2000 PKO 1990 PKO PKO PKO PKO 3 2. 現状 (1) 活動内容と設立根拠 UNAMA UNAMI UNSCO 3 i-1 2 A 1 Track One diplomacy この表現は
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1 1 下谷内奈緒 1990 PKO PKO PKO PKO 1. 背景 PKO PKO lead department PKO UNAMA 1989 UN Transition Assistance Group: UNTAG PKO 2 PKO PKO PKO 1 Report of the Office of Internal Oversignt Services on the audit of the management of special political missions by the Department Political Affairs, UN Document A/61/357 (19 September 2006), para この用語は 平和への課題 補足 (1995)(UN Document A/50/60 S/1995/1) で使われた 5
2 2000 PKO 1990 PKO PKO PKO PKO 3 2. 現状 (1) 活動内容と設立根拠 UNAMA UNAMI UNSCO 3 i-1 2 A 1 Track One diplomacy この表現は PKO 局幹部へのインタビューによるところが大きいことを付記したい 4 Report of the Office of Internal Oversight Services on the in-depth evaluation of political affairs: special political missions, UN Document E/AC.51/2007/2/Add.4 (1 May 2007), para Ibid. para Ibid. para
3 Mediation Support Unit Policy and Mediation Division / PKO Special Advisor Special Envoy PKO lead department PKO 10 B 3 ACABQ 2010/ CNMC 3 UNOWA UNRCCA 4 BINUB UNIOGBIS UNIPSIL BINUCA 1 1 UNSCO UNSCOL Special Coordinator: SC Personal Representative: PR 2 CNMC 7 Ibid. para A More Secured World: Our Shared Responsibility ( The Report of the High-level Panel on Threats, Challenges and Change: 2004). 9 国連事務局事務総長特別顧問室におけるインタビュー ( ニューヨーク 2010 年 2 月 19 日 ) 10 Report of the Secretary General: Estimate in respect of specialpolitical missions, good offices and other political initiatives authorized by the General Assembly and/or the Security Council, UN Document A/64/349 (27 October 2009), para Ibid. paras
4 UNMIN PKO UNMIN 3 2 UNRCCA 4 4 SRSG Executive Representative of the Secretary General: ERSG 12 Resident Coordinator: RC Humanitarian Coordinator: HC UNDP Resident Coordinator: RC Designated Official for Security: DO 5 IMF Poverty Reduction Strategy Paper: PRSP BINUB PKO PKO UNPOS UNPOS PKO UNOSOM II PKO PKO 山内麻里 国連における平和構築支援の潮流 日本国際連合学会編 平和構築と国連 ( 国際書院 2007 年 )125 頁 上杉勇司 国連統合ミッションにおける人道的ジレンマ 平和構築と国連 155 頁参照 13 安保理は決議 1863(2009 年 1 月 ) で 6 月 1 日までに安保理がさらなる決定を行うことを条件にソマリアに国連 PKO を展開する意図を表明したが それ以降 安保理がさらなる決定を行っていないために国連 PKO は展開しておらず 現在に至るまでアフリカ連合 (AU) による平和維持部隊がその任にあたっている また 同決議では UNPOS 内に 武装解除 動員解除及び社会復帰 (DDR) 部門を設立する権限が付与された 8
5 PKO inter-agency strategic assessment inter-agency technical assessment Policy Committee of the Secretary General cost-effective 16 PKO C UNAMA UNAMI UNAMA UNAMI / SRSG UNAMI PKO UNAMA UNAMI NATO ISAF UNAMA PKO UNAMI UNAMA UNAMI PKO UNAMI PKO PKO PKO 17 UNAMI PKO 同政策委員会は2005 年に事務総長によって戦略的決定を行う場として立ち上げられた 15 Report of the Secretary General UN Document A/64/349 para Ibid. para 国連事務局における UNAMI 担当官へのインタビュー ( ニューヨーク 2010 年 2 月 16 日 ) 9
6 図 1-1: 現地特別政治ミッションの分類 注 : 筆者作成 (2) 予算 2 political affairs 3 political affairs B Section 3B UNSCO 2 3 Section 3C , , , / , programme budget ACABQ 19 UNSCO 438, UNAMI , UN Document A/64/548/Add.1 (21 January 2010), paras Fourteenth report of the Advisory Committee on Administrative and Budgetary Questions on the proposed programme budget for the biennium : Estimates in respect of special political missions, good offices and other political initiatives authorized by the General Assembly and/or the Security Council, UN Document A/64/7/Add.13 (11 December 2009). paras 5 and 第 1 クラスターのうち現地事務所のあるキプロス担当特別顧問と大湖地域特使 (2009 年度は PKO 予算から拠出されたので 2010 年度要求額で計算 ) の予算を含んでいる UNSCO については 2008/2009 年 2 ヵ年の予算を半分に割って計算した また 10
7 UNAMA UNAMI (3) 人員 ,344 UNSCO 4, UNMIN UNIOGBIS 表 1-1: 特別政治ミッション通常予算の動向 ( 単位 : 千ドル ) 年総額対前年度増加率 , , , , , , , , , 出典 :A/64/349 を元に作成注 : 承認ベース 統合平和構築事務所への移行があった中央アフリカ共和国 ギニアビサウについては その前進の平和構築ミッションの 2008/2009 年 2 ヵ年予算を半分に割って計算した 21 UNSCO BINUCA UNIOGBIS については注 20 と同様の理由で 2010 年度請求予算時のポストを計上 そのほかについては 2009 年度通常予算で認められたポスト数 22 Report of the Office of Internal Oversight Services on the in-depth evaluation of political affairs: field special political missions led by the Department of Political Affairs but supported by the Deaprtmnet of Field Support, UN Document E/AC.51/2008/2 (14 April 2008), para
8 図 1-2: 特別政治ミッション通常予算の内訳 (2009 年 ) 出典 : A/64/349 図 1-3: 現地特別政治ミッションの予算と人員 (2009) 出典 :A/64/349, A/64/6 (sect.3) 12
9 表 1-2: 欠員率 承認人員数 ( 注 2) 2009 年 12 月現在の人員数欠員率 (%) キプロス担当特別顧問 20 不明 N/A 大湖地域担当特使 14 不明 N/A UNOWA BINUCA UNIOGBIS UNPOS UNIPSIL CNMC 22 不明 N/A UNRCCA BINUB UNMIN UNSCOL UNAMA UNAMI UNSCO 計 ( 平均 )18.2 出典 : A/64/349, A/64/6 (sect.3), "UN Political and Peacebuilding Missions (Backgdound Note: 31 December 2009)" 注 1: 欠員率は ( 承認人員数 - 実際のスタッフ数 ) (( 承認人員数 - 実際のスタッフ数 ) + 実際のスタッフ数 ) 100 で計算 注 2: UNSCO は 2008/2009 年度の承認数 BINOCA と UNIOGBIS は 2010 年請求数 それ以外は 2009 年承認数 (4) マンデートの更新およびミッション形態の移行 take note 26 1 PKO BINUB UNIPSIL 2 BINUCA UNIOGBIS 3 UNSCO UNSCOL UN Document A/64/349 para Ibid. para Ibid. para Ibid. para Ibid. paras 51 and 52, and UN Document A/64/7/Add.13 para
10 28 (5) 後方支援 3 UNAMA UNAMI Department of Field Support: DFS 1 2 Executive Office IT 2007 PKO PKO PKO UNAMI UNIOGBIS BINUCA 批判と問題点 PKO Office of International Oversight Services: OIOS ACABQ (1) 内部監査室 (OIOS) の報告書 60/ OIOS A/61/ OIOS 1 lead department UNAMA UNAMI PKO PKO standard operating procedure exit 28 UN Document A/64/349 para Ibid. para Ibid. para Ibid. para 国連総会決議 60/255のこの内部監査に関する要求は ACABQ の提言 (UN Document A/60/7/Add.37) に基づいている 14
11 strategy PKO OIOS Committee for Programme and Coordination OIOS (2) 行財政問題諮問委員会 (ACABQ) の報告書 ACABQ 2010 result-based budgeting 36, ACABQ UNRCCA 39 PKO 40 UNAMA UNAMI 33 Official Records of the General Assembly, Fifty-ninth Session, Supplement No.16: Report of the Committee for Programme and Coordination, UN Document A/59/16 (19 July 2004), para UN Documents E/AC.51/2007/2/Add.4 and E/AC.51/2008/2. 前者のうち特使等に関する報告 提言については 本章第 2 節 (1) の第 1 クラスターに関する説明参照 35 UN Document E/AC.51/2008/2 36 結果志向予算はアナン前事務総長の国連改革の一環として導入された 37 Report of the Advisory Committee on Administrative and Budgetary Questions: Estimates in respect of special political missions, good offices and other political initiatives authorized by the General Assembly and/or the Security Council, UN Document A/63/ UN Document A/64/349 なお 同文書は 本章第 2 節において 事務局の説明として記載している 39 UN Document A/64/7/Add.13 paras. 13 and Ibid. para
12 41 PKO 42 (3) 加盟国の反応 OIOS ACABQ 3 PKO UNAMI UNAMA PKO PKO PKO 43 CANZ G77/ 44 PKO PKO PKO 課題 (1) 管轄をめぐる問題 2000 SRSG 46 PKO lead department policy Ibid. para Ibid. paras. 18 and See Statement by Mr. Akihiro Okochi, Counsellor Permanent Mission of Japan to the United Nations Agenda item 132: Special political missions (17 December 2009), Statement by Mr. Ken Mukai, Counsellor, Permanent Mission of Japan to the United Nations On Agenda Item 118: Programme Budget for the Biennium (Estimates in respect of special political missions, good offices and other political initiatives, authorized by the General Assembly and/or the Security Council), (16 December 2008) and Statement by Mr. Ken Mukai, Counsellor, Permanent Mission of Japan to the United Nations, Agenda item 128, Strengthening of the Department of Political Affairs (17 March 2008). 44 See, for example, Statement by Philippe Lafortune, First Secretary of the Permanent Mission of Canada to the UN Fifth Committee on Behalf of CANZ, rgarding Item 132: Proposed Programme Budget : Special Political Missions (17 December 2009) and Statement by Ms K Lock on behalf of the Group 77 and China on Agenda Item 124: Programme Budget for the Biennnium (Estimates in respect of Special Political Missions, Good Office and Other Political Initiatives, authorized by the General Assembly and/or Security Council) (21 March 2006). 45 UN Document GA/AB/3725. なお 国連 PKO についてはミッションごとに特別会計が設定され PKO 特別分担率に従って経費が拠出される PKO 特別分担率は通常予算の分担率に比べると途上国の負担が軽減され その分 安保理常任理事国が負担するように設定されている ( 城山英明 国連財政システムの現状と課題 日本国際連合学会編 グローバルアクターとしての国連事務局 ( 国際書院 2003 年 )p Report of the Panel on United Nations Peace Operations (UN Document A/55/305 S/2000/809, 2000), para Ibid. para
13 Integrated Mission Task Force: IMTF IMTF PKO 48 IMTF UNAMA UNAMA IMTF IMTF Integrated Missions Planning Process: IMPP IMTF PKO lead department policy 53 Lead department policy 2002 political and peace-building offices in the field PKO 54 UNAMA UNAMI PKO PKO 55 focal point 56 PKO PKO 57 PKO 48 Ibid. para Griffin, M., "The helmet and the hoe: linkages between United Nations development assistance and conflict management," Global Governance, Vol.9 (2993), pp , cited in SIPRI Yearbook 2008: Armaments, Disarmament and International Security (2008), p Report of the Secretary-General: Implementation of the recommendations Committee on Peacekeeping Operations, UN Document A/60/640 (29 December 2005), para Integrated Missions Planning Process (IMPP) Guildelines Endorsed by the Secretary General (13 June 2006). 52 Report of the Office of Internal Oversight Services on the audit of the management structures of the Department of Peacekeeping Operations, A/61/743 (14 February 2007), para Un Document A/64/349 para Strengthening the United Nations: An Agenda for Further Change, UN Document A/57/387 (9 September 2002), para Secretary-General s Bulletin Organization of the Department of Political Affairs, UN Document ST/SGB/2009/13 (1 October 2009) and Secretary-General s bulletin Organization of the Department of Peacekeeping Operations, UN Document ST/ SGB/2010/1 (5 February 2010). 56 Secretary-General s bulletin Organization of the Department of Political Affairs, UN Documnt ST/SGB/2000/10 (15 May 2000), 2.1.(a). 57 UN Document ST/SGB/2010/1 2.1.(a). 17
14 PKO PKO PKO Policy Planning Unit: PPU 2007 MSU Guidance and Learning Unit Regional Organizations Unit Policy and Mediation Division 58 PKO Policy, Evaluation and Training Division 59 PKO (2) 透明性と柔軟性をめぐる問題 PKO PKO UNSCOL UNPOS UNOWA UNRCCA UNAMA UNMIN BINUB UNIPSIL UNIOGBIS BINUCA take note UNAMI 1559 UNAMA UNAMI UNPOS UNMIN PKO PKO UNSCOL PKO UNIFIL UNSCOL UNPOS PKO UNPOS PKO UNSCO UNOWA UNRCCA UNPOS UNMIN 1559 PKO PKO UNSCO 58 政務局におけるインタビュー ( ニューヨーク 2010 年 2 月 18 日 ) 59 Ibid. 18
15 60 UNAMI prejudge 61 PKO overstretch PKO 63 PKO OIOS ,000 図 1-4: 国連 PKO における軍事要員の推移 100,000 Nov 2009: 98,114 (MONUC, UNAMID, UNIFIL) Number of Uniformed Personnel 80,000 60,000 40,000 Jul 1993: 78,444 (Largest missions: UNPROFOR, UNOSOM, UNTAC) Nov 2001: 47,778 (UNAMSIL, UNTAET) Oct. 2006: 80,976 (MONUC, UNMIL, UNMIS, UNIFIL) Troops Military Observers 20,000 Police Total Jan 1991-Jan 1992-Jan 1993-Jan 1994-Jan 1995-Jan 1996-Jan 1997-Jan 1998-Jan 1999-Jan 2000-Jan 2001-Jan 2002-Jan 2003-Jan 2004-Jan 2005-Jan 2006-Jan 2007-Jan 2008-Jan 2009-Jan 出典 : 国連 PKO 局ホームページ 60 国連事務局における UNSCO 担当官へのインタビュー ( ニューヨーク 2010 年 2 月 19 日 ) 61 国連事務局における UNAMI 担当官へのインタビュー ( ニューヨーク 2010 年 2 月 16 日 ) 年 12 月現在 計 15の PKO ミッションが展開し 総勢 119,577 名 ( うち軍事要員 97,858 名 国際文民要員 5,827 名 現地文 民要員 13,330 名 ) が従事している 2009 年 7 月 1 日から2010 年 6 月 30 日までの承認予算は 約 77.5 億ドルである ( 国連 PKO 統 計 "United Nations Peacekeeping Operations (Background Note: 31 December 2009) より ) 63 酒井啓亘 国連安保理の機能の拡大と平和維持活動の展開 村瀬信也編 国連安保理の機能変化 ( 東信堂 2009 年 )112 頁 19
16 Service Level Agreement standard operating procedure ACABQ PKO おわりに SRSG PKO PKO PKO 7 non-paper PKO 66 PKO 64 Ibid. 65 UN Document A/64/7/Add.13 paras. 18 and UN Department of Peacekeeping Operations and Department of Filed Support, A New Partnership Agenda: Charting a New Horizon for UN Peacekeeping (July 2009), Section II. このなかで PKO 局とフィールド支援局は 政治的緊張が高い状況では PKO よりも予防 仲介 平和構築活動等がより効果的であり 実際の紛争下にあっては 安保理のマンデートのもとに多国籍軍あるいは地域のアクターを派遣する方がより効果的な可能性もあると指摘し 危機管理の成否は 正しいツール (tools: 複数形に注意 ) を選択し それぞれの強みを最大化させるようなやり方で組み合わせることによる と述べている (p.9.) 20
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