As of June  2007, 15 UN peacekeeping operations were ongoing in Africa, Europe, the  Middle East, Asia, and the Americas. Estimated Costs for a U.S. Operation Are at Least Twice the Cost of a Similar UN Mission

We estimate that it would cost the United States about twice as much as it  would the UN to conduct an operation similar to the UN mission in Haiti. Virtually the entire difference is attributable to the higher cost of civilian  police, military pay and support, and facilities. Using the same basic parameters of troop and staff deployment in Haiti for  14 months, we estimate that a comparable U.S. operation would cost about  $876 million, slightly more than twice as much as the UN. Civilian police. U.S.  costs, however, include salaries, special pay, benefits, equipment, and  special training. Military pay and support. The UN budgeted $131 million for pay and  support of military troops, while we estimate it would cost the United  States $260 million for the same number of soldiers. The UN budgeted $100 million for facilities-related costs, while  we estimate that the cost to the United States would be $208 million. Based on  consultations with the joint staff officials and other experts, we analyzed  how the cost of a U.S. operation would vary if we (1) changed the mix of  active duty to reserve soldiers from 85 percent active to an entirely reserve  force, (2) assumed U.S. forces would fully deploy within 60 rather than 180  days, and (3) increased the intensity of the operation. U.S. and UN-Led Operations Each Have Strengths and Limitations

Cost is not the only factor in deciding whether the United States or the UN  should lead a peace operation. U.S. Military Has Elements Critical for Peacekeeping, but Faces Shortages of Personnel and Equipment

Traditionally, U.S. operations have benefited from the advantages of a  strong and well-established military that has provided quick deployment, a  unified command and control structure, and direct access to well-trained  military personnel and equipment. This has helped the United States rapidly deploy in past  operations. However, ongoing operations in Iraq have challenged U.S. capabilities in  key areas. Our work has shown  that ongoing operations in Iraq and Afghanistan have challenged DOD’s  capabilities and created a continuing high demand for certain combat  specialties, including military police, engineers, and civil affairs experts. Thus, the  UN operation was considered the most politically feasible option and the  UN Security Council, with U.S. support, expanded the UN peacekeeping  force in Lebanon. The UN has developed a cadre of  senior officials who have gained experience with peacekeeping and  nation-building activities over many missions. The UN has fostered  a network of humanitarian agencies and development banks that UN  peacekeeping missions can draw on to coordinate the extensive  humanitarian and developmental activities related to operations with  broad, integrated mandates that include nation building. Conclusion

The costs, strengths, and limitations of the United States and the UN are  important factors in considering who should lead a peacekeeping  operation. The UN  has certain strengths in leading a peacekeeping operation, including  multinational participation and international legitimacy, access to  international civil servants needed for peacebuilding activities, and a  structure for coordinating international assistance. However, the UN has  traditionally had difficulties in rapidly deploying its forces and ensuring  unified command and control over its peacekeeping forces.
Why GAO Did This Study

As of June 2007, more than 100,000 military and civilian personnel are engaged in United Nations (UN) peacekeeping operations in 15 locations in Africa, Europe, Asia, the Americas, and the Middle East. In 2006, the United States provided the UN with about $1 billion to support peacekeeping operations. Given that thousands of U.S. troops are intensively deployed in combat operations in Iraq and Afghanistan, UN peacekeeping operations are an important element in maintaining a secure international environment. As requested, this testimony discusses (1) the costs of the current UN mission in Haiti compared with the estimated cost of a hypothetical U.S. operation and (2) the strengths and limitations of the United States and the UN in leading peace operations. This testimony is based on our prior report and information we updated for this hearing. To estimate U.S. costs, we developed parameters for a U.S. mission similar to the UN mission in Haiti, which the Joint Staff validated as reasonable. We then applied DOD's official cost estimating model. However, it is uncertain whether the United States would implement an operation in Haiti in the same way as the UN.

What GAO Found

We estimate that it would cost the United States about twice as much as it would the UN to conduct a peacekeeping operation similar to the UN mission in Haiti. The UN budgeted $428 million for the first 14 months of the mission. A similar U.S. operation would have cost an estimated $876 million. Virtually the entire cost difference can be attributed to cost of civilian police, military pay and support, and facilities. First, civilian police costs are less in a UN operation because the UN pays police a standard daily allowance, while U.S. police are given salaries, special pay, and training. Second, U.S. military pay and support reflect higher salaries and higher standards for equipment, ammunition, and rations. Third, U.S. facilities-related costs would be twice those of the UN and reflect the cost of posting U.S. civilian personnel in a secure embassy compound. When we varied specific factors, such as increasing the number of reserve troops deployed, the estimated cost for a U.S. operation increased. Cost is not the sole factor in determining whether the United States or the UN should lead a peacekeeping operation. Each offers strengths and limitations. Traditionally, the United States' strengths have included rapid deployment, strong command and control, and well-trained and equipped personnel. However, ongoing operations in Iraq and Afghanistan have reduced personnel and equipment readiness levels and resulted in shortfalls for military police, engineers, and civil affairs experts. The UN provides broad multinational support for its missions, with a UN Security Council mandate and direction for its operations. The UN also has access to international civil servants, police, and senior officials who have nation-building experience and diverse language skills. Finally, the UN has fostered a network of agencies and development banks to coordinate international assistance with peacekeeping missions. However, the UN has traditionally had difficulties in rapidly deploying its forces and ensuring unified command and control over its peacekeeping forces.