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1. The End of A Peacekeeping Era

Author:
Richard Gowan
Publication Date:
04-2018
Content Type:
Working Paper
Institution:
Global Peace Operations Review
Abstract:
An era of UN peacekeeping ended on Good Friday, as the organization’s fifteen-year old mission in Liberia (UNMIL) closed shop. This follows the termination of the UN missions in Côte d’Ivoire (UNOCI) last summer and that in Haiti (MINUSTAH) in October. All dating back to 2003 or 2004, these were the final examples of a relatively successful series of peace operations launched by the Security Council between 1999 and 2005 that were characterized by (i) fairly large military and police components relative to the territories and populations they served; and (ii) a long-term commitment to enabling peaceful politics in post-war states, including facilitating multiple elections.
Topic:
United Nations, Military Strategy, Peacekeeping, and Elections
Political Geography:
Africa, Caribbean, Haiti, Liberia, North America, and Côte d'Ivoire

2. Two Years After The Juba Clashes: Has Unmiss's Protection of Displaced people Improved?

Author:
Thijs Van Laer
Publication Date:
07-2018
Content Type:
Working Paper
Institution:
Global Peace Operations Review
Abstract:
In July 2016, serious fighting erupted in Juba, the capital of South Sudan, when a peace agreement signed less than a year before broke down. Many citizens were killed, often in deliberate, ethnically motivated attacks, while others sought safety in the vicinity of the premises of the UN Mission in South Sudan (UNMISS). Many more had already found relative safety there after earlier violence and atrocities in 2013. As of June 28, 2018, more than 210,000 internally displaced persons (IDPs) are living under UNMISS protection. Despite its responsibility to protect those IDPs, in July 2016 peacekeepers abandoned their positions at the IDP site, and more than 20 civilians were killed. In addition, two Chinese peacekeepers died after a grenade exploded near their armored personnel carrier. Despite repeated alerts, UNMISS did not intervene when government security forces forced their way into a nearby hotel and killed one and sexually abused other UN and humanitarian personnel residing there. Much has been written about the woefully inadequate response by the UN peace operation to these attacks, blamed by a UN inquiry on the lack of leadership, inadequate coordination, and poor troop performance. The mission’s military commander was sacked after the inquiry.
Topic:
United Nations, Peacekeeping, Displacement, and Civilians
Political Geography:
Africa and South Sudan

3. Sustaining Peace and peace Operations Mandates: The Liberia Transition

Author:
Gizem Sucuoglu
Publication Date:
02-2017
Content Type:
Working Paper
Institution:
Global Peace Operations Review
Abstract:
On 14 December 2016, NYU’s Center on International Cooperation (CIC), the Dag Hammarskjold Foundation (DHF) and the International Peace Institute (IPI) organized the first in a series of workshops in support of efforts to better understand and implement sustaining peace. At this first workshop, participants discussed practical ways to improve the peacebuilding implications of peace operation mandates, drawing on the upcoming Liberia transition as a prime case, under the Chatham House rule. Participants included member states active in the Security Council and/or the Peacebuilding Commission; experts from different parts of the UN system including the Peacebuilding Support Office; the Department of Peacekeeping Operations; the Department of Political Affairs; the UN Development Program; and representatives from CIC, IPI, DHF, the Institute for Security Studies, and the Carnegie Corporation of New York. The discussion took place against the backdrop of the transition from the UNMIL mandate, voted on 21 December 2016 at the Security Council.
Topic:
International Cooperation, United Nations, Peace, and Transition
Political Geography:
Africa and Liberia

4. Restructuring the UN Secretariat to Strengthen Preventative Diplomacy and Peace Operations

Author:
Sarah Cliffe and Alexandra Novosseloff
Publication Date:
02-2017
Content Type:
Working Paper
Institution:
Global Peace Operations Review
Abstract:
ince 1945, the United Nations has helped support many successful peace processes and protected millions of civilians around the world. Peace operations deliver results: research estimates suggest that the presence of a UN peace keeping mission can reduce the risk of relapse into conflict by 75 – 85 percent;1 and that larger deployments diminish the scale of violence and protect civilians in the midst of fighting.2 Peace operations can be highly cost effective, with one General Audit Office assessment finding the cost to be roughly half of what a bilateral stabilization operation would cost.3 Different types of peace operations - from mediation and special envoys through to multidimensional peace-keeping and specialized justice and emergency health missions - have helped end long running conflicts and prevented violence from escalating or recurring in situations as diverse as Burkina Faso, Cambodia, the Central African Republic, Gabon, Guatemala, Guinea, Kyrgyzstan, Lebanon, Liberia, Namibia, Sierra Leone and Timor-Leste. Yet in 2017 the UN’s peace and security pillar faces deep challenges. Three reviews in the past two years have highlighted serious inadequacies in UN peace and security responses at large. Many of the recent challenges are due to real world shifts in the nature of conflict and geopolitical dynamics – the tragedy of Syria, renewed fighting in Yemen and South Sudan, continued crisis in Libya, difficulties in preventing a political and humanitarian crisis in Burundi, longstanding missions that are struggling to deliver sustainable peace in DRC and Haiti, and newer missions in Mali and CAR where geography creates sustained cross-border security risks. These situations are also affected by divisions amongst Member States that have prevented agreement on action in some cases. Part of the weaknesses, however, are managerial and structural. The sense of urgency pervading Member States at the UN, together with a new Secretary-General who has signaled his determination to reform this area, provides the opportunity to take a more fundamental look at what would give the UN’s peace and security pillar the right form to deliver the functions that it is called to serve, now and in the future. The purpose of this report is to analyze options for organizational restructuring in the UN’s peace and security pillar. It focuses on headquarters structures since this has been identified as a primary source of overlap and competition: the purpose however is to deliver better results in the field, from prevention through crisis management to post-conflict recovery. It does not cover wider reforms across the UN’s three pillars, which are supported in other CIC work streams.4 Following an introductory section, Section II traces the history of UN peace and security structures since the UN’s founding (see Box). The UN has had no shortage of reform in the past, each designed to address specific weaknesses or new demands. Cumulatively, however, these changes have resulted in a structure that is no longer fit to fulfill the functions needed.
Topic:
Security, Diplomacy, United Nations, and Peace
Political Geography:
Africa, Middle East, Yemen, Haiti, Syria, North America, and South Sudan

5. Partnering for Sustainable Peace in Liberia

Author:
Amanda Lucey and Liezelle Kumalo
Publication Date:
02-2017
Content Type:
Working Paper
Institution:
Global Peace Operations Review
Abstract:
Liberia is at a pivotal point in its transition to a peaceful democracy. In October 2017 the country will have its first ‘open seat’ elections. The incumbent, President Ellen Johnson Sirleaf, will step down and hand over power to the leader of one of the 22 political parties that are currently participating in the election. Moreover, despite security fears for the elections, the United Nations Mission in Liberia (UNMIL) has downsized from over 15 000 military troops in 2007 to around 1 000 soldiers in 2016 (see Figure 1). It will continue to draw down in 2017 in recognition of Liberia’s growing ownership of its own transition. The country has made steady progress in transitioning from decades of civil conflict into a new democracy. It has instituted a number of legal reforms, national strategies and peacebuilding activities to address the root causes of violence. Liberia has been receiving support from the United Nations’ (UN) Peacebuilding Commission (PBC) since 2010, but its institutions still need to be supported to consolidate their democracy gains. The 2015 review of the UN’s peacebuilding architecture argued that, for the peacebuilding components of peace operation mandates to be more effective, there must be better coordination between the UN Security Council Summary Liberia is going through an important period in its transition, with elections in October 2017 and the final drawdown of the United Nations (UN) peacekeeping mission in March 2018. Despite having made significant strides towards sustainable peace, the country still has a number of urgent peacebuilding priorities that need to be addressed. This policy brief is based on field research carried out in November 2016. It makes targeted, practical recommendations to the UN Peacebuilding Commission on enhancing its support to Liberia, drawing on a wide range of partnerships with other internal and external peacebuilding actors. Partnering for sustainable peace in Liberia Amanda Lucey and Liezelle Kumalo 2 Partnering for sustainable peace in Liberia (UNSC), the PBC and UN Country Teams. It also stated that the PBC could play an enhanced role in advising the UNSC on the diverse range of views from the full spectrum of international peace, security and development tools and actors, and in developing practical and context-specific solutions. Finally, the PBC could be instrumental in bringing together various stakeholders, both from New York and from the field, to mobilise peacebuilding support to conflict-affected countries. What does this mean in the case of Liberia? Noting the numerous peacebuilding actors (including national, regional, subregional and international organisations) involved in Liberia’s efforts to sustain peace, this policy brief makes practical recommendations on how the PBC, particularly its Liberia Configuration, can enhance its role in the country. Liberia has instituted a number of legal reforms, national strategies and peacebuilding activities to address the root causes of violence Statement of Mutual Commitment on peacebuilding in Liberia is signed by the government of Liberia and the PBC This paper is part of a broader project called ‘Enhancing African responses to peacebuilding’, made up of a consortium of three partner organisations – the Institute for Security Studies (ISS), the Peace Research Institute Oslo (PRIO) and New York University’s Center on International Cooperation (CIC). It is one of a series of products derived from research carried out from 2–10 November 2016 in Monrovia with 36 stakeholders from 22 institutions. It takes its point of departure from the Statement of Mutual Commitment (SMC) on peacebuilding in Liberia, signed in April 2016 by the government of Liberia and the PBC. This statement is particularly important, as it is the most comprehensive document confirming the Liberian government’s peacebuilding priorities,3 namely security sector development, rule of law, national reconciliation and a peaceful and inclusive society.4 Cross-cutting issues such as decentralisation and empowering youth and women were also noted. This paper first looks at those of Liberia’s national frameworks relevant to peacebuilding. It then examines the engagements of multiple peacebuilding actors in Liberia, with a particular focus on the roles of African regional, subregional and bilateral organisations. It also unpacks principles as to why they may hold an advantage in certain peacebuilding activities. Finally, the paper explores how the PBC can develop context-specific solutions to Liberia’s peacebuilding priority areas, making use of partnerships.
Topic:
Security, International Cooperation, United Nations, Elections, and Peace
Political Geography:
Africa and Liberia

6. Can We Make UN Peacekeeping Great Again

Author:
Alexandra Novosseloff
Publication Date:
05-2017
Content Type:
Working Paper
Institution:
Global Peace Operations Review
Abstract:
If UN peacekeeping operations are “at a crossroads” as the Secretary-General told the Security Council on 6 April, then it is a policy and linguistic roundabout. This is the same phrase that a senior official used to describe the Brahimi report in 2000 and others used to characterize the work of the High-level Independent Panel on Peace Operations (HIPPO) in 2015. Does this mean that the policy debate that surrounds UN peacekeeping has just been going around in circles for the past twenty years? The recent declarations made by the US administration on possible cuts of its share of the peacekeeping budget and its push to cut individual missions at the time of mandate renewal (as observed in the case of MONUSCO already) has created uneasiness and has given new life to the old debate about the relevance of UN peacekeeping. But this in itself is not a new position. The HIPPO report has also argued for such a review of existing operations. Whether peacekeeping missions are “fit for purpose”, and what this actually means in practice, are questions numerous governments, delegations in New York, departments of the UN Secretariat, experts on the matter, non-governmental organizations and at times, international public opinion, have kept asking for years and even decades. The question was put on the table of the Security Council again by the new US administration during its presidency in April 2017. The goal, as outlined in its concept paper, was to review every single peacekeeping operation to “identify areas where mandates no longer match political realities.” The objective was to “propose alternatives or paths towards restructuring to bring missions more in line with achievable outcomes.”
Topic:
Diplomacy, International Cooperation, United Nations, and Peacekeeping
Political Geography:
North America, Global Focus, and United States of America

7. Diplomacy in Action: Expanding the UN Security Council's Role in Crisis and Conflict Prevention

Author:
Richard Gowan
Publication Date:
05-2017
Content Type:
Working Paper
Institution:
Global Peace Operations Review
Abstract:
The UN Security Council has the potential to play a greater direct role in crisis response and mediation not only in New York, but in the field. It has done so sporadically in the past. In its early years, the Council experimented with inter-governmental missions to investigate potential conflicts and undertake mediation in cases including the Balkans and Indonesia. In the post-Cold War period, Council missions engaged directly in crisis diplomacy in multiple conflicts, playing an important peacemaking role in East Timor in 1999. States outside the Council contributed to these efforts through Groups of Friends. Yet the Council has frequently handed off conflict prevention and resolution to the Secretary-General and other UN officials, or allowed other organizations or states to take the lead in responding to looming conflicts. Despite current political frictions, Council members would like to engage more directly in some situations on its agenda. 2016 saw Council missions to Burundi, South Sudan and the Democratic Republic of Congo. These have had limited impact due to strategy and procedural differences among participants, in addition to weak follow-up. The Secretary-General should not view increased Council activism as a challenge to his own work, but look for ways to support and harness efforts by Council members to address looming crises. The Council should streamline its working methods and operational approaches to engaging in conflict prevention .
Topic:
Diplomacy, United Nations, Conflict, and Peace
Political Geography:
Africa, Burundi, South Sudan, and Democratic Republic of Congo

8. Moral Obligation: UN Missions Should Not Abandon Vulnerable Civilians in Critical Times

Author:
Kofi Nsia- Pepra
Publication Date:
08-2017
Content Type:
Working Paper
Institution:
Global Peace Operations Review
Abstract:
United Nations (UN) missions’ inaction in response to civilian killings by government troops in Darfur, South Sudan, and the Democratic Republic of Congo (DRC) has precipitated international outcry and raised concerns on viability of UN missions in fulfilling their civilian protection mandates. In all these cases, peacekeepers are trapped in quagmires where violence is endemic and operations are flawed. The tragedy is that the principle of peacekeeping that requires host country consent has left the UN entangled in relationships with obstructionist governments guilty of civilian killings. Without the governments’ cooperation, peacekeepers have been reduced to bystanders and struggled to fulfill their protection mandates while civilians are killed. The UN has a dilemma when its peace operations are not working. Some suggest it should “walk away” from such failed missions, but the system is haunted by its failures to protect civilians in Rwanda and Srebrenica. The UN should think twice about withdrawing. Member states have a commitment to the “responsibility to protect” and “saving the next generation from the scourge of war”. Abandoning vulnerable civilians would be a moral failure, embolden spoilers, perpetuate the cycle of impunity, and implicitly condone conscience-shocking atrocities that undermine the organization’s credibility and legitimacy. A better way forward is to deepen the analysis of operational deficiencies that undermine the robustness of UN missions and strengthen their ability to protect civilians.
Topic:
United Nations, Humanitarian Intervention, Peace, Civilians, and Morality
Political Geography:
Africa, Darfur, South Sudan, and Democratic Republic of Congo

9. "Their Priority Is Not The People": Civilian Views On Peace Operations In Africa

Author:
Thijs Van Laer
Publication Date:
09-2017
Content Type:
Working Paper
Institution:
Global Peace Operations Review
Abstract:
“Their priority is not the people of Somalia,” a Somali woman who had recently fled to the Dadaab refugee camp in Kenya said about peacekeepers in her home country. “It is the government and themselves.” Unfortunately, this view is not unique. Civilians in countries with peace operations often experience a wide gap between them and those missions. Yet, at a time when peacekeeping is at a crossroads—again—and under increasing financial pressure, it is more important than ever to solicit and acknowledge the views of the citizens who are affected by peace operations. Their suggestions on how to bolster results should be taken into account in the ongoing debates about successes, failures, and costs of peace operations. However, despite an acceptance in the ever-quoted HIPPO report that “engaging with host countries and local communities must increasingly be regarded as core to mission success” and despite the acceptance of protection of civilians as a core norm for UN peacekeeping, realities on the ground demonstrate that too little has been done to access or include these voices. Between October 2015 and April 2017, International Refugees Rights Initiative (IRRI) conducted close to 200 interviews with civilians in South Sudan, Sudan (Darfur) and Somalia about how they perceive the peace operations in their countries. The three missions in those countries, all of which are mandated by the UN Security Council, embody the range of different options available to implement the strategic partnership between the African Union and the UN, from a fully-fledged UN mission in South Sudan (UNMISS), to a joint AU-UN mission in Darfur (UNAMID) and an AU-operated mission in Somalia (AMISOM). While all three operate in significantly different contexts, they all have “little peace to keep” and have been often criticized for their limitations in implementing their mandate, especially when it comes to the protection of civilians. All three missions have also been reviewed this year. UNAMID has been restructured and its troop numbers have been seriously reduced; the UN and AU have just concluded a joint review of AMISOM and strengthened the focus in its mandate on withdrawal and handover to Somali security forces. UNMISS faces some minor budget cuts and a review, even as reinforcement by a Regional Protection Force is slowly being implemented. While much of what was talked about by the Somalis, South Sudanese, and Darfuris interviewed during the course of the research was specific to their context, a number of similarities and trends emerge from their responses, despite the strategic, operational, and contextual differences between the three missions. These trends are important, not only for any new rounds of high-level policy debates, but also for addressing the strategic challenges for protection of civilians and the rock-bottom popularity of peacekeepers among the civilians they are supposed to protect.
Topic:
Human Rights, United Nations, Refugees, Peace, and Civilians
Political Geography:
Kenya, Africa, Sudan, Darfur, Somalia, and South Sudan

10. Between Bureaucracy and Adhocracy: Crafting a Spectrum of UN Peace Operations

Author:
Ian Johnstone
Publication Date:
03-2016
Content Type:
Working Paper
Institution:
Global Peace Operations Review
Abstract:
The array of tools the UN has developed to prevent, manage and resolve conflict has expanded in recent years. They are being deployed in new formats, from political missions and small peacebuilding teams, to large observer missions and multidimensional peace operations with offensive capabilities. But the High-level Independent Panel on Peace Operations (HIPPO) and other recent reports question whether the tools are being used as effectively as they could be. The HIPPO recommended, “the full spectrum of peace operations must be employed more exibly to respond to changing needs on the ground”. It said the UN must deliver more “right fit” missions, a “continuum of response and smoother transitions between different phases of missions.” This message was echoed in the Secretary-General’s follow up report, the Advisory Group of Experts (AGE) on the Peacebuilding Architecture Review, and the Global Study on the implementation of resolution 1325. It is also implicit in the Plan of Action to Prevent Violent Extremism, which calls for creativity in how to respond to that threat.
Topic:
Conflict Resolution, Politics, United Nations, and Peacekeeping
Political Geography:
Global Focus