U.N. Peacekeeping: Observations on the U.S. Process for Approving
Operations (Testimony, 10/04/2000, GAO/GAO-01-100T).

This testimony discusses the decisions by the United States to support
new or expanded United Nations (U.N.) operations in the following four
locations: Kosovo, East Timor, Sierra Leone, and the Democratic Republic
of the Congo. These decisions were made between January 1999 and June
2000. This testimony focuses on: (1) whether GAO had sufficient access
to agency records to conduct the study requested by Congress, (2) how
Presidential Decision Directive 25 was used in deciding to support new
or expanded U.N. operations, and (3) how the executive branch consulted
with Congress during the Directive 25 decision process. GAO found that
it lacked the full and independent access to agency records needed to
complete its work. The intent of Directive 25 is to ensure selective and
effective use of peacekeeping as a tool for advancing U.S. interests and
to also establish factors to help assess whether U.S. support for an
operation is appropriate. GAO found that Directive 25 factors were
considered in the initial operation in East Timor, but GAO could not
determine whether those factors were considered in other operations.
Communications between Congress and the executive branch consisted of
briefings, letters, and testimonies. However, communications provided
little information about: (1) the risks and weaknesses of operations
identified by Directive 25 analyses, and (2) plans addressing these
risks and weaknesses.

--------------------------- Indexing Terms -----------------------------

 REPORTNUM:  GAO-01-100T
     TITLE:  U.N. Peacekeeping: Observations on the U.S. Process for
	     Approving Operations
      DATE:  10/04/2000
   SUBJECT:  Armed forces abroad
	     Military intervention
	     Decision making
	     International relations
	     Congressional/executive relations
IDENTIFIER:  Kosovo
	     Sierra Leone
	     East Timor
	     Democratic Republic of the Congo
	     Bosnia

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GAO-01-100T

Preliminary Observations about the US Process for Deciding to Support UN
Peace Operations

Briefing for Committee on International Relations US House of
Representatives

October 4, 2000

UN troops in Cambodia

UN patrol in Bosnia

GAO-0 1 -1 0 0 T

U. N. Peacekeeping Operations 15 active worldwide as of October 2000

Source: United Nations Department of Public Information, Cartographic
Section and GAO.

US has supported a dramatic increase in the size and scope of UN
peacekeeping since June 1999

Authorized number of troops and police increased from 15,000 to 48,000.

UN operations undertook complex, new tasks in Kosovo and East Timor.

Annual UN peacekeeping costs increased from about $800 million to estimated
$2.7 billion for 2001.

GAO- 01- 100T

Introduction

Concerned about these developments, the Chairman asked GAO to examine how
Presidential Decision Directive 25 was applied in deciding to support new or
expanded UN operations.

Our study is focused on US decisions to support new or expanded UN
operations in four locations.

Kosovo, East Timor, Sierra Leone, and the Democratic Republic of the Congo.

Decisions made between January 1999 and June 2000.

GAO- 01- 100T

Questions You Asked Us to Discuss at this Briefing

Does GAO have sufficient access to agency records to conduct the study
requested by the Chairman?

How was Presidential Decision Directive 25 used when deciding to support new
or expanded UN operations?

How did the executive branch consult with Congress during the Directive 25
decision process?

GAO- 01- 100T

Does GAO have sufficient access to agency records to conduct the study
requested by the Chairman?

GAO lacks full and independent access to agency records needed to complete
its work.

No access to key records that would show whether Directive 25 factors were
considered when deciding to support some operations.

No independent access to records. Compromises the integrity and reliability
of GAO's work.

GAO- 01- 100T

Status of GAO's Access to Agency Records

Documents agency officials identified as relevant to study Current

access Date of access Access

needed

Congressional notification letters All identified June 1 None Congressional
contact logs Substantial Jul 29 DOD Decision memorandum Substantial Aug 3
DOD Directive 25 analyses All identified Sep 8 None Political- military
plans Substantial Sep 18 State Summaries of conclusions Partial Aug. 17 NSC
Discussion/ options papers None None NSC

GAO- 01- 100T

How was Presidential Decision Directive 25 used when deciding to support new
or expanded UN operations?

Intent Ensure selective and effective use of peacekeeping as a tool for
advancing US interests.

Help ensure coherent and disciplined choices made about which operations to
support

Process Establish factors to help assess whether US support for an operation
is appropriate:

operations are finite and advance U. S. interests;

have clear objectives and realistic endpoints;

have the means necessary for success, including appropriate forces,
financing, and mandate.

GAO- 01- 100T

Preliminary Observations About the Use of Directive 25 in Deciding to
Support Operations

Directive 25 factors considered in deciding to support initial operation in
East Timor.

Cannot determine whether factors were considered in deciding to support two
subsequent operations.

US supported operations in East Timor, Sierra Leone, and the Congo despite
lack of some factors.

Factors used to highlight shortcomings and develop plans to address these
risks.

GAO- 01- 100T

How did the executive branch consult with Congress during the Directive 25
decision process?

Briefings, notification letters, testimonies, and other communications
provided extensive information about

situation “on the ground”

proposed operations' cost, size, mandate, and relationship to US interests

However, communications provided little information about (1) the risks and
weaknesses of operations identified by Directive 25 analyses and (2) plans
for addressing these risks and weaknesses.

GAO- 01- 100T

Remaining Work to Complete Study for Committee

Obtain full and independent access to records .

Complete review of decision process.

Analyze documents; align with decisions

Interview decision makers about process

Complete work on consultation process.

Analyze executive branch consultation with Congress

Interview Congress and executive branch officials about consultation
requirements and concerns

GAO-0 1 -1 0 0 T (7 1 1 5 6 8 )
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