反思联合国维和行动中的安全风险及应对
|
摘要
联合国现有的内部安全管理系统对维和行动中安全风险的理解存在误区,局限于各种敌意的暴力行为,主张通过提升行动和技术能力予以应对,包括对各种暴力威胁进行主动出击和预防式打击。然而,在现实的维和环境中,威胁维和人员生命和健康的风险还包括各种事故、疾病和心理压力。需要全面考虑各种安全风险,进而有针对性地采取应对措施。此外,还需要超越技术层面认识维和行动中的暴力风险。近些年维和人员因暴力行为伤亡的人数显著增加,主要是因为联合国在一些没有和平可以维持的地方建立了强势维和行动。维和行动的根本属性是政治行动而非军事行动,无论是在政治意愿还是行动能力上都不具备开展军事行动的能力。应该将强势的建立和平从维和任务中剥离出来,必要时经安理会授权交给有能力的区域、次区域组织或者多国部队去完成,让维和行动回归和平的本质。应该改进对牺牲、伤残和重病维和人员的抚恤工作,包括引入商业保险。
The existing United Nations(UN) safety and security management system shows inadequate understanding about the safety and security risks in peacekeeping operations. It focuses on acts of violence against the UN and peacekeepers and insists on using overwhelming force and taking proactive and robust approach against the threats of violence. However,a comprehensive approach should be adopted to manage safety and security in peacekeeping operations because peacekeepers are also faced with various other risks and threats including accidents,illness and stress. Moreover,the safety and security management should go beyond technical and operational level because it is also affected by strategic and political factors. The significant increase of fatalities of peacekeepers in recent years is mainly due to the fact that the UN has established robust peacekeeping operations in places where there is no peace to keep. Peacekeeping is first and foremost a political operation rather than a military one. The UN lacks both political will and operational capabilities to fulfill the military tasks mandated to the ongoing robust peacekeeping operations. Robust peacemaking with heavy military tasks should be authorized by the UN Security Council to relevant regional and sub-regional organizations and multinational forces. The peacekeeper pension system should be reformed to allow all those that have sacrificed their lives or health for peace to receive more respect and care, including the introduction of safety and security insurance.
The existing United Nations(UN) safety and security management system shows inadequate understanding about the safety and security risks in peacekeeping operations. It focuses on acts of violence against the UN and peacekeepers and insists on using overwhelming force and taking proactive and robust approach against the threats of violence. However,a comprehensive approach should be adopted to manage safety and security in peacekeeping operations because peacekeepers are also faced with various other risks and threats including accidents,illness and stress. Moreover,the safety and security management should go beyond technical and operational level because it is also affected by strategic and political factors. The significant increase of fatalities of peacekeepers in recent years is mainly due to the fact that the UN has established robust peacekeeping operations in places where there is no peace to keep. Peacekeeping is first and foremost a political operation rather than a military one. The UN lacks both political will and operational capabilities to fulfill the military tasks mandated to the ongoing robust peacekeeping operations. Robust peacemaking with heavy military tasks should be authorized by the UN Security Council to relevant regional and sub-regional organizations and multinational forces. The peacekeeper pension system should be reformed to allow all those that have sacrificed their lives or health for peace to receive more respect and care, including the introduction of safety and security insurance.
引文
(1)《联合国宪章》,http://www.un.org/zh/sections/un-charter/chapter-i/index.html,访问时间:2018年3月28日。
(2)本文所涉及的“维和人员”,仅指在联合国维和任务区工作的维和军人和警察。
(3)盛红生:《谁来保护和平“保护者”的安全》,http://www.cssn.cn/gj/gj_hqxx/201712/t20171212_3778234_3.shtml,访问时间:2017年12月12日。
(4)United Nations,“History of Department of Safety and Security,”https://www.un.org/undss/content/ourhistory,访问时间:2018年3月28日。
(1)Carl Bild,t“Dag Hammarskjold and United Nations Peacekeeping,”http://www.un.org/en/peacekeeping/documents/un_chronicle_carl_bildt_article.pdf,访问时间:2018年2月28日。
(2)United Nations,“History of Department Safety and Security,”https://www.un.org/undss/content/our-history,访问时间:2018年3月28日;Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”p.4,https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年2月28日。
(3)《联合国人员和有关人员安全公约》,http://www.npc.gov.cn/wxzl/gongbao/2004-10/21/content_5334566.htm,访问时间:2018年3月10日。
(1)United Nations,“Report of the Independent Panel on the Safety and Security of United Nations Personnel in Iraq,”http://www.un.org/News/dh/iraq/safety-security-un-personnel-iraq.pdf,访问时间:2018年2月28日。
(2)United Nations,“Towards a Culture of Security and Accountability:Report of the Independent Panel on Safety and Security of United Nations Personnel and Premises Worldwide,”http://www.un.org/News/dh/infocus/terrorism/PanelO n SafetyR eport.pdf,访问时间:2018年1月10日。
(1)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年1月15日。
(2)United Nations,“Improving Security of Peacekeeping:Action Plan for Implementation of Fatalities Report,”https://peacekeeping.un.org/sites/default/files/180406_action_plan_revised.pdf,访问时间:2018年3月10日。
(1)United Nations,“Fatalities by Year and Incident Type,”https://peacekeeping.un.org/sites/default/files/statsbyyearincidenttype_5_1.pdf,访问时间:2018年2月1日。
(2)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年1月15日。
(1)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”pp.18-33,https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年3月8日。
(2)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”p.4,https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年3月28日。
(1)United Nations,“Principles of Peacekeeping,”https://peacekeeping.un.org/en/principles-of-peacekeeping,访问时间:2018年1月28日。
(2)The White House,“Presidential Decision Directive/NSC-25,”https://fas.org/irp/offdocs/pdd/pdd-25.pdf,访问时间:2017年11月28日。
(1)黎云、秦伟:《联合国维和人员面临五大风险》,载《中国青年报》,2012年9月7日。
(1)关于2010年海地地震的伤亡数据,国际上存在争议。根据联合国人道主义事务协调办公室(United Nations Office for Coordination of Humanitarian Affairs,OCHA)提供的数据,地震造成大约22万人死亡,30万人受伤。美国中央情报局估计死亡人数为30万。加拿大学者贾斯汀·珀杜尔认为死亡人数大约25万。本文择从联合国方面的数据。
(2)United Nations,“In Memoriam:In Remembrance of Those Members of the United Nations Family Who Lost Their Lives in the Earthquake in Haiti,January 12,2010,”http://www.un.org/en/memorial/haiti/,访问时间:2018年1月8日。
(3)“Kosovo Troops Tested for Cancer from Uranium,”https://www.theguardian.com/world/2001/jan/01/balkans,访问时间:2017年12月28日。
(1)不包括联合国埃塞俄比亚和厄立特里亚特派团、联合国中非和乍得特派团以及联合国阿卜耶伊临时安全部队。
(1)李保军、戴欣:《解放军第302医院紧急收治中国赴南苏丹维和部队某分队长》,http://www.chinanews.com/m/sh/2018/02-23/8453135.shtml?f=qbapp,访问时间:2018年2月25日。
(2)张逸龙、潘卫庆:《恶性疟原虫对青蒿素产生抗性的研究进展》,载《中国寄生虫学与寄生虫病研究杂志》,2015年第6期,第418-424页。
(3)United Nations,Stress Management Booklet,Turin:The International Training Center of the ILO,1995.
(1)Roméo Dallaire,Shaking Hands with Devils:The Failure of Humanity in Rwanda,Toronto:Random House of Canada,2004;Roméo Dallaire,Waiting for First Light:My Ongoing Battle with PTSD,Toronto:Random House of Canada,2016.
(2)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”Executive Summary,https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年3月28日。
(1)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”pp.9-17,https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年3月2日。
(2)United Nations,Security Council Resolutions 161(1961)and 169(1992).
(1)United Nations,Security Council Resolutions 749(1992)and 762(1992).
(2)United Nations,“United Nations Protection Force:Background,”September 1996,https://peacekeeping.un.org/sites/default/files/past/unprof_b.htm,访问时间:2018年3月28日;对联合国保护部队授权的相关决议参见United Nations,Security Council Resolutions 757(1992),761(1992),770(1992),779(1992),781(1992),786(1992)。
(3)United Nations,“Somalia-UNOSOM I:Mandate,”https://peacekeeping.un.org/sites/default/files/past/unosom1mandate.html,访问时间:2018年1月28日;第一期索马里行动的相关决议参见United Nations Security Council Resolution 751(1992),775(1992)and 794(1992)。
(4)United Nations,“Somalia-UNOSOM I:Mandate,”https://peacekeeping.un.org/sites/default/files/past/unosom2mandate.html,访问时间:2018年2月23日;第二期索马里行动的相关决议参见United Nations Security Council Resolution 814(1993)and 837(1993)。
(5)United Nations,“Principles of Peacekeeping,”https://peacekeeping.un.org/en/principles-of-peacekeeping,访问时间:2018年3月9日。
(1)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”p.1,https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年1月28日。
(2)何银:《100余名联合国人员各种原因死亡,这个国家怎么了?》,http://wap.huanqiu.com/r/MV8w Xzkw MDg5MTFfM jV fM TQ2NTAw MTM0MA==,访问时间:2018年1月28日。
(3)United Nations,Security Council Resolution 1925(2010).
(4)United Nations,“Summary of Contribution to Peacekeeping by Mission,Country and Post,”https://peacekeeping.un.org/sites/default/files/5_mission_and_country_0.pdf,访问时间:2018年2月21日。
(1)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations peacekeepers:We Need to Change the Way We Rre Doing Business,”pp.18-31,https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年3月28日。
(2)Scott Sheeran and Stephanie Case,“The Intervention Brigade:Legal Issues for the UN in the Democratic Republic of the Congo,”New York:International Peace Institute,November 2014.
(1)United Nations,Stress Management Booklet,Turin:The International Training Center of the ILO,1995;Peace Operations Training Institute,Core Pre-Deployment Training Materials,Jamestown:Peace Operations Training Institute,2014.
(1)《中国人寿安徽省分公司向中国维和警队捐赠3800万保额保险》,http://www.ahcaijing.com/html/2018/bank_0309/80493.html,访问时间:2018年3月21日。
(1)2018年4月14日,联合国秘书长办公室一名官员在纽约参加“中国-瑞典冲突预防问题研究对话”第二次会议时如是说。笔者参加了此次会议。
(2)本文所涉及的“维和人员”,仅指在联合国维和任务区工作的维和军人和警察。
(3)盛红生:《谁来保护和平“保护者”的安全》,http://www.cssn.cn/gj/gj_hqxx/201712/t20171212_3778234_3.shtml,访问时间:2017年12月12日。
(4)United Nations,“History of Department of Safety and Security,”https://www.un.org/undss/content/ourhistory,访问时间:2018年3月28日。
(1)Carl Bild,t“Dag Hammarskjold and United Nations Peacekeeping,”http://www.un.org/en/peacekeeping/documents/un_chronicle_carl_bildt_article.pdf,访问时间:2018年2月28日。
(2)United Nations,“History of Department Safety and Security,”https://www.un.org/undss/content/our-history,访问时间:2018年3月28日;Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”p.4,https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年2月28日。
(3)《联合国人员和有关人员安全公约》,http://www.npc.gov.cn/wxzl/gongbao/2004-10/21/content_5334566.htm,访问时间:2018年3月10日。
(1)United Nations,“Report of the Independent Panel on the Safety and Security of United Nations Personnel in Iraq,”http://www.un.org/News/dh/iraq/safety-security-un-personnel-iraq.pdf,访问时间:2018年2月28日。
(2)United Nations,“Towards a Culture of Security and Accountability:Report of the Independent Panel on Safety and Security of United Nations Personnel and Premises Worldwide,”http://www.un.org/News/dh/infocus/terrorism/PanelO n SafetyR eport.pdf,访问时间:2018年1月10日。
(1)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年1月15日。
(2)United Nations,“Improving Security of Peacekeeping:Action Plan for Implementation of Fatalities Report,”https://peacekeeping.un.org/sites/default/files/180406_action_plan_revised.pdf,访问时间:2018年3月10日。
(1)United Nations,“Fatalities by Year and Incident Type,”https://peacekeeping.un.org/sites/default/files/statsbyyearincidenttype_5_1.pdf,访问时间:2018年2月1日。
(2)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年1月15日。
(1)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”pp.18-33,https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年3月8日。
(2)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”p.4,https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年3月28日。
(1)United Nations,“Principles of Peacekeeping,”https://peacekeeping.un.org/en/principles-of-peacekeeping,访问时间:2018年1月28日。
(2)The White House,“Presidential Decision Directive/NSC-25,”https://fas.org/irp/offdocs/pdd/pdd-25.pdf,访问时间:2017年11月28日。
(1)黎云、秦伟:《联合国维和人员面临五大风险》,载《中国青年报》,2012年9月7日。
(1)关于2010年海地地震的伤亡数据,国际上存在争议。根据联合国人道主义事务协调办公室(United Nations Office for Coordination of Humanitarian Affairs,OCHA)提供的数据,地震造成大约22万人死亡,30万人受伤。美国中央情报局估计死亡人数为30万。加拿大学者贾斯汀·珀杜尔认为死亡人数大约25万。本文择从联合国方面的数据。
(2)United Nations,“In Memoriam:In Remembrance of Those Members of the United Nations Family Who Lost Their Lives in the Earthquake in Haiti,January 12,2010,”http://www.un.org/en/memorial/haiti/,访问时间:2018年1月8日。
(3)“Kosovo Troops Tested for Cancer from Uranium,”https://www.theguardian.com/world/2001/jan/01/balkans,访问时间:2017年12月28日。
(1)不包括联合国埃塞俄比亚和厄立特里亚特派团、联合国中非和乍得特派团以及联合国阿卜耶伊临时安全部队。
(1)李保军、戴欣:《解放军第302医院紧急收治中国赴南苏丹维和部队某分队长》,http://www.chinanews.com/m/sh/2018/02-23/8453135.shtml?f=qbapp,访问时间:2018年2月25日。
(2)张逸龙、潘卫庆:《恶性疟原虫对青蒿素产生抗性的研究进展》,载《中国寄生虫学与寄生虫病研究杂志》,2015年第6期,第418-424页。
(3)United Nations,Stress Management Booklet,Turin:The International Training Center of the ILO,1995.
(1)Roméo Dallaire,Shaking Hands with Devils:The Failure of Humanity in Rwanda,Toronto:Random House of Canada,2004;Roméo Dallaire,Waiting for First Light:My Ongoing Battle with PTSD,Toronto:Random House of Canada,2016.
(2)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”Executive Summary,https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年3月28日。
(1)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”pp.9-17,https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年3月2日。
(2)United Nations,Security Council Resolutions 161(1961)and 169(1992).
(1)United Nations,Security Council Resolutions 749(1992)and 762(1992).
(2)United Nations,“United Nations Protection Force:Background,”September 1996,https://peacekeeping.un.org/sites/default/files/past/unprof_b.htm,访问时间:2018年3月28日;对联合国保护部队授权的相关决议参见United Nations,Security Council Resolutions 757(1992),761(1992),770(1992),779(1992),781(1992),786(1992)。
(3)United Nations,“Somalia-UNOSOM I:Mandate,”https://peacekeeping.un.org/sites/default/files/past/unosom1mandate.html,访问时间:2018年1月28日;第一期索马里行动的相关决议参见United Nations Security Council Resolution 751(1992),775(1992)and 794(1992)。
(4)United Nations,“Somalia-UNOSOM I:Mandate,”https://peacekeeping.un.org/sites/default/files/past/unosom2mandate.html,访问时间:2018年2月23日;第二期索马里行动的相关决议参见United Nations Security Council Resolution 814(1993)and 837(1993)。
(5)United Nations,“Principles of Peacekeeping,”https://peacekeeping.un.org/en/principles-of-peacekeeping,访问时间:2018年3月9日。
(1)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations Peacekeepers:We Need to Change the Way We Are Doing Business,”p.1,https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年1月28日。
(2)何银:《100余名联合国人员各种原因死亡,这个国家怎么了?》,http://wap.huanqiu.com/r/MV8w Xzkw MDg5MTFfM jV fM TQ2NTAw MTM0MA==,访问时间:2018年1月28日。
(3)United Nations,Security Council Resolution 1925(2010).
(4)United Nations,“Summary of Contribution to Peacekeeping by Mission,Country and Post,”https://peacekeeping.un.org/sites/default/files/5_mission_and_country_0.pdf,访问时间:2018年2月21日。
(1)Carlos Alberto dos Santos Cruz,William R.Phillips and Salvator Cusimano,“Improving Security of United Nations peacekeepers:We Need to Change the Way We Rre Doing Business,”pp.18-31,https://peacekeeping.un.org/sites/default/files/improving_security_of_united_nations_peacekeepers_report.pdf,访问时间:2018年3月28日。
(2)Scott Sheeran and Stephanie Case,“The Intervention Brigade:Legal Issues for the UN in the Democratic Republic of the Congo,”New York:International Peace Institute,November 2014.
(1)United Nations,Stress Management Booklet,Turin:The International Training Center of the ILO,1995;Peace Operations Training Institute,Core Pre-Deployment Training Materials,Jamestown:Peace Operations Training Institute,2014.
(1)《中国人寿安徽省分公司向中国维和警队捐赠3800万保额保险》,http://www.ahcaijing.com/html/2018/bank_0309/80493.html,访问时间:2018年3月21日。
(1)2018年4月14日,联合国秘书长办公室一名官员在纽约参加“中国-瑞典冲突预防问题研究对话”第二次会议时如是说。笔者参加了此次会议。