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Inquiry

Chivornrnhittee

Excerpts from the Report by the Swedish of

Civilian Police in

International Activities‘

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MINISTRY FOR FOREIGN AFFAIRS 103 39 STOCKHOLM

Printed by: NORSTEDTS TRYCKERI AB Stockholm 1997

Introduction

In December 1996, the Swedish Government decided to appoint a

Committee of Inquiry with the task of proposing guidelines for civilian

police partcipation in international activities. The Committee asked to was

report, analyse and judge the contributions made far by Swedish

so civilian police oflicers in international activities. Further, the Committee

was requested to make an estimate of future international demand for the participation of Swedish civilian police oflicers. Finally, the Committee was requested to present proposal for the organization and

a

administration of activities involving Swedish civilian police oflicers.

The work of the Committee was led by the former State Secretary,

Nils Gunnar Billinger. The Committee was composed of representatives from the Ministry for Foreign Afiairs, the Ministry of Defence, the Ministry of Justice, the Swedish International Development Agency, the

Swedish Military Command and the Swedish National Police Board.

The Committee submitted its report Police in the service of

- Peace in June 1997. —

This booklet contains two chapters of the Committee report,

namely its summary and the Committee s conclusions.

l

Summary

The aim of the inquiry

According to the directives given to the Committee of Inquiry hereinafter

referred to as the Committee, the task of this inquiry

0 to present a proposal regarding Swedish guidelines for activities with civilian police

0 to make an estimate of the future international demand for Swedish participation in activities with civilian police

0 to present proposals for how activities with Swedish civilian police can be organized and administered, and how training be carried out can

0 to report and analyse Swedish experiences from participation international civilian police activities

In its work, the Committee has also analysed the question of the arming of an international police force.

As peace-promoting efforts during recent years have to an increasing extent been carried out in regard to internal conflicts where the legal system has been weakened or has collapsed, the role and authority of the international police efforts have attracted attention. In this context, the Committee has considered which components in an international mission should collaborate in the task of maintaining security and order for the population while the national authorities responsible for maintaining justice are established or reconstructed.

Background ana tasks

The first Swedish contribution with police officers in international peacepromoting service was decided upon in April 1964 and was then related to the established force on Cyprus. The Swedish police officers were there included in a multinational police department which acted parallel to a military force. Thereafter, was not until 1989 that the United Nations UN again employed police in a peace—promotion mission. This was in the decolonization of Namibia. Thereafter, the number of UN-missions has increased strongly. Most of these have included a police component. In June 1997, Sweden has approximately 100 police officers in peace-promotion service. Most of these are employed in the Foreign Force within the Swedish Military Command and are consequently on leave from police service. Before departure, the Swedish police officers undergo one general and one mission—directed training course at the Swedish Armed Forces International Centre SWEDINT in Almnäs, Södertälje.

The police tasks in this context have primarily been:

0 to monitor the local police with the aim of making sure that they obey the national laws and respect human rights.

0 to train the national police

0 to support the local police in its professional work

In international police force has replaced a non—existing some cases, an national police service and has thus had an executive function, e.g. Cambodia and Haiti.

Most of these efforts have been carried out by police who have been part of an unarmed civilian police unit, "CIVPOL", in a peace-promoting mission established by UN These police officers have as a rule lived closer . to the civilian population than do military units. In spite of the increasing importance of the police as conflict—solving instruments, guidelines for their work have been deficient or lacking.

New concepts

The Committee has found that the hitherto used concept of "civilian police" no longer suitable. The word has probably been created to mark the difference from military police, the task of which to maintain order within a military unit. Police have now become so common in peacepromoting missions that there no longer any risk of confusion. The Committee proposes that instead of the title "civilian police", the personnel should be designated in a way which corresponds to their actual work tasks. The new titles should be police observer or police adviser.

New types of conflict and new types of international activities or eflorts

The majority of the conflicts which today motivate peace—promoting contributions are domestic in character. Civil wars are certainly no new phenomenon but the number of domestic conflicts has increased during recent years. Many of these new conflicts have considerable multidimensional elements. This means that they are characterized by political, religious or ethnic conflicts between the parties, which in many cases lead to ethnic purging and other serious crimes against human rights, flows of refugees and irregular military units. In many cases, events have progressed so far that the social structure close to collapse or has collapsed. The police system and other legal authorities have ceased to function or have lost the confidence of the population. The consequences for the civilian population are in most cases very serious. This type of conflict often regarded as a newer type as opposed to the previous conflicts which have been subject to international intervention. These were often of a classic international character with easily identifiable parties.

For UN and other organizations devoted to peace and security, the conditions to act have been radically improved. The Security Council, which often used to be paralysed because the permanent members diligently used their veto, now acts in a completely different way in both internal and international conflicts.

Maintaining order and security for the population

In a state characterized by open fighting and by the collapse of the national judicial system, the first important task for a peace—promoting effort to create basic stability and security by separating the fighting parties and thereafter monitoring a truce. This a task which can be solved by a military unit which included in an international peace—promoting

force. now also common that a police component included in such an action.

In order for a peace-promoting mission to have a long-tenn effect, this should aim at re-creating a legal system which based on a respect for human rights. The work of building up the police system takes place initially by monitoring the national police by e.g. joint patrols and frequent visits to police stations. Any infringements of the national laws or violations of human rights are reported routinely to higher levels within the UNsystem. The work gradually extended into training the national police. Important elements in this activity are the establishment of principles for how a police force acts in a state govemed by law and to impart information about human rights.

Between the task of creating security by separating or disarming the fighting parties with a military force and the task of collaborating reestablishing a legal system, which the task of the international police,

there a grey zone relating to who shall be responsible for the task of creating security for the population in the mission area. In the areas where

a peace-promoting force acts, there often a condition in which the national police and judicial apparatus have not yet begun to function. At the same time, there are individuals or groups there who indulge in gross political violence. They constitute a threat to the population at the same time as the international force has strongly reduced possibilities of acting. In such situations, international peace-promoting forces are in certain cases required to maintain order and security for the local population. There a tendency for this task to lie between the task of the military force and that of the police force, i.e. in a grey zone.

Clearer division of responsibilities

The international police force as a rule lacks arms, training and protection to be able to intervene against riots and disturbances with any probability of success. the police were to carry out such executive tasks as might require the use of violence, their possibilities of completing the real work task would hardly be fulfilled.

The Committee therefore proposes that police observers and police advisers in the future should also be assigned mainly to tasks of a kind which they have previously been given, i.e. monitoring, training and advising the local police. not suitable for international police forces to

be assigned executive tasks of the type which may jeopardize their potential to solve the main tasks.

One possibility for the international community to help the national authorities to create order and security could under certain conditions be to organize gendarme units. This means a heavily armed police force, located in barracks, trained in acting as a unit and equipped with protection in the form of e.g. armoured transport vehicles. This would mean that a new structure created, hitherto never tested in an international context, which largely parallel to a peace—promoting military force. A condition for this to succeed that the intemationally composed unit trained to act as a unit. The Committee does not think suitable to establish international gendarme units.

Since the Committee rejects the possibility of giving international police or gendarme forces the task of assisting the national authorities in maintaining law and order, remains to test the possibility of giving this task to military units.

In Sweden, as in other democracies, the national division of responsibility between the police and military systems clearly defined in the laws of the country. In the grey zone described here, however, there a situation where the division of responsibility between the military and police of the Western state governed by law not always applicable. An international military force acts as a unit, located in barracks and equipped to be able to act areas exposed to violence. The Committee therefore considers suitable that military units included in a peace-promoting mission should be prepared and trained to a greater extent in order, when required, to be able to co-operate in solving the task of maintaining order and security for the population in the mission area. To make this possible, the units should during their time of preparation before departure be trained for this task by instructors who are police Officers. The police system possesses a documented knowledge of how to handle special events such as violent demonstrations, riots, sports violence etc. By adding such knowledge to the training of a military peace—promoting unit, the possibility increases of using military units in peace-promoting missions to maintain order and security, the mandate permits this. A military unit with such tasks should include posts manned by police Officers. The conditions for placing such a unit under temporary police command under certain carefully controlled and previously determined conditions should be investigated more carefully by the Swedish Military Command and the National Police Board.

ll

The responsibility of international police forces for order and security

Police officers in peace-promoting activities can, although the main task to monitor, train and guide the local police, play a greater role than before in creating and then maintaining order and security for the population. They can through their presence contribute to the creation of order. This can take place through applying a more proactive behaviour. This means that the police officers show large mobility within their area and apply a flexible choice of methods. Through good relations with the local population and local authorities and through a close interaction with other components in a mission, the conditions for an early identification of local problems and their reasons are improved. A suitable measure can then be to rapidly use police observers to mediate between the parties and thereby defuse an uneasy situation.

In order to reinforce the effect of a proactive behaviour from the police, military units can be given the task of supporting the police efforts, e.g. by showing their presence in exposed places on certain occasions. The importance of a police force for the security of the population can thus be reinforced further co-operation with the military units increased. This can take place through mutual planning and through high flexibility and mobility of both the military and police parts of the mission. The ultimate responsibility for this lies with the highest ranking officer and his staff.

The Committee proposes that new methods should be developed which make possible for the police to take a greater responsibility for the order and security of the population in a conflict area.

The police and the military units should develop new and flexible forms of collaboration in peace-promoting activities where the special knowledge of each are able to complement each other.

Increased international demand for police oflicers

The Committee estimates that the demand for police officers in peacepromoting activities will increase in the future. The traditional assignments of monitoring and advice will still be the main task. The demand will also increase since activities with police will to a greater extent be included as a part of the humanitarian support and development aid in connection with the recreation or rebuilding of the judicial system in a conflict area. should be observed that female police officers have a special potential for winning the

confidence of those who have been exposed to traumatic experiences during a conflict.

Sweden should be prepared to make about 125 police officers available at time for longer periods of international peace-promoting service. the same Sweden should further be prepared to make about 150 police officers available for a maximum period of twelve months.

More efficient organization of the police activity

UN‘ organization has not been developed at the same rate as the police activities have increased in extent. Experience from the fourteen UNmissions with police components in which Sweden has participated shows that UN has often found difficult to formulate clear tasks in the mandates and other documents. Within the UN Secretariat in New York, the number of police officers small. Another difficulty that certain police officers are not qualified for the task.

The Committee proposes that

The mandate for police force should be defined separately from the 0 a mandate of any military force

Persons with international police experience should participate when 0 mandates and tasks are being formulated

Police competence should be found in more Departments within the UN 0 Secretariat in New York

Sweden should act to increase the Competence of the international police 0 forces. Sweden should, like other countries which are able to do so, place at the disposal of future police observers and police resources advisers

UN should be given increased possibilities to provide information about 0 its task to the population in a mission area

System for rapid deployment of police

more

When UN other organization has decided on a peace-promoting or some force, important that arrives rapidly and can act to the intended extent. has difficult for both UN and for many police—contributing proven

countries, including Sweden, to be able to act sufficiently rapid in the mission area.

The Committee proposes as follows

0 UN should create a system for the early selection of key personnel for future police forces and prepare standardized organization plan for a these forces, comparable with that for corresponding military a headquarters 0 Sweden should encourage a change in UN‘ routines that the decisions so about missions and of their financing coincide in time

0 UN should prepare plans for the purchase of standardized materials and for the initial maintenance of police forces

0 The Swedish Government should give the National Police Board the task of preparing a system which makes possible to send Swedish police officers abroad at short notice in peace-promoting service

The National Police Board responsibility assumes

Sweden lacks collected responsibility for its international police activity, a since neither the National Police Board nor the Swedish Military Command have been expressly assigned such task. The National Police Board a carries out the recruiting without a formal Commission and the Swedish Military Command responsible through SWEDINT for training, equipment and administration of the police for the period during which they are part of the Foreign Force within the Swedish Military Command.

Even the daily collaboration between the two authorities good, a divided responsibility means certain obvious disadvantages. No authority today responsible for the long-tenn planning and method-development of the concept of police in peace-promoting service. These deficiencies are expected to become more marked when police officers become a more common part of the humanitarian aid development aid or programmes.

With the aim of producing a more efficient organization without reducing the advantages of the present system, the Committee follows. proposes as

The National Police Force should be assigned a collective national 0 responsibility for all international police activity such as training, employer responsibility during service abroad, methodological and doctrinal development and staff welfare after the homecoming. This should be achieved by creating Foreign Force within the Police Force a which far possible and suitable shall act under the same as as conditions the Foreign Force within the Swedish Military Command. as The National Police Board and the Swedish Militaiy Command should

collaborate in this organizational change.

2 Considerations, estimates and

proposals

2.1 The need for

guidelines for police

activities

Since peace—promoting efforts during recent has to increasing years an extent taken place in regard to internal conflicts where the legal system has been weakened or has collapsed, the role and mandate of international police efforts have been subject to discussion and analysis. The task of this inquiry to offer proposals for guidelines for the role of the police in peace—promoting activities, to analyse the question of armament and in this context to consider the responsibility for different tasks concerning civil security and order, while national judicial authorities being built are up or reconstructed.

Several peace-promotion missions since the first Congo operation have included different forms of police activity, from advice to local police forces to active co—operation in maintaining law and order. Most of this work has been carried out by police officers who have been part of civil police unit a "ClVPOL" in a peace-promotion mission established by UN. Although the police included as an important element in peace-promotion efforts and although this activity has continued for several decades, guidelines for this type of activity have been deficient lacking. The mandates give only or a general direction and the documents which describe tasks and responsibilities vary in dignity from resolutions adopted by the Security Council to local agreements. In Sweden, civilian police activities have been treated only in general terms by the Government. Guidelines doctrines or are lacking for how police activities shall be designed and how public security shall be maintained in a peace-promotion operation. The responsibility for

specifying tasks and guidelines has been given to those who have had the active responsibility in each mission. Nor, until most recently, has police work been subject to analysis in the intensive international debate about peace-promoting efforts.

A further why to create clarity about the meaning of reason necessary the concept of police work that the traditional "civilian police efforts" often hindered by incorrect expectations. The primary aim of this traditional "civilian police efforts" has been to monitor, guide and train the local police create security for the local population through direct contributions not to — to the maintenance of law and order, which often expected.

Most of the conflicts which today motivate peace-promoting contributions domestic. Civil certainly no new phenomenon, but the number are wars are of domestic conflicts has increased dramatically during recent years. Many of these conflicts to great extent multidimensional. This means new are a that, besides political and armed antagonism between the parties, they have radical social and sometimes also international ramifications, e.g. ethnic purging, other serious crimes against human rights, refugee flows and actions by irregular military units. In many cases, the conflict has progressed far that the social structure close to collapse or has so collapsed. The police system and other judicial authorities have ceased to function have lost the confidence of the people. The consequences for the or civil population in most cases very serious. are

To monitor and the observance of human rights has become an ensure increasingly important task in peace-promoting efforts. The security of the civil population basic condition for being able to rebuild a society after a conflict. In all peace-promoting activities, work with such security a questions therefore central place. Security can be achieved for assumes a the local population through intervention by international peace-promoting forces. These also in certain take responsibility for maintaining can cases law and order before national judicial authorities have been created or reconstructed and before confidence in these has been re-established. If a peace-promoting mission succeeds in the task of creating a stable and environment, the possibility of succeeding in other effective and secure long-term measures improves considerably.

2.2 New concepts

Proposal

Units with police Officers peace—promoting similar activities should or be called an International Police Force where appropriate UN Police or a Force. The individual police officer should be called Police Observer a or Police Adviser or should be otherwise termed to correspond to the task.

Considerations

The concept of "civilian police activities" imprecise and should be replaced by the concept of International Police Activities. The force should be designated an International Police Force where appropriate UN or a Police Force. In the documents which the activity in the mission govern area, a distinction should be made between Police Observer and Police Adviser. These concepts should be used both in multilateral activities and within the framework of bilateral activities. The Committee that notes developments are already taking place in this direction and Sweden should act for a continued separation of these concepts. A police in presence peacepromoting activities has during the 1990s become that so common no longer justifiable to use the word "civilian" to distinguish these police from military police. In everyday Swedish, the term "civilian police" not used either.

2.3 The character and

development of

conflicts

Considerations

In connection with the establishment of peace—promoting mission, the a categories currently given by UN and other used to describe the organs are character and purpose of the mission. Concepts such peacekeeping, wider as peacekeeping, peace enforcement, building etc. indicate roughly what peace type of contribution required and what authority the force has. In the inquiries made to Member States about contributions peace—promoting to activities, military units and police contingents spoken of in general are

In certain UN-operations, obvious that force consisting of terms. a police Officers has been recruited and sent to the mission area without the decision having been preceded by sufficient analysis of the problems to be a solved and without clear idea of the tasks for which the international a police force take responsibility. To increase the efficiency of the can improve the probability of better analysis measures and to success, a required both of the problems to be solved and of the contributions and authority which required. A comprehensive and long-term view must be are developed that peace-promoting measures and aid measures can be linked so together to increase the efficiency of the effort and at the same time

minimize the costs.

A in this work to analyse the character and development of a step conflict. There unambiguous of describing and analysing a no way conflict All conflicts unique. however possible to describe process. are schematically the different levels different phases of a conflict. Different or phases and levels overlap each other. A crisis development not linear; can setbacks Nor crisis always equally serious in all parts of the can occur. a crisis area.

Common to of the conflicts which are today subjected to peacemany promoting that they require an input of different components measures with different tasks. The actions thereby become multifunctional. The different components in mission between different conflicts, and a can vary with time within a conflict.

The initial phase the chaotic phase or

In situation characterized by fighting and by the fragmentation or a open dissolution of the national authority police force, the first important task or basic stability and security. This in general a task for military to create units. Different armed only be separated and disarmed by units groups can which act under military powers regulations. emergency

Even after fighting has ceased, military units be required. The open can situation be disturbed by serious riots and domestic armed groups. can e.g. Because of the fire which these large small groups often possess, power or this task for military units. If the legal system weak, the forces which a arrive first also need to take the responsibility for creating law and may order.

The completion or normalization phase

In order to be able to complete a peace—promoting effort, reasonably a functioning state governed by law with relevant authorities must have been re—created. In the task of creating a new police system and a new judicial system, an international police force has important task. Above all, an can monitor the national police and contribute to establishing principles for how a police officer shall act in state governed by the rule of law. The a involvement can take place either multinational contribution as a or as a bilateral contribution. An international police force also collaborate can the appointment of a new police and assist with training and corps equipment.

The grey zone

Between the task of creating security and the task of participating rebuilding a judicial system there either be described a grey zone. can as a gap between different functions time between or as a gap across different contributions. In a situation where national authority legal a or apparatus has not yet begun to function and where individuals or groups use gross violence for political criminal international or reasons, peacepromoting activities required to maintain security for the local are population and for aid workers.

In such a grey zone, the international military units have the given task of monitoring domestic military units and depots, maintaining separation arms zones etc. The international police force also has given task in monitoring a and participating in the reconstruction of often weak national police an force. The task of assisting in the maintenance of order and security for the population has a tendency in such situations to fall between the task of the military force and that of the police force.

2.4 Important tasks in a peace-promoting

mission

order specify the of contribution and the mandate which are In to type required reach goal, there to describe, from analysis of the to a reason an conflict concerned, the tasks for international force consisting concrete an of military units, police, judicial experts and other specialists. Examples of such tasks are:

Category a

dampen disturbances through presence and by "on-the-spot- 0 to a

diplomacy/mediation"

Category b

to out measures to repel an attacker carry to out to separate fighting parties carry measures to establish and buffer zones between the parties troops man to monitor a cease-fire monitor the regrouping and demobilization of forces to

to clear ammunition mines etc.

away to collect weapons to guard arms depots monitor and assist in disarming military units and paramilitary groups to

Category c the grey zone

to control riots and disturbances to intervene against armed "gangs" to maintain civil law and order to discover and prevent crimes, e. plundering maintain order and security during election preparations to to monitor and assist in disarming civilians to escort civilians in violence-prone areas to protect refugees in refugee camps from armed elements

Category d

0 to monitor the local police force 0 to participate in the training of the local police force 0 to give advice and support in the establishment or 0 restructuring of a new local police system

Category e

0 to assist in taking care of refugees and homeless people 0 to integrate disarmed forces into civilian life

0 to promote the repatriation and reintegration of refugees and internal refugees 0 to provide humanitarian help in connection with rebuilding 0 to give support in the rebuilding of judicial and other a system administration 0 to monitor that human rights respected are 0 to co-ordinate support for economic and rebuilding recovery 0 to monitor elections

Tasks under category a be carried by diplomats, military

can out observers or police observers. For such tasks, people often recruited are who have a long experience and good skills mediation and negotiation.

Tasks under category b only be carried by military units. For

can out several of these tasks, mandate required which allows the of a use violence other than in self—defence, i.e. mandate which based chapter a on VII in the UN Charter.

Tasks under category d carried out by police officers. To fulfil these

are tasks, they have executive authority but monitors, observers, no act as advisers and instructors. Other civilian experts within the legal field also are required to rebuild legal system. a

Tasks under category e carried out by civilian monitors

are experts, e.g. of human rights and aid workers. In the Swedish recruiting has case,

certain cases intentionally taken place within the police The tasks

system.

under category e under certain conditions carried together with

are out an international police force which acts in the area.

Tasks under c, the "grey zone", involve the creation of security category and order for the population. The tasks be carried out by military units, can police officers and soldiers in cooperation by gendarmes and soldiers in or co—operation. Contributions of this kind require a mandate with certain can elements of authorization according to chapter VII in the UN Charter. This

argument developed in a later section.

2.5 Legal basis for peace—promoting

activities

All exercise of in peace—promoting similar mission must build power a or legal foundation connected to the international legal regulations. A on a characteristic feature of civil crisis that the legal system does not a war or function. The civilian population has often lost confidence in the legal

and in the legislation which exists. The police and military may apparatus be accomplices in serious crimes in violation of both human rights and even the national legislation. In certain the social structure may have cases, collapsed totally and anarchy may prevail.

In situations where the local legal apparatus does not exist cannot fulfil or its task, peace—promoting force, regardless of whether consists of a military units police officers, faces great difficulties. In these situations, or often unclear whether the authorities indicated in the mandate and

SOFA constitute sufficient legal support to intervene and protect the

population. further often unclear according to which national law, one

shall act in such cases.

In difficult the international peace—promoting forces must act

more cases, under legislation described in the mandate. When the legal emergency power has collapsed has otherwise lost its legitimacy, the task can be apparatus or limited monitoring that human rights respected. may even be to are in certain to start from agreed minimum level regarding necessary cases an law and rights. This intervention against gross violations of can e.g. mean human rights and humanity laws, murder, kidnapping, rape and gross e.g. crimes. The degree of intervention which can be applied must property such completely international law. a question of a UNcases rest on operation, operation mandated by the UN Security Council, should or an be possible derive this authority from chapter VI or VII in the UN to Charter. This that the command lines must be so clear that means

possible to derive the responsibility for taken in the field all the measures way up to the organ which has given the mission its mandate.

In the final phase of conflict, in less serious situations in conflict, a or a there in general a national law from which to start. The aim of all peacepromoting activity must be that, when the mission completed, there shall

exist a national judicial system which functions and national law be a to followed. Even during ongoing mission, the main rule shall be an to start from the national judicial system. The task for the international operation

then becomes to monitor that the local legal authorities adhere the to established legal order. This usually task for police observers and police a advisers. Another possibility that the host country gives international an force the right to exercise authority. In such the individual cases, international police officers act within the legal of the host system country.

2.6 The task of

creating security and order

2.6.1 Definitions and

problem formulation

Considerations

In a previous section, established that in decision regarding was any peace-promoting efforts, essential to define at early and before an stage, the mission begins, which tasks to be solved. Parallel with this work, are attention should be given to the question of which instruments, i.e. which

components in a peace-promoting contribution, solve the tasks involved. can important that the organization giving the mandate, which rule as a the UN, observes that there be urgent tasks involved which of the can none traditionally available components especially trained suitable for or solving. If a decision nevertheless made to create peace-promoting a mission, all participants should be of the "grey zones" which exist. aware The organization giving the mandate should make effort find an to as soon as possible, or to train within the mission, which solve the a component can tasks which arise within the "grey zones". This report will below develop the discussion of the choice of tool component solve the task of creating to order and security.

Basic differences: police ofiicer gendarme soldier - —

In Sweden, in other democracies, the division of responsibility between as the police and the military clearly defined in the laws of the country. The task of the military organization to protect the country against external

threats. The police recruited, trained and organized to maintain law and

order within the country. The police has certain forcible means at its disposal. with legal support exercise certain violence which shall, can a however, always be in proportion to what the situation requires. The police the only civilian which in peacetime can use violence in its exercise organ personnel in peacetime such authority only in the of power. Military have indicated in the Ordinance 1982:756 concerning the intervention of cases the Swedish Military Command organisation in the event of a violation of

Swedish territory during and neutrality etc. the IKFN-ordinance.

peace

A state governed by the rule of law characterized e. by the fact that all exercise of takes place with the support of laws which are decided power in democratic A national police force therefore acts in a upon a manner. politically controlled environment where questions about legal authority, and control important elements. For the police to be able to act, power are must have the peoples confidence. This can only be attained there are generally accepted laws and other statutes which control the activity of both the citizens and the police. Further, generally required that individual Officers have wide experience and good judgement and that they use their intuition in the executive role.

Swedish police who participate in peace-promoting activities have a good insight into and understanding of work within the law. They are used to working singly in small On the other hand, they have little or groups. experience of working in units such platoons companies or of creating as or security and order in environments characterized by heavy violence.

During their normal duty, Swedish police officers are equipped only with pistols. The of strictly controlled. In their duties, police use weapons officers only that degree of violence which in proportion to what may use the situation requires. This that police Officers can use their weapons means in certain cases.

Swedish military units trained and Organized for fighting under are military laws against military Opponent. Military personnel usually work a in units, singly. The units consist Of which together form not groups platoons. These in turn form companies which included in a battalion. are

Several battalions together form brigade. Military personnel a are not assumed to have any knowledge about those sections of the law under which general order maintained during peacetime, they trained in solving nor are such tasks. Swedish UN-units consist mainly of who have persons undergone a basic military training which has later been complemented with a shorter period of training for peace-promoting activities.

In several countries, a special form of police force, gendarmes, has been created to act outside both the police system and the military system. Gendarme forces have evident military Characteristics, in that they e.g. are trained to act in units. They intended to act within the borders of the are country and are responsible for the internal order in situations involving riots or heavy violence.

Grey zone

Thus, there no force which can "naturally" be given the task of creating security and order. Experience from several peace-promoting missions during the latest ten shows that therefore often develops years a grey zone a situation where none of the components in international an peacepromoting force trained otherwise prepared to order and or create security. This obstructs and delays the effort to give the subjected country security and conditions for a democratic development.

The reasons why none of the parties in peace—promoting mission solves a or wishes to solve the urgent task of creating order and security several. are One reason often that the task not mentioned in the mandate in or any other document which indicates the tasks. This in be attributed can turn to a hesitance on the part of the police- and troops-contributing countries to undertake such a task. The legal basis for executive tasks often unclear. The creation of order and security also that there functioning assumes a judicial apparatus otherwise, prosecutor system, and prisons. e.g. a courts A further reason be unwillingness in the host allow can an country to foreign personnel to out these tasks. Accordingly, preparations carry no or exercises are made to solve such tasks either by international police forces or military units.

Among military personnel, both within and outside Sweden, there further a great doubt about undertaking the task of being responsible for security and order in civil environment. This depends the fact that a e.g. on the personnel lack education, training and experience of such situations. This means that there always risk that military methods used in civil a a

environment escalate the conflict that there risk that the use of so a violence in the assume uncontrollable forms. further conflicts area may against the division of responsibility in a democracy for military personnel to be responsible for civil security and order.

Gendarme forces have been organized in international peace-

never keeping missions. On the other hand, several countries have recruited gendarmes participants in international police forces CIVPOL. as Gendarmes have different tasks and different organizations in different countries, and this makes doubtful whether an international performanceorganization at reasonable cost would be able to create an international a gendarme force for peace—promoting activities.

For police observers and police advisers civilian police in the traditional

meaning, basic condition, according to many commentators, for success a in the tasks of monitoring, training and giving advice to the local police, that they unarmed, live among the population and are perceived to be are impartial. they given more arms and had executive tasks in riots and were disturbances, the potential for succeeding with the ordinary tasks would probably decrease.

Order and security in peace—promoting work

Nevertheless, that force in certain peace—promoting necessary a missions given the task of participating in the task of maintaining order and security. Such work must rest on the basis of international law. A peace—promoting mission which employed in a country which has collapsed and which ravaged by civil war or plagued by irregular units placed in situation where the division of responsibility between military a and the police, as in a Western state governed by the rule of law, not always applicable.

The task of creating security and order in the initial phase of such a mission only be carried out by military units. In a later situation when can the fighting has ceased and an internationally supervised peace process open has begun, transitional period of several years often arises during which a violence and lawlessness still occur. The groups which have a lot to lose from out more or less open fighting to regain lost a peace can carry territory. In these situations, national authorities which can oppose this violence are often lacking. Anxiety and fear of reprisals are common among the population.

In such a situation, the task of creating security and order be at least can partly carried out by military units in collaboration by military units and or an international police force within a peace-promoting mission by or an international gendarme force. On the other hand, the task cannot in general be given to an unarmed or a lightly armed international police force. The heavy armament which can often be found in the illegal "gangs" and the low threshold which as a rule exists for the of violence makes difficult for use an unarmed or lightly armed international police force to have effect. any Such a force runs the risk of being ignored or of provoking the of use violence, due to the fact that the armed citizens or groups to be passivated command such heavy weapons that only a unit with military training and equipment can meet the threats which arise. The riots and disturbances which can arise are also of such a type that usually only military unit a that can solve the task. The military units which assigned such tasks are have as a rule solved them without enthusiasm. Sometimes, the task has not been solved at all, which has led to great suffering for the civilian population.

2.6.2 Increased preparedness for police tasks in military units

Proposal

Organizations giving mandates should clearly indicate what responsibility the components included in the mission have for maintaining order and security for the population.

Military units in peace-promoting activities should 0 to a greater extent be prepared and trained to co-operate, when required, solving the task of maintaining order and security for the population in the area 0 be trained for this task by instructors who police officers are I include posts which are manned by police officers

Further, should be possible under certain circumstances to place military units in peace-promoting missions, who trained and prepared to are maintain order and security in the mission under police command area, when this type of task to be solved. The Government should assign to the

Swedish Military Command and the National Police Board the task of studying closely the conditions for giving military units such tasks. more

Considerations

The Committee considers that police observers and police advisers should also in the future be assigned tasks of the kind entrusted to them so far, i.e. to monitor, train and give advice to the local police. not therefore suitable that these assigned executive tasks of the kind which jeopardize are the possibility of solving the main tasks. Only in a few countries are police trained to act in units, which condition for being able to defeat an a uprising to take action against armed "gangs". The number of police or from each police-contributing country usually not so large that becomes meaningful to practice these kinds of tasks in the home country before departure. If the exercise and training to be carried out in the conflict were would risk taking too much attention from the main task. area,

The inquiry also establishes that internationally recruited gendarme forces could probably be manned only by countries which have national gendarmes. would considerable problems to coordinate the cause armament, work methods and leadership of such a force. If the force were assigned heavy and vehicles, which a condition to succeed with weapons this type of task, would that force would be built up which would mean a be largely parallel to the military component in a peace-promoting mission. This would mean further costs for UN and other performanceorganizations.

The Committee further considers that not acceptable that an internationally composed peace-promoting mission delayed or even becomes impossible to carry through as a consequence of violence and terrorism caused by irregular units or other armed assailants. The "grey zone" where of the components included in the mission has or none perceives itself to have responsibility for maintaining order and security a for the population must be made as small as possible and preferably be eliminated completely. Since the Committee has already rejected the possibility of giving tasks of this character to international police departments gendarmes, remains to test the possibility of giving or military units in peace-promoting activities an increased preparedness for carrying out certain tasks which in a national perspective are of police character.

Military units in peace-promoting missions already fulfil of the some demands which should be made force whose task to maintain order on a and security for the population in a given the ability to work in unit, area: a access to weapons and protective transport vehicles, barracks within protected areas and an internationally recognized staff and leadership organization which does not deviate to any great extent between the troopcontributing countries. Military forces in peace—promoting missions often have the task of monitoring regular military units and armistice lines, of monitoring or sometimes performing the disarming of party in the one conflict or of guarding weapon depots. The methods used to solve these tasks could often be applied to irregular units or armed "gangs". therefore understandable that military units in peace—promoting missions have already been assigned tasks of this kind. The Committee judges that this also will take place in the future and that this suitable task for a military units, provided that they prepared for the task and provided that are the mandate permits this.

The Committee considers that Sweden should train the military units recruited to serve in peace—promoting activities that they participate so can in solving certain tasks in the of maintaining order. important that area clear that the knowledge within this intended for only area use work abroad. The task shall be solved within the framework for what UN or some other international organization has decided. Training of this kind should not be given during the basic military training.

natural that the Swedish Military Command employs experts from the Swedish police to provide this training. Within the police system, there a documented knowledge of how to handle so—called special occurrences such as violent demonstrations, riots, sports violence etc. By adding such knowledge in the training, the possibility increases of being able to use military units in peace-promoting missions to maintain security and order, the mandate permits this.

A military unit strives to have personnel in its organization which possesses the required expert knowledge for solving all imaginable tasks. A unit which can be assigned police tasks should therefore in its organization include posts intended for police officers. These shall be able to participate both in the planning and in the performance of tasks of police character. a Examples of this can already be found in certain foreign battalions which act in peace—promoting missions. The polices experience of tactical behaviour, and the ability to mediate and create confidence the among civilian population should be made of in military units which have in use

their mandate the task of being responsible for civil security and order. natural that these police officers organizationally are included in the military unit and consequently wear military uniform.

Regarding the operative management of a police contribution to a military unit in connection with a riot, careful consideration should be given to whether the ordinary military chief should temporarily transfer the command to a police officer. Several different aspects should be weighed against each other, e.g. the ability to make a professional estimate of the situation and the importance of continuity and consistency in the exercise of the command. The Committee estimates that, in most cases, appropriate that the ordinary commander retains command but that the police officials opinion should be given decisive importance when orders

given. The Committee does not however reject the possibility that, in

are certain situations, may be more suitable that the command be temporarily taken by a police officer. The conditions for this should be stated in over advance and the police officer who in such a case shall assume the command should of have been given the possibility of carrying out course training exercises with the unit already during the training period in Sweden.

The demand for this type of measure documented from several ongoing and newly completed missions. therefore important that Sweden in an international context acts so that more countries carry out similar arrangements. This increases the conditions for creating more versatile peace-promoting missions by reducing a troublesome "grey zone".

The Committee considers appropriate that the Government requests that the Swedish Military Command and the National Police Board investigate closely the conditions for giving military units police tasks of the type more described above. In this context, the demand for an extended education for the peace-promoting forces and the related costs should be given special attention.

2.6.3 The responsibility of international police forces for order and security

Proposal

0 Methods should be developed with the aim of reinforcing the possibilities for an international police force better to carry out tasks regarding order and security for the population in the troubled area.

0 The police and the military units should develop new and flexible forms of cooperation in peace-promoting activities where the special knowledge of each allowed to complement the other.

Considerations

Police in peace-promoting activities can, although the main task to monitor, train and guide the local police, play a greater role than before to create and then maintain order and security for the population. The police included in an international force often have great experience of negotiation and mediation. Through their presence, they can also contribute to creating order in a place. This can take place by applying a proactive behaviour to a greater extent. This means that the police show great mobility within their field and apply a flexible choice of methods with the aim of preventing incorrect action from the local police.

During the 1990s, in connection with the large refugee flows in parts of Africa, armed militia have sometimes infiltrated refugee and caused camps further suffering for already severely tried people. The possibilities of handling this and other refugee-related problems should, for example, be an aspect of method development.

Through good relations with the local population and local authorities and through close collaboration with the political components in a mission, the conditions for an early identification of local problems and their causes are improved. A suitable measure can then be to make rapid use of police observers to mediate between the parties and thereby defuse an uneasy situation. For such tasks, police officers with experience from specific events should be recruited.

T0 reinforce the effect of a proactive behaviour from the police, military units can be given the task of supporting the police work, e.g. by showing their presence in exposed places on certain occasions. The importance of a police force for the security of the population can thus be further reinforced by increasing their cooperation with the military units. This can take place through joint planning and by having a high flexibility and mobility in both the military and the police parts of the mission. The highest responsibility that this takes place in the mission area lies with the highest commander and his staff. A development of methods should take place which reinforces the ability and capacity of the police for the task of creating order and security.

2.7 Future tasks and the estimated need for

police participation

Estimate

The international need for police in peace-promoting activities during the coming decade will be of at least the same magnitude as during 1997. The need will probably increase. This means an increased need for Swedish police officers. In the future, will also be a major task for international police forces to monitor, train and support the local police in a conflict area. Gradually, the demand will increase for police officers in posts other than their traditional monitoring role.

Considerations

The tasks of the police

An important aim of a peace-promoting mission to successively reinforce the possibilities for the national police to be able to maintain order and security under democratic forms and with respect for human rights. Long—term stability can only be achieved by national authorities which have the confidence of the population. After a civil war or in a situation where the judicial apparatus weak or has collapsed, is, as pointed out previously, essential that international support includes measures for building up and reconstructing a national system of justice in a wide sense. In the initial phase of this process, the main tasks for an international police force are as a rule as follows:

0 to monitor the local police 0 to train the local police 0 to support the local police in their professional work

The task of monitoring the local police means to check that they respect both the national legislation and human rights in their professional work. The latter task involves e.g. checking whether the local police observe an impartial behaviour, respect minorities, treat arrested and imprisoned persons according to valid international conventions, and document different

measures in ledgers and registers according to recognized standards. These

are given in United Nations Criminal Justice Standards for Peacekeeping Police. In order to determine whether the local police respect the national laws, the international police force must have a knowledge of these. Since this often not the the attention to human rights becomes the case, dominating element in the monitoring.

Monitoring can take place through a presence at police stations, prisons and places of crime investigation, joint patrol tasks etc. The international police force can also be given the task of carrying out its own investigations and its own patrols. An important item to report what has been observed. This makes possible for the representative of the Secretary-General, or in certain situations the Security Council, to take the necessary measures.

In some missions, the task to train and educate the local police. This can take place by arranging special training or education centres or by guiding the local police in their tasks. In some cases, the education can be located to some other country. The international police officers can also assist in the appointment of "new" police officers when the system of justice to be rebuilt. This discreet but important task. In many conflicts, the a very local police have participated in the fighting and may be guilty of serious violations of human rights. In order to create a new national police force which win the confidence of the people, very important that can individuals who guilty of crimes not employed as police officers. are are

For the task of re-creating judicial system, lawyers of different kinds can a also be recruited besides police officers. Internationally recruited police officers may therefore cooperate with prosecutors, judges and prison personnel. These persons can in the initial phase also be internationally recruited. The successful the international society in the work of remore establishing legal institutions and authorities in country hit by a conflict, a the greater the potential for reaching a long-term solution to the conflict.

International needs

At present, ca 3 000 "civilian police" are engaged in peace-promoting missions. Approximately 100 of these are Swedes, 90 of whom are employed in the Foreign Force within the Swedish Military forces. probable that UN and other international organizations will decide to establish missions in a large number of acute crises also in the future. There are many areas and countries which are unstable and where open conflicts may break out. Further, the reverberations from the conflicts which have been the cause of peace—promoting missions during recent years will for many years still be the subject of international interest and responsibility, e. in the Balkans and in several African countries. These crises are or will often be of a multinational character which means that the international peace—promoting efforts will probably have a multifunctional character. International police work expected to continue to be an essential and increasing component in this work. This underlined by the fact that many "new" conflicts have a domestic character.

very difficult to estimate the magnitude of future needs. also difficult to indicate exact geographical regions which will be subject to civilian police activities. Practically all conflict centres can become the object of a peace—promoting contribution. The Committee estimates that the demand will increase and that the wishes for e.g. Sweden to increase its contribution will be of at least the same magnitude as they are today.

2.8 The Swedish with

participation police

officers

Proposal

Sweden should be prepared to have permanently about 125 police officers available at the same time for service in peace—promoting abroad. Sweden should be prepared temporarily, for a maximum period of twelve months, to have about 150 police officers available at the same time. Sweden should further strive to have at least 75 police officers abroad for this type of international activity.

Special attention should be given to the importance of employing female police officers to create security and confidence in a mission-area.

Considerations

The international need for police officers for peace-promoting activities estimated to increase, as has been shown in the previous section. The demand includes police both for the traditional tasks of monitoring and educating the local police and for participating in contributions of an aid character. The traditional tasks are described in the previous section. The demand for the latter type of contribution usually arises in connection with what has earlier been described as the completion and normalization phase of a conflict. can also be a question of participation in international tribunals of the kind which are today active in the Hague and Arusha in the area of war crimes. An important part of Swedish aid policy to support the democratization process and the promotion of human rights. The direction thereby to reinforce processes and develop institutions within the state and society in general which promote the development towards peace, democracy and respect for human rights. This means e.g. long—term efforts to reinforce key institutions within the state and other parts of society. Especially important are activities which improve the public administrations openness, legitimacy and responsibility towards its commissioners, so-called good governance. T0 stabilize the process of building a nation, a functioning police system very important for the populations trust in the national authorities. Experiences from recent activities with Swedish police officers in aid projects are so good that a continued involvement motivated.

In training and in courses, has been shown that Swedish female police officers have also filled an important function with regard to an emphasis on equality aspects. Female police in an international police force can, in addition, play a special role in creating security and confidence for a civil population exposed to traumatic events. This true especially in relation to women who have been exposed to violence or have witnessed acts of violence towards relatives and in connection therewith have lost their confidence in men.

Experience shows that the monitoring of both elections and peace by an independent international force strategically important in democratic elections or for the implementation of a peace agreement. SIDA estimates that police often have a professional background which makes them suitable for this type of service. SIDA has therefore intentionally recruited police officers for such a purpose. This will probably also take place in the future.

Contributions of a police nature which either support the solution of humanitarian crises or contribute to the maintenance of law and order within the framework of the rebuilding of a state governed by law are both Sweden and internationally an increasingly recognized sector within aid services. This trend expected to continue. The experience from aid contributions with police participation should be actively taken care of in future methodological development within the field of international aid.

Sweden should have a clear and realistic level of ambition regarding the total number of police officers who should serve abroad in national service in their capacity as police officers. Several factors limit the level of ambition, e. the international demand for Swedish police officers, the total supply of police officers in Sweden, the willingness of Swedish police officers to serve abroad, the performing organizations demands on the police officers who participate and the countrys financial situation. Sweden has about 17 000 police officers, of whom about 100 serve abroad. The largest number of Swedish police officers who have served abroad at the same time about 150. This took place during a period in the beginning of the 1990s when the number of police officers in the country was greater than today. The Committee notes as follows:

0 There a clear demand for Swedish police officers in international service 0 There a lack of police officers with sufficient experience and competence for international tasks 0 has not so far been difficult, however, to recruit police officers for service in peace-promoting activities 0 has not so far been difficult to finance Swedish police participation 0 Swedish police officers as a rule fulfil the formal demands made by the international organizations

The Committee considers that there should be a budgetary and organizational preparedness to increase the Swedish participation from the

present level 100 police officers to about 125 police officers. Thereafter, a

gradual increase should take place in relation to the demand development. For a short time period, at the most twelve months, should initially be possible to increase the level to about 150 police officers. Sweden should make this direction known in international contexts.

UN will continue to play a dominating role both as the organisation giving the mandate and performing the activities. The demand for police contributions has also increased in relation to UN’ humanitarian activity,

e.g. the handling of massive refugee flows. In the long run, regional organizations will also be given a larger role particularly with regard to police contributions. WEU have already acted in this role and other international organizations may in the future also play an active role in a police context. In this connection, very important that Sweden as a police-contributing country makes sure that the organization performing the activities has the required competence and capacity to carry out a planned contribution with police officers. Sweden should strive to participate in the formulation of mandates and other basic regulations when an action planned.

2.9 The

arming of the police force

Proposal

Police officers who act as police observers or police advisers international peace-promoting missions shall as a rule be unarmed. In exceptional cases, these police officers could be armed for self-defence.

Considerations

International Police Observers

The task of police observers not usually of an executive character. They shall monitor national police report, mediate and create calmness a corps, the area by showing their presence in sensitive regions, so-called proactive behaviour. The possibility of solving these tasks not improved the police officers are armed. The international police officers need the confidence of both the local police and the civil population to be able to complete their mission. The experiences of both military observers and police observers suggest that they complete their task best they can are unarmed. If the police officers are armed, they may be expected to perform executive tasks which the mandate in general does not permit.

In many missions, the arms possessed by different groups and criminal elements are not heavy that arming the police observers with firearms so would have any deterrent effect. Light arms usually provide no protection these situations characterized by heavy violence in which an international

police force often acts. On the contrary, arms can have a provocative effect and worsen the security situation for the police Officers. The possibility of equipping the police with heavier weapons than firearms has been rejected

a previous section. The main rule should therefore be that police

observers are unarmed.

Sweden should not, however, categorically reject participation in police actions where the police observers are armed. In the WEU—led action in Mostar in Bosnia-Herzegovina and in the UN-mission on Haiti, the police observers were armed with firearms. This was because a majority of the police—contributing countries considered arms necessary to give sufficient protection in these difficult situations. Another alternative should be noted this context. The police observers can be given access to firearms which are stored under lock until the situation judged to be such that the police officers should be armed.

International Police Advisers

In the case of police advisers, appears, with reference to what has been said about police observers, even clearer that they fulfil their task best they are unarmed. Police advisers can act either as teachers in police training or to give guidance when the local police carry out their tasks. Regardless of whether a police adviser acts together with police observers or in a later phase of the conflict when the building-up of a society in progress, arming of the police fills no function.

2.10 More efficient police activities within

UN

Proposal

0 The mandate for the police force in a peace-promoting mission should be stated separately from the mandate for the military force 0 The involved countries should give experienced police ofñcers the opportunity to participate in the formulation of the mandate and on subsequent occasions when other documents relating to concrete police tasks are formulated 0 Police Competence should be found at more units within DPKO

0 The Civilian Police Unit within DPKO should be reinforced 0 Sweden should act for a higher competence among the participating police officers by: ensuring that all police officers who act in peace-promoting missions — undergo an adequate training in the home country before departure developing the system with proficiency test in relevant aspects — encouraging those countries which are able to do so to make available — resources for the training of future police observers and police advisers giving the UN increased possibilities of providing information about the — purpose and methods of police activities in the conflict area

Considerations

General

The Swedish attitude has for a long period of time been that a wellfunctioning multilateral system an important guarantee for the creation of international peace and security, especially for small and medium-sized countries. International police activities have proven to be very useful as conflict-solving instruments in situations where military troops or military observers have not constituted an active tool. During the period since 1989, UN has initiated several international police missions. Other organizations have also shown an interest in organizing police work. In theforeseeable future, however, UN will be the most important international actor in the field. Swedish experiences from performed and continuing missions with Swedish participation, show that there have been many deficiencies in these rriissions. This has been due largely to UN‘ inability to act rapidly and flexibly to solve practical problems and to meet unexpected situations. A further reason for difficulties has been the inability to leam from mistakes. There therefore good reason for Sweden to act to develop, reinforce and improve UN’ potential for using police officers in peace-promoting activities.

Special difficulties have been observed when new missions are established. Proposals and considerations in this regard are given in the next section.

Mandates and other documents which define the tasks of the police

The mandates, which are approved by the UN Security Council, are political compromises which are often of a general nature, and often

intentionally to situations which are still difficult to predict. They so, cover are not always specified in the text of the resolution but are indicated in a

report from the Secretary-General to the Security Council. This report

then referred to in the resolution. From experience, the mandates are in the first place designed for the military leaders in a peace—promoting mission. This means that they give only a vague guidance to the local UN-Police Commissioner when he shall specify the tasks for the police in the field. In order to facilitate both the start and the continuing activity, there should be a separate mandate for the international police force. This applies even those cases where not possible for reasons of time to formulate a detailed mandate. "Police advisers" are not included in the UN Delegations of the member countries in the same way as there often a military adviser. There therefore reason to believe that police officers are not consulted in the preparation of the mandates for a police component. With the aim of avoiding unclear tasks which can be misunderstood, police offlcers with experience of leading international police forces should be consulted when the mandates are formulated. This can for example take place the member countries, in the first place those which are members of the Security Council, make room for a police adviser in the national UN Delegation.

Increased police competence in the UN organization

common that the concrete tasks for a police force are developed and continuously changed during the mission. They are given in an SOP

Standard Operating Procedures, Rules of Engagement or in operational directives. Regardless of in which documents the concrete tasks are

determined, important that qualified police officers are given the opportunity to participate. This increases the potential for using the police force in the best possible way.

A special example of the formulation of tasks for police work given the Dayton-agreement, appendix 11, regarding IPTF. This text has been declared by several reviewers to be the best example of a task description for a police force. The agreement was prepared under unusual forms and over a longer period of time than as a rule available when the UN Security Council formulates a mandate.

The Committee has met difflculties in its attempts to survey the concrete tasks for UN police forces. The tasks are given in several documents which have in some cases been difficult to trace.

In relation to the number of military officials within DPKO Department of Peace—Keeping Operations, the Civilian Police Unit within DPKO small. In the very important Mission Planning Cell in DPKO, there only one police officer. The development of the UN—headquai’ters does not correspond in this regard to the rapid increase in the number of UN missions with police elements and the high expectations placed on the police departments in these missions. Police questions should to a greater extent be observed in the planning work within DPKO. Police advisers and administrators should therefore to a greater extent be integrated within more units of DPKO. The Civilian Police Unit should be given greater role in a the planning of new missions. The unit should also be given increased resources for developing methods and doctrines within this field of expertise.

Greater competence for the police in peace-promoting service

well documented from several missions that many police officers in international service are not sufficiently experienced and qualified for the tasks which are placed before them. For example, they lack knowledge of basic human rights and this makes impossible for them to judge whether the local police follow current conventions. Knowledge of internationally applicable rules regarding e.g. the rights of arrested imprisoned an or an person necessary to be able to act as police observer. Differing tasks the home countries also mean different previous knowledge requirements for admission to the basic national police education. In countries with a federal form of government there not always a national police corps with the same training. USA, for example, lacks such a national police corps.

Another problem the lack of knowledge of the national language. The effect of a police action considerably increased the police officers have a command of the language. This especially important the police officers are to have executive tasks.

In general, UN strives for as broad a geographical representation as possible among the police—contributing countries. This an expression of UNs striving for neutrality and impartiality. also promotes global community and constitutes a condition for the organization to have the broad support required to be able to act. This striving for a geographical representativity and the same possibility for all members to participate has meant that police forces are often composed of police officers from many countries.

The general level of Competence of police officers in peace—promoting service should be increased. An aim can be that the members of the international police force shall have at least the same average general training level as the police who are to be monitored. An important subsequent step to give specialized training relating to the local conditions for the current mission. Here a few proposals are given for general competence-increasing measures to improve the conditions for an ongoing

mission. The special difficulties related to completely new missions are

treated separately.

UN has observed the problems which arise as a consequence of the low Competence of the international police and certain measures have been adopted to ensure a certain minimum level. This level in some respects too low to be accepted in the long term. Further measures should be taken. Training for an international task should in principle be carried out before arrival at the conflict area. This should include a general knowledge of the UN—system and human rights and a basic knowledge of the technical equipment included in the mission. Opportunity should be given for practical training in handling different possible situations in the field and report writing. Further, training should be given to a sufficient extent in the mission language and in vehicle driving. In this context, special attention should be given to a knowledge of the national laws in the area. should be important for UN to collect and give information to the policecontributing countries about the most important of these laws, e.g. which civil rights apply in addition to the universal human rights. The training should also include information about the cultural, ethnic and religious traditions of the other police-contributing countries and about the tasks of the police system in each country. Such knowledge facilitates the preparations for the service.

should therefore be important for Sweden and other police—contributing countries to contribute as far as possible to improving the training of police officers in international service. This would mean that the UN-contributions as such would have a better effect. Knowledge checks of different kinds should be undertaken before the departure from the home country. UN should maintain and develop the system introduced in 1997 with so-called selection teams.

UN should maintain and develop the system with a collected and standardized introduction in the mission area for newly arrived police officers. The introduction should include current information about the situation in the mission area and about the practical routines applied.

Another important aim to give police Officers from different countries the possibility of establishing contacts with each other already before the work in the field begins.

The knowledge check should be fixed and maintained at a level such that the potential for the mission to act in accordance with the mandate and other current directives not jeopardized.

Information to the population about UN’ task

When a force established and grouped, UN should confirm with the parties in the conflict that possible to spread information in a suitable way to the whole population about UN‘ role and tasks in the area. Since a recognized and general definition of the concept of "monitor" lacking, the interpretation of the concept becomes dependent on the special conditions at each individual mission. If a mandate far—reaching and intended to be attained step by step without this being clearly expressed, this can in the eyes of the local population give an impression of perplexity and passivity on the part of the UN. There are examples where police officers in a UNforce have become witnesses to a criminal act such as assault and have not intervened because the mandate only allows monitoring and reporting. This type of passivity influences UN‘ credibility not clearly explained and justified to the population.

ll Higher level of preparedness for international police activities

Proposal

Concerning measures within UN

The Committee proposes that Sweden should act so that UN to a greater extent allows police personnel to participate in the — preparations for new missions prepares a standardized organization plan for the headquarters in an — international police force. The plan should be designed so that facilitates cooperation with a corresponding military headquarters.

so-called "HQ-elements", i.e. key personnel selected in advance creates and given the possibility to prepare for future missions plans for the purchase of standardized materials and for the — prepares initial maintenance of police forces makes rapid decisions about the financing of such a force — more its member countries to arrange national systems which — encourages facilitate the rapid recruiting and deployment of police officers trained for

the purpose. further develops the possibilities of evaluating completed missions. By — recording and analysing experiences, the methods and organization can be

systematically improved. Arranges registers police officers who have a documented ability to over — fill leadership posts.

Regarding measures in Sweden

The Committee that the Government shall give the National Police proposes Board the task of preparing system which facilitates the deployment of a

Swedish police Officers in international peace-promoting activities at short

notice. Sweden should reinforce its Delegation to the UN in New York with

a police adviser.

Considerations

General

The experiences from peace-keeping missions during recent years indicate

need for these to be started rapidly and to have an effect shortly after the a decision. Another important experience that ongoing missions can rapidly need reinforcement change their direction and composition. a or conflict be frozen at early stage and the development turned in a can an positive direction, this will have the following positive effects: eg.

The suffering of the civil population decreases The conditions for reconciliation between the parties are improved

The duration of the peace-promoting mission reduced

The cost of the peace-promoting mission reduced

This leads the conclusion that should be taken on both the to measures international and national levels to facilitate the rapid establishment of more multinational police forces.

Measures within UN

A good and comprehensive planning of peace-promoting activities new very important for the rapid establishment of international police force an a conflict area. In general, police observers act in conflict situation a together with both military and other civil parts of peace-promoting a mission. In the early planning the focus usually directed towards process, military needs and requirements, and this reduces the possibility of creating favourable conditions for the police force. In the planning, increased consideration should therefore be given to police viewpoints and requirements. An important task for police officers who participate in reconnaissance and preparations for international police force should be an to map out the structure of the local judicial system, especially the organization of the police systern, and the local laws. A knowledge of this important good and realistic work tasks to be formulated in mandates are and other documents. also important for how the international police force to be composed and organized and for how the police-contributing countries should plan the mission-directed training.

The missions are led more and more often by Special Representative a appointed by the Secretary-General. Directly subordinate to him the military chief, the Force Commander, the chief of the police force, the Police Commissioner, and possibly other parts of the mission. The largest and therefore dominating component in mission usually consists of the a military force under the command of the Force Commander. A military headquarters has a fixed organization which similar in countries. most The different units have the and the chains of command same names are clear. A model for a military UN-headquarters thus also exists. Similar conditions do not exist for the police. When international police force an established, a police headquarters must therefore be created. This must work parallel with the military headquarters and cooperate with this many respects. therefore appropriate that the police headquarters be given a structure corresponding to that of the military headquarters.

important that there previously selected and prepared personnel are who can man key positions in the police headquarters. Examples of such posts are Police Commissioner, chief of staff, operations leader and maintenance chief. By selecting candidates in advance for these posts, persons can be given staff and leadership education. They can be recruited among those who work at the UN-headquarters and there have positions which need not be manned when mission undertaken. The unit for a experience recovery a unit where such posts be found. can

Access to the right equipment in early phase of a mission increases the an efficiency and creates confidence in UN. UN shall supply all joint equipment for the police force, vehicles, means of communication and e.g. buildings. The police-contributing countries expected to contribute only are the personal equipment of the police Officers. For the running maintenance in the form of fuel and communication equipment, the police officers are obliged to the maintenance resources of the military force. use e.g. important that this taken into consideration when the military maintenance capacity calculated. The equipment which UN uses in police missions should be standardized and user-friendly. This makes possible to educate in advance and under realistic active-service conditions. In order to achieve greater effect in the action, however, more advanced a even equipment should be available to permit rapid communication. The form of information transmission practised by EUs monitors in Bosnia-Herzegovina ECMM with the help of portable computers and telephones should also be available within police force in a UN-mission. a

The possibilities for UN rapidly to make the correctly adapted equipment available has varied in different missions. Delayed deliveries have caused problems for the police activity to function at early stage. One reason for an this often that the budget of UN-force determined by the General a Assembly several months after the Security Council has decided to establish

the force. Sweden should together with other troop- and police-contributing

countries that the budget for the UN-forces determined act so more rapidly and compiled that police department given the same so a opportunities military force in the same mission. as a

To achieve the intended effect, certain types of conflict require that many police observers rapidly available. important that the police Officers are placed at UN disposal have good training, the experience necessary for a the task and in other respects meet the requirements of the mission, not least regarding knowledge in languages. To make this possible, Sweden should that the member countries undertake national preparations that act so so they can rapidly make police officers available.

The number of UN-missions which have included police departments large that possible to learn general lessons from the experience now so gained. UN should study and these lessons not least when a new mission use being established. As example of experience gained about deficiencies an which being corrected, be mentioned the low administrative are now can alert. The documents which control the administrative routines and code of

behaviour of police force Standard Adrninistrational Procedures and

a

Code of Conduct have been prepared from to which has made the

case case work more difficult. Attempts being made to standardize these are now documents. Sweden should act to develop further this type of experience

recovery.

There are a few in different countries who have documented persons a experience of leading international police forces. UN should draw up a register over these in order to make rapid recruitment possible when a new mission to be established.

Measures in Sweden

Certain measures have already been taken to improve Swedens possibilities of participating in peace—promoting activities in wide a sense. Thus, a system available at the National Rescue Service Board which makes action possible at short notice. The system includes mobilization of personnel, equipment and logistics. The Swedish Parliament has further decided that within the Swedish Military Command system shall be a established which permits the rapid deployment of military units for international missions. The development during the 1990s has shown that police observers and police advisers for peace—promoting activities are needed to an increasing extent. There therefore good to establish reason a

system also within the police force which makes possible for Swedish

police officers to be deployed rapidly. At present, takes about ten weeks to recruit and train a Swedish police contingent for mission. The a new process includes application, grading, selection, planning of training, training and equipment. In the of smaller missions, the in case process can certain cases be shortened by making direct contact with police officers with earlier experience.

The Committee proposes that the Government should give the National Police Board the task of initiating trial activity which makes possible at a short notice to make Swedish police officers available for international an police force for peace—promoting purposes. The trial activity should include 20 police officers who are contracted by the National Police Board to participate in the trial for 12 months. The police officers contracted should

have undergone UNPOC United Nations Police Officers Course and

should have completed at least six months‘ foreign service during the last five years. Decisions about foreign service for the contracted should person be made by the Government. Those who contracted should receive are continuous information from the National Police Board about developments in possible conflict areas. The contract should include follows: as

0 the obligation to report to SWEDINT Swedish Anned Forces International Centre at weeks notice to undergo mission-directed

one a training and to be prepared to abroad within a further week. serve

the obligation to provide information about residence and current 0 telephone number to the National Police Board the home or place of work left for more than 48 hours.

For this, remuneration should be given as follows:

A fixed calendar month, third of which paid together with 0 sum per one the ordinary monthly salary. The remaining two thirds are paid only the Government decides foreign service. In that case, retroactive on payment of the sum earned made.

The payment to those who included in this force shall be a compensation are for e.g. the following sacrifices:

the discomfort of not being able to take holiday or other vacation for a 0 a long trip that would that one not always available mean

the uncertainty which arises for the private person and his/her family in 0 the planning of their private life

possible difficulties at the ordinary place of work because one not 0 entrusted with more important tasks

The Committee considers that the level of compensation should be decided after the Committee Survey of the Rules for the Swedish Military on Commands peace-promoting activities abroad dir. Fö 1997:21 has presented its report. important that the benefits for police and military personnel in similar peace-promoting service calculated according to the are procedures. This also applies to those who pledge themselves to be same part of system which facilitates rapid actions. a

Tested and stored equipment should be available for those who are under contract. The system for rapid actions should be designed so that financing via the Swedish development aid budget possible.

The Swedish Delegation to the UN in New York should be reinforced with police adviser with the aim of looking after police matters and to maintain a contact with the Civpol Unit and other parts of DPKO. Such a

reinforcement would increase Swedens possibility of attracting attention for the Swedish viewpoint in the establishment and operation of police activities peace-promoting missions. This especially important during the period when Sweden a member of the Security Council.

2.12 The National Police Board

assumes

responsibility

Proposal

The Committee proposes that the National Police Board shall have total a responsibility for all Swedish police officers in peace-promoting service. The National Police Board should take the states employer over responsibility and be responsible also for these police Officers. A Foreign Force for the Police Force should be established, the conditions of employment for which are similar to those which apply to personnel in the foreign force within the Swedish Military Command.

Considerations

Reasons for change

When the responsibility for police in peace-promoting activity considered, suitable to stan from the tasks which the police officers will perform.

The Swedish Military Commands responsibility for the police in peacepromoting service today includes not only their time abroad but also the educational period in Sweden and the debriefing conversations which are carried out after the period of service. This that the National Police means Board has no formal, statute-controlled responsibility whatsoever for these police Officers. The responsibility for psycho-social after the measures homecoming rests with the home-authority of the individual police officer. For peace-promoting service, Sweden recruits only police officers active the national police service. Those who of interest of such that are are an age they are expected to return to Swedish service after their period of foreign service. They are recruited because they have special professional a knowledge and common basic police education based the standards and on values which are characteristic of Swedish public life. Since the employer

responsibility for Swedish police Officers divided depending on now

whether they in Sweden or abroad, motives and resources are

serve lacking both within the police system and the Swedish Military Command to take real concentrated hold on this activity. The police activity in peacea promoting service today not given the attention which deserves. Neither the National Police Board nor the Swedish Military Command have to a sufficient extent followed the international debate or participated in the doctrine development within the field. Nor has been possible to handle the experiences gained in a systematic way.

further weakness that the ordinary employer has no formal a responsibility for the police officers during their foreign service in spite of the fact that police in foreign service represent not only the international organization concemed but also the total Swedish police corps. Experiences and knowledge which might be useful and valuable for the continued service of the civil policeman his return to Sweden not systematically added on are the police organization either. The possibilities of observing the merits of to foreign service in promotion context also made difficult. Finally, a are more staff welfare aspects related to experiences in foreign service are interrupted under the present system.

The tasks of the police in peace-promoting activities are in most missions to monitor the local police to assist the local police. These tasks are or carried out within the framework of the judicial system of the host country. In such the police officers placed under the command of a police cases, are commissioner appointed by UN who subordinate to the representative of

the Secretary-General at the location. In these cases, the police officers are

not included in Swedish military force. There thus no Swedish a constitutional requirement that the police officers shall be employed in the Foreign Force of the Swedish Military. Instead, the employment should take place within Foreign Force established within the Police Force. a

The meaning the proposal

In certain international police force without being included cases, an can, in military force and without being under the orders of any military a command, be given certain executive tasks. These be to protect the can e.g. civil population aid workers to prevent plundering etc. Intervention by or or the police and violence to solve the task in question in such a any necessary situation must be derived from mandate based chapter VI or VII of the a on UN Charter. Ultimately, the decision-making for each measure taken must be derived in command chain. Police officers under such command a

conditions can further be given the task of acting to create security and order by a proactive behaviour. When police officers abroad under serve such conditions, a requirement should be made for the adjustment of same their position in Swedish law applies to the military personnel. The as Committee estimates that police officers who act under such conditions should also be employed in the Foreign Force of the Police Force. Employment in the Foreign Force of the Police Force should therefore involve certain legal consequences, e.g. that Sweden shall have unrestricted penal jurisdiction regarding crimes committed by such personnel chapter 2 section 3.3 of the Swedish Penal Code. Provisions concerning disciplinary responsibility etc. can be necessary in accordance with what shown more closely earlier. However, falls outside the framework of this inquiry to propose the changes necessary. When police officers hold posts police as advisers or police instructors in Swedish military unit, they constitute a a part of the Swedish armed force. To meet the requirements of the Constitution and of what regulated in section 2 of the Armed Forces Act, they should thus be employed in the Foreign Force within the Swedish Military Command. Also in when police officers in other forms cases constitute a part of a Swedish military contribution in peace—promoting activities, the employment should be with the Foreign Force within the Swedish Military Command. In aid contributions, another form of pure employment should be considered than within the Foreign Force of the Police Force.

The Committee proposes that the National Police Board shall have the total responsibility for Swedish police in peace—promoting service. The proposal means that a Foreign Force of the Police Force established by amending the instructions of the National Police Board. As a consequence, an amendment proposed to the Ordinance 1984:309 about the Foreign Force within the Swedish Military Command that the provisions so concerning the civilian police department in section 3 of the Ordinance are removed. The responsibility for Swedish police officers in international peace-promoting service thereby transferred to the National Police Board. This means the responsibility for the recruiting, training, maintenance and staff welfare of the Swedish police officers who participate in peacepromoting activities. The National Police Board should also be given the responsibility of actively following the methodological and doctrinal development within the field. The proposal that the Government means may need to take the initiative to introduce amendments of the type recently indicated and to the Ordinance accounted for below.

The employment conditions for the Foreign Force of the Police Force should be the those for the personnel in the Foreign Force within same as the Swedish Military Command. The benefits should be determined in an ordinance. In each individual mission, estimate should be made as to an whether the employment shall take place within the Foreign Force of the Police Force in another form. If the police officers are to serve as police or observers police advisers in police department led by a Police or a

Commissioner and who acts in the area as a military peace—promoting

same force, employment in the Foreign Force of the Police Force suitable. the service has the characteristics of aid contribution, eg. as a teacher at an national police school member of international tribunal, the a or as a an employment should take place in the before with the National same way as Police Board employer with financing from SIDA. The proposal does not as influence the possibility of recruiting police officers for service at military in the Foreign Force within the Swedish Military Command. In such posts the police officers shall be given leave of absence from the Police cases, Force and shall have the Swedish Military Command as employer.

Special attention should be directed towards the tasks which the police officers out in the conflict If they are to be placed under are to carry area. military command and armed in other than for self—defence, any way employment take place only in the Foreign Force within the Swedish can Military Command. This should not occur often.

The Committee considers essential that the responsibility of the National Police Board also includes the systematic and long—terrn work within the

field of police in peace—promoting service. Methodological and doctrinal

development should, along with regular follow-up, be subjected to a continual attention.

The Committees proposal for change in responsibility need not in itself a increase. The proposed increase in ambition regarding mean any cost particular methodological and doctrinal development means extra costs which however, be financed. This should largely be achieved through must, coordination and rationalization of all the international activity within the a National Police Board.

Today, the responsibility for international police questions within the National Police Board divided into different units. As shown earlier, International and national organization for police work, such matters are handled three different units within the National Police Board; the at International Secretariat, the National Criminal Police and the Police

Academy. The National Criminal Police has the operative responsibility for international police activity and has for several dealt with years matters concerning police officers in peacekeeping service. T0 increase efficiency, desirable that the National Police Board gathers the overall responsibility for police in peace—promoting activities into a single unit.

As shown previously, the Committee proposes that system established a within the Police Force which permits rapid actions involving police more officers than at present possible. technically and practically appears difficult to handle those who affected by this contracted, are system are budgeted and otherwise administered by other principal than the any National Police Board. In the be both same way, appears to administratively and in principle unsuitable those who included the are rapid—deployment system have different employer than those who a serve abroad.

important to retain the benefits of the

present system

There are however certain obvious advantages with the which system applies in Sweden today. The co—operation between the administrators concerned at the National Police Board and the Swedish Military Command in these questions functions well according to concordant testimonials. There are well developed routines and good personnel knowledge a among teachers and administrators. The training in the form of UNPOC, the mission-directed training and the home—coming debriefings carried are out by the Swedish Military Command and in the place the military same as

troop.‘ This means that the local knowledge and experience available within

the Swedish Military Command to act within certain conflict a area utilized. In UN mission, in particular in the headquarters of the civilian a police department, there close and frequent cooperation with the military headquarters. In certain missions, in UNAVEM III in Angola, there e.g. was a close co—operation in the field. Similar training therefore desirable. should be observed that the training of police officers and military

personnel does not however take place simultaneously at the Swedish

Military Command. No contacts of importance for the future therefore are

l Military observers trained at three-week long joint Nordic Finland and are a course

spend only a short period at SWEDINT.

established at the student-level. This reduces somewhat the importance of the civil police training taking place at SWEDINT. Only the few police Officers which educated at the staff course UNSOC UN Staff Officers are

Course at UNMAS Nordic UN Peace-Keeping Mission Management

or Seminar have military course comrades.

Since the police officers included in the Foreign Force within the are Swedish Military Command, they automatically subjected to several are other laws and regulations, the Ordinance FFS l984:31 regarding e.g. benefits employed the Foreign Force within the Swedish to an person Military Command, and the Act 1994:1811 regarding disciplinary responsibility within the total defence etc. The police officers are also awarded the Swedish Military Commands medal for international service. This guarantees that personnel who serve in the same region and under similar external conditions, rule within the same mission, also have the as a Swedish employment conditions. This reduces the risk that different same Swedish personnel categories in conflict area will feel that there are a "injustices" between different groups.

The joint responsibility for military and police components facilitates the possibility of using the Swedish Military Commands transport resources for service and leave trips. The joint storage of uniforms and other e.g. materials provides coordination benefits for the national administration. Through SWEDINT, the Swedish Military Command has an organization which specially adapted to international service and has the resources required rapid and unexpected tasks. For the running operation to meet new of the forces located abroad, there similarly great experience and high within the Swedish Military Command. Cashier services, salary competence routines and contacts with UN and other international organizations are facilitated by the fact that there responsible authority in Sweden. one Since the home country has right to give operative instructions during the no foreign service, not decisive whether or not there police Competence at the employment authority in Sweden.

The Committee considers important that a change in responsibility very aims at assimilating the advantages of the change without losing the advantages of the present system. Several international reporters have considered that the close cooperation which exists in Sweden between

military and police activity in peace-promoting service good. Training,

equipment and exercise should therefore also take place at SWEDINT in the future. The good collaboration which already exists between the two authorities should be developed and deepened.

This can take place the Foreign Force of the Police Force mainly carries out its activity at SWEDINT. An agreement probably required between the Swedish Military Command and the National Police Board the to govern details of this collaboration. important that the applicable rules very valid for the Foreign Force within the Swedish Military Command, and which are described closely chapter also apply the Foreign more to Force of the Police Force.

2.13 Training and recruiting

Proposal

The Committee that elements concerning peace—promoting proposes service are introduced into the basic Swedish police training. Recruitment of police officers to the Foreign Force of the Police Force should take place more actively than has so far been the Special attention should be case. directed towards those counties which from experience have low a proportion of police officers in foreign service. The importance of female police officers should be observed.

The present structure with UNPOC and later mission—directed training a should be maintained and complemented in certain respects. The need for integration with military units should be given increased attention.

When the Foreign Force of the Police Force established, the National Police Board should consult with the Co-ordinator of Training for International Missions who has been appointed in accordance with the Governments decision the Defence of 1996. on

Considerations

The Committee establishes that Sweden has internationally good an

reputation as a police—contributing nation. A strong contributing for

reason this that Swedish police officers have undergone training which has made them both mentally prepared and trained to act in a foreign environment.

In order to create understanding for police officers as a conflict-solving an instrument already at early stage of the professional career, and thereby an initiate interest in international activities, information should be given an the basic police training about the possibility of participating in a peacepromoting mission later in ones This can take place in the form of a career. study visit to SWEDINT during the police training or by employing police officers with international experience lecturers during the basic training as at the Police Academy.

important that the circle of police officers who apply for foreign

service made large possible. This increases the selection possibilities

as as and the quality. A simple comparison of the county-affiliation of the police officers who served abroad during the spring of 1997 shows that several counties represented. According to information from experienced are not police officers, this situation. The Committee considers a common important that special taken to expand the recruitment base. In measures are the recruiting to each mission, the role which female police officers can play in creating confidence in relation to the civil population shall further be given special consideration. In the training of police officers women and for peace-promoting activities, special training should therefore be men given in the handling of traumatized women who have been exposed to or have witnessed acts of violence.

Knowledge about the meaning of human rights and basic police knowledge of relatively permanent character whereas the knowledge about are a ongoing missions needs to be updated continuously. therefore very important that teachers and instructors at UNPOC and the rnission-directed training continuously given the possibility of updating their knowledge. are Also in the future, recruiting should take place among those who have personal experience from service abroad. Teachers and instructors should be connected to the National Police Board in a more solid way than before, perhaps for period of three to motivate them to keep their a years, knowledge updated. The National Police Board should have continuous contact with the teachers and should supply adequate information. The system should be arranged that not all teachers are exchanged at the so time. For the Swedish viewpoint to be credible in the international same debate police questions, number of confidence—inspiring persons who on a work with them required; sufficient number of voices must be heard in a public for the Swedish opinions to be credible. Not least, important that teachers and instructors communicate their experiences to the world around. This also facilitated the teachers firmly connected to the are more foreign force of the Police force than so at present.

UNPOC suitable its length and extent. The content should be course general and should be continually updated. UNPOC should also in the future be located at SWEDINT. This should be in Co-operation with the Coordinator of Training for International Missions who has been appointed as a result of the latest Governmental decision on the Defence. The mission—directed training should be extended week and should be to a directed mainly towards the judicial conditions in the mission country. Knowledge of the local police force and the legal system should be given a prominent place.

In new recruiting of personnel to already ongoing missions, the need for knowledge of the national language should be observed. Possibilities should be given to those who have been selected to out studies in relevant carry languages through language for individual studies made available courses by the Foreign Force of the Police Force. The condition should apply same to the mission language. This especially important when the mission language not English. not reasonable to train police officers in "odd" languages for possible future work.

The need for managerial training in the form of e.g. staff training should be observed to a greater extent. More police officers should undergo integrated training such as UNSOC and UNMAS.

In section 2.10, More efficient police activities within UN, viewpoints are given on training on arrival at the mission Sweden should further area. act so that within UN and other perforrnance-organizations, budgeting should always ensure that resources continuously available for training in are an ongoing mission. This training should in the first place be aimed at providing a complementary knowledge within different fields where need a has been found to exist during the of the mission. progress

Sweden should in the future also police-contributing countries encourage to offer each other places in national training for peace-promoting courses police activities. The aim should be to other countries to provide encourage similar education.

natural that the National Police Board actively collaborates with the Swedish Military Command in the introduction of the Foreign Force of the Police Force. Co-operation should also take place with the Co-ordinator of Training for International Mission.

2.14 Financing

Proposal

The Committee proposes that funds for administration in Sweden of the Foreign Force of the Police Force should be budgeted within the National Police Boards administration appropriation as a special item. The item should be dimensioned that at least those funds which are today allocated so by the National Criminal Police, the Police Academy and the Swedish Military Command for recruiting, training, administration and follow-up are transferred to the Foreign Force of the Police Force item, which should be administered by the National Police Board.

The funds budgeted for UNPOC and for other aid activities to be carried out by police officers should be placed at the disposal of the National Police Board in a so-called regulation letter.

The operational costs for the activity abroad should even in the future be kept separate from the costs in Sweden.

The present division of the operational costs into different items depending on the aim of the work appropriate and should be maintained.

The Government should in future budgets observe that the international demand for police officers expected to increase. In relevant appropriations, funds should be allocated to permit an involvement on at least the level proposed in this inquiry.

Considerations

A collected responsibility for international police matters means that the economic responsibility must be transferred to the National Police Board. This means e.g. a responsibility to prepare the annual budget and annual accounts and to calculate costs in connection with the start of a new mission or the extension of an ongoing mission. important that the Government which determines the volume of the activity. should therefore

be budgeted as its own item to prevent the funds from being reduced connection with e. new priorities in other fields within the activities of the National Police Board. Here, those proposals of the Committee which are important in a budget context are commented on.

Responsibility ana method development

The proposal for a change in responsibility estimated to be neutral regarding costs to the state. Certain one-time costs in connection with the reform can however arise. The exact size of the sums to be transferred to the Foreign Force of the Police Force from the Swedish Military Command, the National Police Board and the Police Academy must be calculated before the coming budget work. The Committees proposal for greater attention to the field of methodological and doctrinal development means an increase in ambition which leads to greater costs than in the present situation. The Committee estimates that the needed for this resources purpose can amount to work for approx. one person during one year.

Increased awareness of police tasks in peace-promoting military units

The Committee proposes that the Government shall Commission the Swedish Military Command and the National Police Board to investigate more closely the conditions for an increased awareness of military peacepromoting units for solving certain police tasks. The task should also include an estimate of the economic consequences of extended e.g. an training period.

The extent of the Swedish participation

The proposal for a Swedish readiness to make available 125 police officers permanently or 150 police officers temporarily must, to be feasible and credible, correspond to a budgetary preparedness within the appropriations concerned. A higher long-terrn ambition level also means higher costs at the National Police Board for administration and training. The average Swedish operational cost for 125 police officers in UN-service calculated to be ca SEK 75 million with annual cost of SEK an average 0.6 million per police officer. The cost for those police officers who do not

receive MSA Mission Subsistence Allowance from UN in general

higher than for those who have MSA. The budgetary preparedness should be such that also permits participation in those countries where the costs exceed the average. The Committee establishes that the police activities abroad are of different characters and are included in missions with

different mandates. Some contributions of aid character whilst others are an be regarded parts of traditional peace-keeping contribution in close can as a collaboration with military components. T0 be able still to meet new demands with rapidity and flexibility, possibilities should exist within the Swedish state budget to use funds from several appropriations. The two appropriations used at present are well suited for the purpose. When the budget established for a new mission, or the police contribution reinforced in ongoing missions, should be noted that an increase also increased costs for administration and training in Sweden. These means costs should also, while awaiting a coming budget, be included in the operational costs for the new or extended mission. The Committee considers that the National Police Board should administer the funds used for the operational costs of the personnel stationed abroad.

System for higher awareness of international work

The costs for a system which makes possible rapidly to recruit personnel independent of e.g. the number of persons included, the length of the are contract period and the mobilization time. In a previous section, examples have been given of factors which are important when the payment level calculated. In the section, reasons are given for why the Committee same refrains from making proposal about the payment level. any

Police advisers at the Swedish representation in New York

The annual cost for police adviser at the UN Delegation in New York a estimated to amount to nearly SEK one million. This personnel reinforcement possibility for improving an activity which largely of a aid character and should therefore be financed with funds from the an Swedish development aid grants.

Extended mission-directed training

The mission-directed training today financed by funds assigned in a regulation letter or separate Government decision for the operation cost of each action. The Committees proposal that the cost for each mission means increases with sum which corresponds to three further service days a Sweden police officer. This should be observed in the preparation of per future budgets.

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