peace building as state building: dealing with failed and fragile states marie-joëlle zahar science...
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Peace building as state building: Dealing with failed and fragile
statesMarie-Joëlle Zahar
Science politique, Université de Montréal
When? The emergence of the notion of peacemaking
Boutros Boutros Ghali: An Agenda for Peace (1992)
«To stand ready to assist in peace-building in its differing contexts: rebuilding the institutions and infrastructures of nations torn by civil war and strife; and building bonds of peaceful mutual benefit among nations formerly at war»
«The present report in addition will address the critically related concept of post-conflict peace-building - action to identify and support structures which will tend to strengthen and solidify peace in order to avoid a relapse into conflict.”
«Peacemaking and peace-keeping operations, to be truly successful, must come to include comprehensive efforts to identify and support structures which will tend to consolidate peace and advance a sense of confidence and well-being among people. Through agreements ending civil strife, these may include disarming the previously warring parties and the restoration of order, the custody and possible destruction of weapons, repatriating refugees, advisory and training support for security personnel, monitoring elections, advancing efforts to protect human rights, reforming or strengthening governmental institutions and promoting formal and informal processes of political participation.”
«There is a new requirement for technical assistance which the United Nations has an obligation to develop and provide when requested: support for the transformation of deficient national structures and capabilities, and for the strengthening of new democratic institutions. The authority of the United Nations system to act in this field would rest on the consensus that social peace is as important as strategic or political peace. There is an obvious connection between democratic practices - such as the rule of law and transparency in decision-making - and the achievement of true peace and security in any new and stable political order. These elements of good governance need to be promoted at all levels of international and national political communities. »
When? The emergence of the notion of peacemaking The UN peacekeeping missions of the mid-
1980s Multidimensional missions
Restore order and security Support the transition from war to peace
« Successful » missions El Salvador, Guatemala Mozambique
The post-Cold War context A time of unparalleled international cooperation
The UN Security Council and the Iraqi invasion of Kuweit A time of resurgent civil wars
Bosnia, Somalia
Why: Peacebuilding as statebuilding
A statist approach The State as the guarantee for peace Failed states: a threat to peace
State failure and internal conflict (Zartmann) State failure and threats to international security (Ignatieff,
Rotberg)
An inherent tension? The State: part of the problem and part of the solution 2nd and 3rd generation peacemaking and the issue of
state sovereignty The phenomenon of transitional international
administrations
What: The menu of tasks
Through agreements ending civil strife, these may include disarming the previously warring parties and the restoration of order, the custody and possible destruction of weapons, repatriating refugees, advisory and training support for security personnel, monitoring elections, advancing efforts to protect human rights, reforming or strengthening governmental institutions and promoting formal and informal processes of political participation.”
The main objectives Restore order and stability Restructure politics, economics and society
By introducing democratic practices The focus on elections
By helping to strengthen the rule of law Security sector reform Reform of the judiciary
The preferred means Demobilisation, disarmament and reintegration Political reforms Economic and administrative reforms
What: Statebuilding vs. Integrated Missions
As per the definition Xavier Zeebroek proposed:An instrument that the UN uses to help countries transitioning from war to sustainable peace or which can be applied in similar complex situations that require a response from the whole of the UN system by relying on different actors or approaches in the framework of a global political and strategic management of crises.
An instrument which includes the following tasks Restore security Civilian protection Support and coordinate humanitarian aid DDR SSR Support to electoral processes Human rights observation and reporting Support the reconstruction of the judiciary Support good governance Help the State regain control over its natural resources
How: Major debates in peace building practiceEmpirical Debates Normative /Theoretical Debates
Sequencing the tasks of peacebuilding: Where does one start? Security, democracy,
development
Actors: Who does what? Civilians or militaries Locals or internationals
Approaches: How best to proceed? Top-down
Reforming institutions Bottom-up
Transforming society
Sequencing What we know from comparative politics
About the link between war and peace
About the link between democracy and development
What we have learned about peace building Simultaneous, multiple transitions: From war to peace; from authoritarianism
to democracy; from socialist to market economies
The political economy of transitions: managing winners and losers
Actors Post-war elites and the need for external assistance
The issue of « ownership »: the delicate balance between locals and internationals Locals need to own the peace
Local elites must shoulder responsibility
The « state of exception »: The responsiblity of the international community To whom? The UN, national leaderships, the country in which one intervenes
Can one be at once judge and jury
Approaches Criticizing the liberal peace (Paris)
Balancing deterrence and assurance (Saideman and Zahar)
Linking conflict transformation activities to the political process (Lederach)
ECON. GOVERNANCE
INFRASTRUCTURE
CIVILIAN ADMIN.
ELECTIONS
POLITICAL SUPPORT
SECURITY
DDR
RULE OF LAW
STRENGTHENING
CAPACITIES
HUMANITARIAN TASKS
LOC
AL IN
ST
ITU
TIO
NS
Transition Sustainable development
Stabilisation
UN Country Team, Bailleurs
IFIs: World Bank/IMF
Peace Operations
ICRC / Humanitarian NGOs.
Post-Conflict Tasks
Security Democracy Development
The debate over sequencing: not just about statebuidling
How: major debates in peacebuilding practice
Empirical Debates Theoretical Debates
How to improve coordination On the ground
The Pillar Approach Integrated Missions
At the strategic/political level The Peacebuilding Commission The PBSO and the Peacebuilding
Fund
How to assess success: exit strategies When does peace become
self-sustaining? Assessing progress in
statebuilding
Improving coordination Compatible and
convergent interests Information sharing Clear lines of authority
Evaluating success The benchmarks approach Assessing statebuilding
Capacity Autonomy Legitimacy
The Pillars Approach: International administration in Kosovo
Specialisation and Coordination
Division Aff. politiques
Section Droits de l’homme
UnitéEtat de droit
Section DDRRR/DDR
Bureau de la police civile
Bureau de l’information
publique
HAG(Coordination de l’aide Humanitaire)
DIVISION ASSISTANCE ELECTORALE
SECTION AFFAIRES CIVILES
Section
Protect.
enfance
Unité Sexo-spécif.
SECTION SECURITE
UnitéHIV/SIDA
Unité de
liaison sur les mines
MONUC : UNE MISSION SEMI-INTEGRÉE
SECRÉTAIRE GENERAL ONUBan Ki-Moon
SRSG ADJOINT PRINCIPALLeila Zerrougui
SRSG ADJOINT/HC/RC/PNUD RR
Fidèle Sarassoro
SENIOR MANAGEMENT TEAM
JMAC
Discipline
COMMANDANT DE LA FORCE
Lt Général Babacar Gaye
ONG Locales
ONG Internationale
s
CICR
Comité International de la
Croix-Rouge
DONATEURS
UN COUNTRY TEAM
HCR UNICEF PAMPNUDAutres
Agences
NU
OCHA
REPRESENTANT SPEC. SGRoger Meece
DIRECTEUR DIVISION
ADMINISTRATION
CERIUM/Université de Montréal – Ecole d’été – Les opérations de paix 21 juin – 9 juillet 2010 – Contribution de Xavier Zeebroek
Coordination: the debate at the DPKO
Mission Components
External partners
UN Country Teams
The New UN Architecture and statebuilding The Peacebuilding Commission: Coordination at the top
To bring together all relevant actors to marshal resources and to advise on the proposed integrated strategies for post conflict peacebuilding and recovery
To help ensure predictable financing for early recovery activities and sustained financial investment over the medium to long-term
To develop best practices on issues in collaboration with political, security, humanitarian and development actors
Peacebuilding Support Office The Peacebuilding Support Office (PBSO) was established to assist and support the Peacebuilding Commission,
administer the Peacebuilding Fund, and serve the Secretary-General in coordinating United Nations agencies in their peacebuilding efforts.
PBSO is headed by an Assistant Secretary-General for Peacebuilding Support and comprises a PBC Support Section, Policy Planning Section, and a Financing for Peacebuilding Section.
The PBSO helps to sustain peace in conflict-affected countries by garnering international support for nationally owned and led peacebuilding efforts. This includes providing support to the work of the Peacebuilding Commission and catalyzing the UN System, on behalf
of the Secretary-General, and partnering with external actors to develop peacebuilding strategies, marshal resources and enhance international coordination.
This support is firmly based on PBSO’s function as a knowledge centre for lessons learned and good practices on peacebuilding.
The Peacebuilding Fund: Financial Support to Prevent Relapse into Violence The PBF allocates money through two funding facilities, the Immediate Response Facility (IRF) and the
Peacebuilding Recovery Facility (PRF). Both facilities fund initiatives that respond to one or more of the following four criteria:
Respond to imminent threats to the peace process and initiatives that support peace agreements and political dialogue Build or strengthen national capacities to promote coexistence and peaceful resolution of conflict Stimulate economic revitalization to general peace dividends Reestablish essential administrative services
The UNDP Multi-Donor Trust Fund Office (MDTF Office) is the PBF fund administrator. The PBF relies upon voluntary contributions from Member States, organizations and individuals.
Peace building and state building after September 11th, 2001 Failed states and international insecurity
Pockets of lawlessness (transnational crime) and instability (terrorism)
Can regional or major powers fare better than the UN? Means Interests Credible commitment
How to intervene? The primacy of ‘security’ (particularly troop security) and its
impact on civil-military relations Relations with local elites: assisting, shadowing or imposing Relations with local populations: the issue of collateral damage
The liberal moment in peace building: a thing of the past? The choice between democracy and stability