Civilians Task Force (State)
The PoC Task Force (see Terms of Reference) is the counterpart to the PoC Working Group
at the State level. Chaired by the State Coordinator, it acts as the main forum in which
analysis is conducted and operational decisions are taken at the State level to implement the
UNMISS protection mandate. In particular, it will oversee the development of an Action Plan
to implement the overall UNMISS PoC strategy, given that protection threats are different
from state to state. The PoC Task Force is currently not meeting in all States and this should
be mandatory as part of the implementation of this strategy.
c. Other relevant coordination mechanisms
While not explicitly related to PoC, there are other coordination mechanisms relevant to this
mandated task. In particular, the Mission Leadership Team and the Senior Management
Group10
are the fora in which senior Mission leadership make day-to-day operational
decisions related to the UNMISS protection mandate. In the event of a significant PoC event,
a Crisis Management Team11
will be created. The Joint Operations Centre (JOC) at
headquarters, and the State Operations Centre at the state level, are the fora in which
information is shared daily on the protection problems and the operational response required
10
See UNMISS Decision Making System and Headquarters Routine (August 2011) for modalities of the Mission
Leadership Team, Senior Management Group, and Crisis Management Team 11
See Crisis Management SOP (October 2011)
17
UNHCR /
OCHA
UNHCR /
OCHA
UNMISS Protection of Civilians (POC) Coordination Structures
Protection of Civilians Task Force
(State)
Chair: State Coordinator
Participation: HRD, RRP, CAD, POC
Adviser, UNPOL, SMLO, OCHA, UNHCR
(Meeting Monthly)
Protection of Civilians Working Group (HQ)
Chair: DSRSG/P
Participation: DSRSG/RC/HC, FC, PC, HRD, CAD,
POC Adviser, RRP, JOC, JMAC, OCHA, UNHCR etc.
(Meeting Monthly)
National
Protection Cluster
Chair: UNHCR +
NGO
Strategic
Guidance
and Policy
County Level
Thematic Meetings
(e.g. IMT Review Meetings)
Ad Hoc
State Protection
Cluster
Chair: UNHCR +
NGO
Operational
Feedback
Protection of Civilian
Technical Group (HQ)
Co-Chair: POC Adviser +RRP
Participants: Military,
Police, JOC, HRD, CAD,
OCHA, UNHCR, etc.
(Meeting Weekly)
18
is coordinated.12
There are also other relevant coordination mechanisms on specific components
of the UNMISS PoC Strategy e.g. the MRM Task Force related to children and armed conflict
(co-chaired by UNICEF and UNMISS) and the soon-to-be-established coordination mechanism
related to conflict-related sexual violence (the so-called MARA.)
With external actors
d. With the Government of the Republic of South Sudan (GRSS)
There are coordination mechanisms with the GRSS relevant to PoC. In particular, the bi-
weekly UNMISS-GRSS Mechanism on Mandate Implementation provides of an opportunity
for UNMISS senior leadership to coordinate with the GRSS on significant policy and
operational PoC issues. The UNMISS military component has also established a coordination
mechanism with the SPLA, both at the national and state levels, to share information and
operational matters. UNMISS’ civilian component sections also closely coordinate with their
respective line ministries of the GRSS in which PoC issues will be addressed. At the state
level, the State Coordinators use their regular meetings with the Governor to raise PoC
issues.
e. With the Protection Cluster
A number of activities included in the strategy (e.g. child protection, human rights, sexual
violence, etc.) are also addressed by humanitarian actors and therefore close coordination is
required with the Protection Cluster, which is the parallel coordination mechanism to the
UNMISS PoC Working and Technical Groups for the humanitarian community. Relevant
UNMISS sections participate in the Protection Cluster and its sub-clusters, and UNHCR, as
UN co-lead of the Protection Cluster and OCHA, to represent the broader humanitarian
community, attend both the UNMISS PoC Working Group and Technical Group. However,
to ensure respect for the neutrality and independence of humanitarian action, neither
UNMISS, nor or the PoC Working Group coordinate or task humanitarian partners outside of
the Mission, who develop their own strategies and work plans. Similarly, the Protection
Cluster does not task UNMISS participants. The purpose of these arrangements is to ensure a
two-way flow of information, joint prioritization and strategic cooperation.
f. With other UN peacekeeping and other Missions in the region
Under resolution 1996 (2011) UNMISS is required to closely coordinate its activities related
to the Lord’s Resistance Army (LRA) with MONUSCO and BINUCA, under the political
leadership of UNOCA, as articulated in the draft UN LRA Regional Strategy. This includes
the sharing of information and coordinating operations, including in support of the AU
Regional Cooperation Initiative for the Elimination of the LRA (RCI-LRA), which includes a
12
The JOC provides situational analysis and operational reporting in order to inform effective decision-making by
senior leadership in relation to PoC as well as a forum for the development of integrated operational plans and the
tasking in relation to these plans.
19
Regional Task Force (RTF) of national armies form the region that has a Joint Operations
Centre (JOC) in Yambio, Western Equatoria.13
UNMISS also coordinates its PoC activities
with UNISFA. While UNISFA is responsible for border monitoring through overseeing the
management of the Joint Border Verification and Monitoring Mechanism (JBVMM),
UNMISS is responsible for PoC up until the border with respect to threats against civilians
on the territory of South Sudan.
g. With the local population
Engagement with the local population is vital to understanding protection threats and
supporting the self-protection measures that communities normally have in place. Each
UNMISS military base should establish contact with the community leaders and local
population and use existing community committees or networks to address protection
problems that can be discussed so that the Mission can adjust its operational plans
accordingly. This will require the recruitment of more interpreters and liaison officers
(especially female staff to ensure interaction with women in communities). UNMISS is
integrated into the structures of CEWERS at national and state levels, which provides an
additional source of regular information provided directly by local communities.
Roles and responsibilities
28. Since such a wide range of actors in the Mission are involved in PoC it is important that there
are clear roles and responsibilities.
Senior Mission leadership (SRSG, DSRSGs, FC, PC, etc.)
The SRSG is overall responsible for the implementation of the UNMISS protection mandate.
Strategic direction is provided and decision-making takes places through the Mission
Leadership Team and Senior Management Group. The DSRSG/P is responsible for
coordinating the Mission’s PoC strategic approach and actions through the PoC Working
Group that he chairs. The DSRSG/RC/HC is also a member of the PoC Working Group and
ensures linkages on PoC between the Mission and the Humanitarian Country Team and the
Protection Cluster. The Force Commander has the authority for the use of force in the
Mission and providing clear directives to the Troop Contributing Countries (TCC) troops on
this task. Likewise, the Police Comissioner has authority for the operational plan of the
police component. A principal responsibility of the senior mission leadership is engaging
with the GRSS (including the SPLA and SSPS) in relation to its PoC responsibilities.
Military component
The military component’s principal role relates to the physical protection part of the
UNMISS strategy (see tier 2 above). All UNMISS military personnel should be aware of
13
Referenced should be made to the UN regional strategy that is currently being developed under the leadership of
UNOCA with all UN presences in the LRA-affected countries.
20
their responsibilities in relation to the protection mandate of Mission through this strategy
and the Rules of Engagement. In addition to this strategy, more detailed operational
directives on PoC will be sent out by the Force Commander to the UNMISS military
component troops as parts of Operations Orders, Fragmented Orders, Directives, and
Contingency Plans.
Police component
The UNMISS police component’s principal role on PoC relates to establishing a protective
environment (see tier 3 above) and in particular strengthening security and law enforcement
through support of the SSPS in the form of capacity-building, deployment, advice, mentoring
and training.
Civilian component
The majority of civilian component divisions and sections have a clear role to play in terms
of PoC. Given resolution 1996, particular attention must be given to the protection of
children and women. Each division and section should be aware of their activities which
contribute to the Mission’s overall implementation of its protection mandate through this
strategy. The relevant Head of Division/Section is a member of PoC Working Group. In
addition, and as required, they should also designate a Focal Point to follow the coordination
of PoC across the Mission.
State Coordinators
The State Coordinators are responsible for implementing the strategy at the state level14
through the PoC Task Forces and by developing Action Plans to respond to the protect risk
assessments that they carried out. This protection risk assessments should be up-dated on a
regular basis and identified threats reported.
PoC Advisors
The responsibility for PoC has been mainstreamed throughout the Mission and therefore it is
not functionally located in any one component or section. Nevertheless, a Senior Advisor on
PoC is located in the Office of the SRSG and a Protection Advisor in the O/DSRSG/RC/HC.
Three PoC Advisors are being recruited for selected State offices whose role it is to help
coordinate the implementation of this strategy at the State level.
29. In order to rehearse roles and responsibilities related to PoC, especially in relation to crisis
situations, table-top crisis management exercises will be organised by the JOC for senior
Mission leadership and others involved in PoC. The first of these took place in November
2011 and a further one is scheduled for later in 2012.
14 See para 14 of the Directive on the Role and Responsibilities of UNMISS State Coordinators, 27 October 2011
21
Public information, including expectation management
30. As already pointed out UNMISS does not have the resources and capabilities to protect all
civilians. However, this unrealistic popular expectation of the Mission nonetheless prevails.
Furthermore, when civilians are not protected, it is the Mission that is criticised first, calling
into question itscredibility and wider legitimacy. Public information is therefore critical for
explaining to all stakeholders (particularly the local population) the protection mandate of
UNMISS and managing the expectations of what the Mission can realistically do to protect
civilians. Public information is also a useful tool to remind the GRSS and armed groups
about their obligations to ensure the protection of civilians. A range of public information
methods and tools will be developed by PIO to convey these important key messages related
to UNMISS’ protection mandate, including: public statements from the SRSG and senior
leadership and the relayof messages through Radio Mariya and other radio in local
languages. Outreach will be an essential part of this communication plan that will require
working with community representatives, traditional chiefs and religious leaders.
Monitoring and reporting
31. A monitoring system will be developed to review and measure the implementation of this
strategy and UNMISS’ protection mandate. The benchmarks and accompanying indicators of
progress that have been presented to the Security Council will provide the overall framework
for this system for measuring the Mission’s effectiveness in this area. However, as indicated
above, these indicators are not comprehensive and therefore a separate monitoring plan will
be developed as part of the action plans developed by the States.
32. Measuring progress and impact related to PoC is extremely challenging. Nevertheless,
various methods can be employed. For example, civilian casualty and other protection threat
monitoring will help assess changes in the overall context. Specific UNMISS PoC activities
(such as the number of patrols and human rights investigation) could be more monitored and
reported on more systematically. The most important measure of whether the Mission is
having an impact on protecting civilians is arguably the perception of the local population,
which can be assessed through focus groups and surveys. Lessons learned exercises and after
action reviews will also be used to evaluate and learn from the Mission’s response to specific
PoC crises.
33. UNMISS has specific reporting requirements related to its protection mandate. A dedicated
section on PoC is included in the SG’s periodic reports to the Security Council, which
provides an overview of the main developments and challenges related to the implementation
of the protection mandate. Regular situation reports and other reporting requirements also
22
provide an opportunity to follow the more day-to-day activities of the Mission in relation to
PoC.
Reference documents
UN Security Council resolution 1674 (2006) and 1894 (2009) on the protection of civilians
UN Security Council resolution 1996 (2011) on South Sudan
DPKP/DFS Operational Concept on the Protection of Civilians in UN Peacekeeping
Operations, April 2010
DPKO/DFS Framework for Drafting Comprehensive PoC Strategies in UN Peacekeeping
Operations
UNMISS Mission Concept
Concept of operations and Mission framework on PoC
UNMISS Military Strategic Concept of Operations (CONOPS), 26 September 2011
UNMISS Rules of Engagement
Role of UNMISS Police in the Protection of Civilians
UNMISS Early Warning and Early Response Strategy, 1 September 2011
UNMISS Early Warning and Early Response SOP (Draft)
UNMISS Decision Making System and Headquarters Routine (August 2011)
Terms of Reference for PoC Working Group and PoC Task Forces
South Sudan Protection Cluster Strategy 2012
UN Human Rights Due Diligence Policy (HRDDP).
Directive on the Role and Responsibilities of UNMISS State Coordinators, 27 October 2011