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