In the midst of the 1990s, UN peacekeepers found themselves deployed in internal conflicts where the civilian population was frequently targeted in attacks. Missions such as MINUAR in Rwanda and FORPRONU in ex-Yugoslavia were faced with systematic attacks against civilians that the peacekeepers were not prepared to face. These conflicts, as well as those in Somalia, Sierra Leone, and East Timor, saw armed groups targeting civilians, especially through the use of sexual violence as a war tactic and serious violations of child rights.
The Security Council therefore placed the protection of civilians on its agenda and developed an architecture of solutions strengthening the role of peacekeepers in protection matters. Mandates and rules of engagement were defined so that peacekeepers had the power to act. The Council also adopted resolutions aimed at establishing frameworks to address the issue of children in armed conflicts and conflict-related sexual violence.
It is always the responsibility of states to protect their own populations first. The primary role of peacekeepers is to help governments fulfill their protection responsibilities through advice, technical and logistical support, and capacity-building. Peacekeeping missions also seek to, through political good offices and mediation, adopt a preventive approach to protecting civilians. That said, many peacekeepers are authorized, as a last resort, to act to physically protect civilians.
Over 95% of UN peacekeepers are now tasked with protecting civilians
This includes protecting children and safeguarding against conflict-related sexual violence. The vast majority of peacekeepers currently serve in missions whose mandates prioritize the protection of civilians. The High-Level Group tasked with studying peace operations found that civilian protection is a fundamental obligation of the entire UN system, not just peacekeeping. These activities find their most visible expression in the work of peacekeepers. The challenges posed by the mandate often relate to the criteria by which the international community, and those we seek to protect, judge our value as peacekeepers.
How do we protect those affected by conflict?
Nowadays, peacekeeping has a number of instruments to support civilian protection:
- Political leaders engage with governments and other actors to mitigate and prevent conflicts;
- Civil experts, including child protection advisors, women protection advisors, and civilian protection advisors, carry out activities to demobilize child soldiers, persuade armed groups to abandon sexual violence, and coordinate military operations to protect civilians;
- Our soldiers and police officers deploy unique skills to enhance security and stability;
- Experts in the rule of law and fundamental rights further ensure the creation of a protective environment.
A challenging mandate
As expected of an organization that serves as a last resort in times of conflict and crisis, peacekeepers face challenges and constraints, especially in terms of civilian protection. Even the large peacekeeping missions deploy relatively few personnel compared to the size of the territory and population. MONUSCO, for example, deploys over 17,000 soldiers and operates in a country of over 82 million inhabitants spread over more than 2.3 million square kilometers (equivalent to one soldier for every 4,800 people and 135 square kilometers). This is exacerbated by the fact that many countries where peacekeepers are deployed suffer from instability, often with poor infrastructure and limited local security services. Meeting these challenges for peacekeeping missions requires careful planning and strategy to protect as many people as possible. It is also important to ensure that the host government, the population, and the international community understand the importance of peacekeepers, as well as their inherent limitations.
25 years of civilian protection
Over the past 25 years, the mandate for civilian protection has become a cornerstone of UN peacekeeping operations, shaping how missions prevent and respond to violence against civilians. To commemorate this 25-year journey, a collection of personal stories and reflections illustrating efforts in frontline civilian protection is shared. This series of Profiles in Civilian Protection traces the evolution of the mandate from its creation in 1999 to today. From operations on the ground in conflict-affected areas to strategic decision-making at the UN Security Council, the stories illustrate the breadth of contributions of those advancing the civilian protection mandate, sharing their perspectives and honoring their commitment to protecting civilians and promoting peace in some of the world’s most challenging conflicts.
The twenty-three protection profiles can be read in this special booklet.
