Executive Summary
Changing nature of peacekeeping operations
In recent times, Australia has engaged in peacekeeping missions
that have been both complex and broad in scope. They have focused not only on
bringing an end to hostilities but on resolving the root causes of conflict. No
longer the domain of the military, peacekeeping operations now involve a range
of government and non-government agencies that must work together to achieve the
mission's long-term objectives. These operations can be costly and dangerous
undertakings with a real risk of failure. Australia also faces the challenge of
having to adapt to changes in peacekeeping doctrine and practice. In this
regard, matters such as responsibility to protect, exit strategies, civil–military
cooperation and the involvement of women in peacekeeping operations have been,
and continue to be, the subject of international debate.
Thus, the changing nature of doctrine and practice has profound
implications for Australia—both as a member state of the UN and a long-time
contributor to peacekeeping missions. They influence Australia's approach to
participating in operations and decisions relating to composition and structure
of deployment, training and preparation of personnel, and coordination of effort.
The committee's two key recommendations are directed at
developing and improving the whole-of-government policy on, and coordination
of, Australia's engagement in peacekeeping. They are recommendations 37 and 38
relating to a white paper on peacekeeping and broadening the potential of the
Asia–Pacific Centre for Civil–Military Cooperation and are to be found in Part
VI of the report.
White paper on peacekeeping
Despite the dramatic changes to peacekeeping operations and Australia's
increased and broadening engagement in such missions, particularly as a lead
country in the region, there is no policy document that presents a
whole-of-government approach to peacekeeping. The committee believes that it is
time for such a document.
The production of a white paper would provide the government
and its relevant agencies with the opportunity to review their policies and
practices and to better understand how their activities contribute to the
whole-of-government effort. It would also require the government to articulate
its policy across the full spectrum of Australian peacekeeping activities,
thereby allowing more informed public scrutiny of this important area of
government engagement.
Recommendation 37 p.
344
The committee recommends that the Australian
Government produce a white paper on Australia's engagement in
peacekeeping activities.
Asia–Pacific Centre for Civil–Military Cooperation
The committee welcomes the government's decision to establish
an Asia–Pacific Centre for Civil–Military Cooperation. Based on the evidence,
the committee can see advantages in expanding the scope of the institution's
mandate. It is also concerned that important decisions are being made about the
role, functions and structure of the centre without the benefit of a scoping
study, especially considering the existence of a number of highly-regarded
overseas institutions.
Recommendation 38 p.
360
The committee recommends that the Australian Government
establish a task force to conduct a scoping study for the Asia–Pacific Centre
for Civil–Military Cooperation, focusing on best practice. The task force would:
- include representatives of the ADF, the AFP, DFAT, AusAID and
NGOs;
- visit the major international peacekeeping centres and hold
discussions with overseas authorities—visits could include the Pearson
Peacekeeping Centre in Canada, Centre for International Peace Operations in
Germany and centres in Malaysia and/or India;
- examine the structure, reporting responsibilities, administration,
funding and staffing of these institutions—the task force would seek specific information
on matters such as the civil–military–police coordination, administration of a
civilian database and domestic/regional focus;
- assess the strengths and weaknesses of the various institutions
with a view to identifying what would best suit Australia and the region; and
- based on this assessment, produce a final report for government
containing recommendations on the Asia–Pacific Centre for Civil–Military
Cooperation.
The government
should make the report available to the committee.
The committee also draws attention to recommendations 7, 34,
35 and 36 (exit strategies and evaluation) and their accompanying commentary.
They are based on the committee's findings that more could be done within the
whole-of-government sector engaged in peacekeeping operations to develop and
strengthen a culture of learning, improvement and accountability.
Most of the remaining recommendations are concerned with
ensuring that Australian peacekeepers are well prepared to meet the challenges
of today's missions. In particular, the committee emphasises the need for interoperability
at all levels and between all elements of an operation. It suggests that better
planning, communication, training and joint exercises, and collaboration in
developing shared doctrine would help to improve coordination between all
participants, including partner countries, in a peacekeeping operation. The
following recommendations are presented sequentially.
Mandates
The committee finds that, while broad consensus exists in the
international community on the principles that should underpin a mandate,
political compromises in the Security Council may produce a mandate that does not
fully adhere to such principles. Thus, the committee is of the view that the
Australian Government needs to examine a peacekeeping operation's mandate thoroughly
to ensure that it meets these fundamental requirements. Although the government
indicated that it is aware of these requirements, the committee feels obliged
to underline, as have countless previous reviews and inquiries, the importance
of observing these principles.
Recommendation 1 p.
53
The committee recommends that, before the Australian Government
commits personnel to a peacekeeping operation, it is satisfied that the mandate
has:
- clearly stated and achievable goals based on an assessment and
understanding of risks, including the worst case scenario;
- a level of commitment that can be sustained throughout the
life of the mission in order to achieve the stated objectives; and
- adequate resources to meet the objectives—the proposed force
to have the capacity and capability to fulfil its tasks as set out in the
mandate, and sufficient financial resources available to implement the mandate.
Furthermore, where Australia is taking a key or lead role in
the proposed mission, the committee recommends that the Government of Australia
ensure the terms of the mandate strictly meet these fundamental requirements.
This would be done in consultation with the host country, the UN and potential
partners.
Emerging doctrine—responsibility to protect
The committee recognises that Australia has given strong
support to the adoption of the responsibility to protect doctrine (R2P). It notes,
however, the call by former UN Secretary-General Kofi Annan for the
international community to do better and 'develop the responsibility to protect
into a powerful international norm that is not only quoted but put into
practice, whenever and wherever it is needed'.[1]
It believes that Australia's role now is to help ensure that the doctrine
extends beyond lofty rhetoric to action where required.
Recommendation 2 p.
67
The committee recommends that the Australian Government
continue to support actively the R2P doctrine and, through its representations
in the UN, ensure that international deliberations are informed by the
doctrine.
The committee also recommends that in the committee's
proposed white paper on peacekeeping (Recommendation 37), the Australian
Government include a discussion on, and an explanation of, Australia's current
position on this evolving doctrine.
Legal foundation for peacekeeping
operations
The committee stresses the imperative for missions to have
solid international legal underpinnings—either in the form of a UN mandate or
the host country's consent. For Australia, the need to have a firm legal basis
is especially important in regional peacekeeping missions that operate without
a UN mandate, such as some operations in East Timor and the operation in Solomon
Islands.
Recommendation 3 p.
78–79
The committee recommends that before the Australian
Government decides to contribute to a non-UN mandated peacekeeping operation,
it is satisfied that the mission has a proper legal framework with recognised
authority to deploy the operation and is consistent with Australian law. In
this regard the committee recommends that:
- as early as practicable, the UN is consulted and fully
informed about developments and any proposals for a peacekeeping operation;
- the Australian Government places the highest priority on
securing regional support for the peacekeeping operation;
- the host country, through its legally recognised authorities,
has requested the establishment of a peacekeeping operation and willingly
consented to the deployment of forces and the conditions under which they are
to operate—the agreement to be documented in appropriate legal instruments and
provided to the Security Council; and
- the legal documents authorising the deployment of a
peacekeeping operation to be treated, if not in the form of a treaty, in a way
similar to treaties; that is, tabled in Parliament with an accompanying
National Interest Analysis and examined by a parliamentary committee.
Furthermore, that the operation's mandate:
- is in complete accord with the UN Charter and is accountable
to universally accepted human rights standards and Australian law;
- contains arrangements to ensure that the Security Council and
the peacekeeping operation complement each other's efforts to keep the peace;
and
- includes provisions making the mission accountable to the UN
and covers issues such as reporting procedures and channels for the exchange of
information.
Finally, through both formal and informal channels, the
government endeavours to obtain UN endorsement of the operation even though the
operation may have commenced.
Use of force and force protection
Evidence to the inquiry indicated that there were shortcomings
in relation to force protection for the Australian Training Support Team in East
Timor (ATST-EM).
Recommendation 4 p.
91
In light of the concerns raised about the conditions under
which some members of ATST-EM were deployed, the committee recommends that the
ADF conduct a review of this deployment to identify any shortcomings and ensure
that lessons from ATST-EM's experiences inform the deployment of similar small
contingents. This case study would, for example, examine matters such as their
preparation to serve as unarmed peacekeepers, the chain of command arrangements
and the provision of health services.
The committee notes that the number of people and agencies
involved in interpreting a mission's mandate and rules of engagement may create
inconsistency or confusion regarding the use of force in the field. Poorly
worded mandates magnify this potential.
Recommendation 5 p.
93
The committee recommends that, before deploying Australian
personnel to a peacekeeping operation, the Australian Government ensure that
all instruments covering the use of force are unambiguous, clearly understood,
appropriate to the mission and provide adequate protection.
The committee also notes that mandates that do not provide
adequate force protection may jeopardise the health and wellbeing of
peacekeepers. The committee recognises that Australian peacekeepers must have
clear rules of engagement that 'match the needs on the ground', to avoid
situations where they lack the capacity or the authority to perform tasks such
as protect civilians.[2]
The lessons from the experiences of Australian peacekeepers in Rwanda and Somalia
are particularly important.
Recommendation 6 p.
93
The committee recommends that all government agencies advising
the Australian Government on Australia's participation in a proposed
peacekeeping operation address clearly the adequacy of force protection
provided in the mandate and accompanying ROE. This consideration is not only
from the perspective of the physical safety of Australian personnel but also
their mental wellbeing. Ultimately, the government must be satisfied that the
mandate matches the needs on the ground.
Exit date, exit state, exit
strategy
The committee's report highlights the importance of specifying
in a mission's mandate the conditions for withdrawing a deployment. The
Australian Government should note that specifying an end date or state is not
in itself an exit strategy. The committee agrees with the weight of evidence
that the identified exit date or state should be accompanied by a roadmap or
exit strategy—a clear and structured plan for achieving the mission's
objectives. Further, that the strategy contain milestones against which the
progress of the peacekeeping operation can be assessed. The committee believes
that when committing Australian forces to a peacekeeping operation, the
Australian Government should clearly articulate its objectives in light of the
mission's mandate and how they are to be achieved.
Recommendation 7 p.
105
The committee recommends that, when
considering a proposed peacekeeping operation, the Australian Government examine
in detail the mission's exit strategy to ensure that Australia's
contribution is part of a well-planned and structured approach to achieving
clearly stated objectives. When committing forces to an operation the
Australian Government should clearly articulate its exit strategy.
Preparation and coordination
ADF
Many submitters roundly rejected the notion of Australia
having a dedicated permanent peacekeeping force. Based on this strong evidence,
the committee is of the opinion that Australia should not move towards a
permanent peacekeeping force within the ADF. Even so, the committee took
account of the views of some submitters, particularly former ADF members who
served in command positions in peacekeeping operations, about the need to have
training for peacekeeping over and above that required for warfare.
Recommendation 8 p.
121–122
17.1
The committee recommends that the ADF place a high priority on its
undertaking to give training for peacekeeping operations a 'more prominent
place' in its training regime. This training should extend to reservists as
well as regular members of the ADF.
AFP
The committee commends the AFP for its pre-deployment
training which it believes equips AFP personnel to assist other nations build
capacity in the area of law and order.
The committee recognises the need for the AFP to have
logistical capability of its own. It accepts the view that the AFP cannot build
'a complete logistical capability', and in some cases will rely on the
resources of the ADF to assist it during a peacekeeping operation. Where the AFP
requires its own capability, the committee believes that compatibility with
Defence systems should be a primary consideration.
Recommendation 9 p.
135
The committee recommends that the AFP
adhere to a procurement policy that requires, where possible, any equipment
purchased for use in a peacekeeping operation to be compatible with equipment
or technology used by the ADF.
ADF and AFP interoperability
Interoperability between the ADF and the AFP, and their
ability to transition in and out of different security levels, is essential. The
committee notes that interoperability goes well beyond having the right range
of capabilities and logistical compatibility. It is important for both the ADF
and the AFP to share intelligence, assess threats, integrate strategies and
tactics, command operations and communicate in the field. The committee finds,
however, that the ADF and the AFP have not always been able to operate smoothly
in the field due to a lack of familiarity and differences in work culture.
Defence acknowledged the need for 'the agencies to work more closely' while the
AFP referred to interoperability as a 'work in progress'. Clearly, more work needs
to be done and both the ADF and the AFP should treat this as a matter of
urgency.
Recommendation 10 p.
157
The committee recommends that the ADF and the AFP work together
to devise and implement programs—joint training and exercises—and develop
shared doctrine that will improve their interoperability when deployed
overseas. In particular, the committee recommends that the ADF implement a
program of secondments of their members to the AFP's International Deployment
Group.
Training and preparedness of other
government agencies
In the committee's view, the current peacekeeping training
programs for Australian public servants could be better structured. If Australia
is to achieve an effective whole-of-government training framework, the committee
believes the government must begin by finding a way of integrating the separate
training programs and ad hoc courses into a coherent whole. While
allowing agencies to continue to train their personnel for their specific
functions, this whole-of-government approach would avoid duplication, identify
and rectify gaps in training and promote better cooperation and coordination
among all participants in the field.
Recommendation 11 p.
164–165
The committee recommends that DFAT and AusAID jointly review
the pre-deployment training arrangements for Commonwealth officers being
deployed on peacekeeping missions with a view to establishing a government approved
course of training. The committee recommends further that:
- all Commonwealth personnel deploying to a peacekeeping
operation satisfy the requirements of this course;
- relevant government agencies require all their external
contractors providing services to a peacekeeping operation to undergo appropriate
screening and training; and
- to ensure the effective transfer of skills and knowledge, DFAT
and AusAID include in their pre-deployment preparations a 'training for
trainers' course for personnel whose duties involve instructing or coaching
people in a host country.
Whole-of-government coordination
Strategic planning
The committee accepts the argument that flexibility is needed to
coordinate arrangements for peacekeeping operations to enable appropriate responses
to the circumstances of each mission. Even so, it can see advantages in
conducting a comparative study into the effectiveness of the approach taken for
the Regional Assistance Mission to Solomon Islands and for operations in Timor-Leste.
An interdepartmental committee was established for Solomon Islands while coordination
is managed through the Strategic Policy Coordination Group for Timor-Leste. The
committee believes that there are important lessons to be learnt from such
review and analysis.
Recommendation 12 p.
171
The committee recommends that DFAT undertake a comparative
review and analysis of the strategic level arrangements for the planning and
coordination of RAMSI and peacekeeping operations in Timor-Leste and to use the
findings as a guide for future missions.
Non-government organisations
The committee notes the important role that NGOs play in
pre- and post-conflict environments and commends their contributions to peace
building. It recognises that training is important to prepare civilian
peacekeepers adequately for their tasks but that Australian NGOs could improve
the standard of training. The committee believes that, under the guidance of
the Australian Council for International Development (ACFID), NGOs should
review their training programs with a view to establishing fundamental
principles and standards for training civilian peacekeepers. The committee encourages
the government, through AusAID, to support the NGO sector in developing these
guidelines and implementing training regimes.
Government–NGO coordination
Strategic planning
The committee finds that NGOs are not represented at the
strategic planning level for a peacekeeping operation. It believes that
deliberation at this high level is rightly the business of the relevant government
agencies. Nonetheless, the committee believes that relevant government agencies
must liaise with the NGO sector to ensure that this sector forms part of an
effective whole-of-nation response to a peacekeeping operation.
Recommendation 13 p.
188
The committee recommends that AusAID coordinate a consultation
with DFAT, Defence, AFP, ACFID and key NGOs to establish a more effective
mechanism for involving the NGO sector in the planning of Australia's
involvement in peacekeeping operations.
Coordination
The committee also considers it is important for NGOs and
government agencies to have ample opportunities to share knowledge, ideas and
concepts and to develop mutual understanding and appreciation of each other's
work in peacekeeping operations. It believes that there is scope for both DFAT
and AusAID to do more to develop cooperation and coordination between the two
sectors, especially by extending activities beyond briefings to joint training
and collaborative planning.
Recommendation 14 p.
190
The committee recommends that a whole-of-government working group,
such as the Peace Operations Working Group, arrange to hold regular meetings
with representatives of NGOs engaged in peacekeeping operations to discuss and develop
training programs and courses that would improve their working relationship. The
committee recommends further that, in consultation with other government
agencies and relevant NGOs, DFAT and AusAID review this arrangement in 2010 to assess
the value to each organisation involved, and how it could be improved. The
results of the review would be contained in DFAT's annual report.
CIMIC
Although the military and civilian components of a
peacekeeping operation have been working side by side for many years, the
increasing levels of interaction between them have underlined the significance
of civil–military cooperation (CIMIC). The ADF has developed a CIMIC doctrine
to assist it plan and implement ADF missions in the wider civilian context. In
light of the evolving nature of CIMIC and the suggestion that ADF's doctrine
could be improved, the committee believes that an ADF review of its doctrine
would be timely.
Recommendation 15 p.
197
The committee recommends that, in consultation with AusAID
and ACFID, Defence review its civil–military cooperation doctrine, giving
consideration to identifying measures to improve coordination between the ADF
and the NGO sector when engaged in peacekeeping activities.
The committee recommends further that Defence
include a discussion on its CIMIC doctrine in the upcoming Defence White Paper
as well as provide an account of the progress made in developing the doctrine
and its CIMIC capability in its annual report.
Recommendation 16 p.
198
As part of this review process, the committee recommends
that, in consultation with AusAID and other relevant government agencies and
ACFID, Defence and the AFP consider the merits of a civil–military–police
cooperation doctrine. The consideration given to this doctrine would be
reflected in the committee's proposed white paper on peacekeeping.
Some NGOs referred not only to INTERFET but recent events in
Timor-Leste to draw attention to what they identified as inadequacies in ADF's
CIMIC capabilities. Before the last election, the Australian Labor Party also
commented on recent ADF deployments to Solomon Islands and Timor-Leste which,
in its view, demonstrated the need to improve ADF's CIMIC capability.
Recommendation 17 p.
201
The committee recommends that in conjunction with its review
of CIMIC doctrine, ADF consider ways to strengthen its CIMIC capability.
During the inquiry, a number of NGOs called for improved
dialogue with the military, better understanding between the organisations and
closer involvement in the planning of peacekeeping operations. The committee
also notes that NGOs could facilitate this process through better organisation
and liaison amongst themselves.
Recommendation 18 p.
216
The committee recommends that AusAID, ACFID and Defence
jointly review the current pre-deployment education programs, exercises,
courses and other means used to prepare military and civilian personnel to work
together in a peacekeeping operation. The committee recommends further that
based on their findings, they collectively commit to a pre-deployment program
that would strengthen cooperation between them and assist in better planning
and coordinating their activities.
The committee sees merit in Austcare's proposal for four
collaborative case studies to identify ways to improve coordination between the
security and humanitarian elements of peacekeeping operations.
Recommendation 19 p.
216
The committee recommends that Defence, AFP, AusAID and DFAT
commission a series of case studies of recent complex peacekeeping operations,
as proposed by Austcare, with the focus on the effectiveness of civil–military
cooperation and coordination. Their findings would be made public and discussed
at the Peace Operations Working Group mentioned in Recommendation 14.
Host countries, participating countries and effective partnerships
The committee recognises that the presence of peacekeepers
in a small island state such as Solomon Islands affects the local economy and
may cause resentment among some local people.
Recommendation 20 p.
228
The committee recommends that the Australian Government
consider the lessons from RAMSI regarding the positive local reaction to the
mission's 'relatively low profile' with a view to adopting this approach as
policy and best practice.
Recommendation 21 p.
240
The committee recommends that the Australian Government
commission independent research to test, against the experiences of past
deployments, the relevance of the factors identified by the committee that
should inform Australia's approach to, and planning for, a regional operation.
These include the need for understanding sensitivities regarding sovereignty,
language skills and cultural awareness, local ownership and involving local
community groups (for complete list see paragraph 16.61). The committee further
recommends that the information be used to develop a template for the conduct
of future missions.
Language and cultural awareness
Although there are limits to the resources and time that can
be devoted to language and cultural awareness training, evidence before the committee
suggested that such training must be a priority for any peacekeeping
contingent. The committee notes the patchwork of institutions and organisations
providing language and cultural awareness training on behalf of the various
government agencies. The committee believes that efficiencies could be gained
by adopting a whole-of-government approach to this area of training for
Commonwealth officers. Such an approach would allow the ADF, for example, to
continue its language schools but see a better use of such facilities.
Recommendation 22 p.
254
The committee recommends that a
whole-of-government working group review the language and cultural awareness
training of government agencies with a view to developing a more integrated and
standardised system of training for Australian peacekeepers. The Peace Operations
Working Group may be the appropriate body to undertake this work.[3]
Joint training
The importance of training for both operational effectiveness
and personal and collective security was one of the strong messages coming out
of the evidence to the committee. Peacekeepers need to be able to work in a
cooperative partnership with others from different countries. The more
opportunities that Australian peacekeepers have to meet, train and work with
their overseas colleagues prior to deployment, the greater the likelihood that they
will form a united, cohesive team when serving together in an operation.
Recommendation 23 p.
258
The committee recommends that exchange
programs and joint exercises with personnel from countries relevant to peacekeeping
operations in the region continue as a high priority. It also suggests that
such activities form part of a broader coherent whole-of-government strategy to
build a greater peacekeeping capacity in the region.
Women in peacekeeping
In October 2000, the UN Security Council passed Resolution 1325
which recognised that peacekeeping operations should promote avenues for women
to have a greater role in peacekeeping. The Australian Government was, and
remains, a strong supporter of this resolution but needs to ensure that its
agencies are active in implementing the resolution.
Recommendation 24 p.
262
The committee recommends that greater impetus
be given to the implementation of UN Resolution 1325. It recommends that the
Peace Operations Working Group be the driving force behind ensuring that all
agencies are taking concrete actions to encourage greater involvement of women
in peacekeeping operations. The committee recommends further that
DFAT provide in its annual report an account of the whole-of-government performance
in implementing this resolution. The report should go beyond merely listing
activities to provide indicators of the effectiveness of Australia's efforts to
implement Resolution 1325.
International coordination
United Nations
The committee believes that there are advantages to be gained
by seconding Commonwealth officers to the UN and encourages departments to be
more active in seeking out these opportunities. The committee considers that
this would be of particular value for senior government officers; however, it
sees little value in secondments being used as 'terminal postings'. The committee
strongly believes that the knowledge of returning personnel should be harnessed
by the home agency to improve the agency's understanding of UN processes and
facilitate Australia's UN engagement.
Recommendation 25 p.
270
The committee recommends that Australian
government agencies actively pursue opportunities to second senior officers to
the United Nations. Furthermore, that such secondments form part of a broader departmental
and whole-of-government strategy designed to make better use of the knowledge
and experience gained by seconded officers. In other words, appointments should
not be terminal postings and should be perceived as important and valuable
career opportunities.
Safety and welfare
There is no doubt that the mental health of Australian
peacekeepers remains an area that needs close attention. Australia is not the
only country grappling with how to prevent and manage the problem. A clear and
precise understanding of the extent and nature of mental health concerns among
returning peacekeepers is required to both design an effective pre-deployment education
program and to make available the most appropriate services for those who need
care. The data available on the incidence of Post Traumatic Stress Disorder in
Australian peacekeepers, however, does not present a clear picture. Indeed, the
statistics available on the health concerns of ADF peacekeepers in general
appeared inadequate.
Recommendation 26 p.
309
The committee recommends that the ADF develop a
comprehensive and reliable database on Australian peacekeepers that would provide
accurate statistics on where and when ADF members were deployed. The database
would also enable correlations to be made between particular deployments and associated
health problems.
The committee notes the importance of ensuring that all ADF
peacekeepers receive appropriate mental health screening and appropriate care
when needed. It is firmly of the view, however, that compensation in the form
of payment for treatment does not fully address the problem. The committee
believes that the ADF has a duty of care to ensure that mental illness is
managed properly. In this regard, it notes a witness's observation that 'all
the ADF seem to be doing...is wanting to get rid of you'.[4]
The committee would like to see indications that the ADF is committed to the
long-term care and rehabilitation of members even where, because of their
health, they are no longer serving members.
Recommendation 27 p.
309
The committee recommends that the ADF broaden the scope of
the research and studies being done on veterans' mental health by the
Australian Centre for Posttraumatic Mental Health and the Centre for Military
and Veterans' Health to include the rehabilitation of veterans with mental
health problems; the retraining opportunities or career transition services
provided to them; the quality of, and access to, appropriate and continuing
care; and the stigma attached to mental health problems in the ADF.
Rehabilitation and compensation
scheme for the AFP
The committee recognises the importance of having specific
legislation that would establish a rehabilitation and compensation scheme for AFP
who serve in overseas deployments.
Recommendation 28 p.
314
The committee recommends that the Australian Government
release a policy paper outlining the options and its views on a rehabilitation
and compensation scheme for the AFP, invite public comment and thereafter
release a draft bill for inquiry and report by a parliamentary committee.
The committee believes that agencies involved in peacekeeping
operations must develop better procedures for the management of health records.
It also believes that the evidence presented by the various veterans'
associations about incomplete medical records of ADF personnel serving in
peacekeeping missions requires further investigation by both Defence and DVA.
Recommendation 29 p.
319
The committee recommends that the ADF commission
an independent audit of its medical records to determine the accuracy and
completeness of the records, and to identify any deficiencies with a view to
implementing changes to ensure that all medical records are up-to-date and
complete. The audit report should be provided, through the Minister for Defence,
to the committee.
Recommendation 30 p.
319
The committee recommends that the Australian Government
requests ANAO to audit the hardware and software used by the ADF and DVA in
their health records management system to identify measures needed to ensure that
into the future the system is able to provide the type of detailed information
of the like required by the committee but apparently not accessible.
Recommendation 31 p.
319
The committee also recommends that Defence commission the
Centre for Military and Veterans' Health to assess the hardware and software
used by Defence and DVA for managing the health records of ADF personnel and,
in light of the committee's concerns, make recommendations on how the system
could be improved.
Recognition
Recognition is important to peacekeepers and takes many forms.
Recommendation 32 p.
327
The committee recommends that the Australian Government consider
additional funding for the proposed Peacekeeping Memorial.
Recommendation 33 p.
329
The committee recommends that the Australian Government
include Australia's involvement in peacekeeping operations in East Timor in the
terms of reference for the Official History of Australian Peacekeeping,
Humanitarian and Post-Cold War Operations.
Evaluation and accountability
The committee notes that individual agencies have a
responsibility for evaluating their performance in a peacekeeping operation. It
is concerned, however, about the adequacy of current performance indicators to
measure performance effectively.
Request to Auditor-General p.
339
The committee requests that the Auditor-General
consider conducting a performance audit on the mechanisms that the ADF has in
place for capturing lessons from current and recent peacekeeping operations
including:
- the adequacy of its performance indicators;
- whether lessons to be learnt from its evaluation processes are
documented and inform the development or refinement of ADF's doctrine and
practices; and
- how these lessons are shared with other relevant agencies
engaged in peacekeeping operations and incorporated into the whole-of-government
decision-making process.
The committee has confined this request to the ADF because it
notes that the AFP has commissioned the University of Queensland to develop
performance indicators.
Recommendation 34 p.
340
The committee recommends that
the relevant government agencies jointly develop standard measurable
performance indicators that, where applicable, would be used across all
agencies when evaluating the effectiveness of their peacekeeping activities
(also see Recommendation 36).
Reporting
The Australian Government's contribution to peacekeeping
operations now extends well beyond the military. It is important that this
whole-of-government contribution is accompanied by whole-of-government
reporting, so that the Parliament and the Australian public have access to
information on the size and nature of the resources allocated by government to
peacekeeping operations.
Recommendation 35 p.
343
The committee recommends that the Australian Government
designate an appropriate agency to take responsibility for the
whole-of-government reporting on Australia's contribution to peacekeeping. This
means that the agency's annual report would include a description of all
peacekeeping operations, a list of the contributing government agencies, and,
for each relevant agency:
- a description of its role in the operation;
- the agency's financial contribution to the operation during that
reporting year;
- the peak number of personnel deployed by the agency during the
reporting year and the date at which the peak occurred; and
- the number of personnel deployed as at the end of the reporting
year.
This recommendation complements and does not replace the
obligation on individual agencies to report on their peacekeeping activities in
their respective annual reports.
Recommendation 36 p.
343
In light of the committee's discussion on the adequacy of
performance indicators, the committee also recommends that the agencies
reporting on peacekeeping activities provide in their annual reports measurable
performance indicators on the effectiveness of these activities.
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