Peace building as state building: Dealing with failed and fragile states

1. Peace building as state building: Dealingwithfailed and fragile states Marie-Joëlle Zahar Science politique, Université de Montréal

2. 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. »

3. 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

4. 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

5. 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 sectorreform • Reform of the judiciary • The preferred means • Demobilisation, disarmament and reintegration • Politicalreforms • Economic and administrative reforms

6. What: Statebuilding vs. Integrated Missions •  As per the definition Xavier Zeebroek proposed: An instrument that the UN uses to help countries transitioningfromwar to sustainablepeace or whichcanbeapplied in similarcomplex situations thatrequire a responsefrom the whole of the UN system by relying on differentactors 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

7. How: Major debates in peace building practice Empirical Debates Normative /Theoretical Debates • Sequencing the tasks of peacebuilding: Wheredoes one start? • Security, democracy, development • Actors: Whodoeswhat? • Civilians or militaries • Locals or internationals • Approaches: How best to proceed? • Top-down • Reforming institutions • Bottom-up • Transforming society • Sequencing • Whatwe know from comparative politics • About the linkbetweenwar and peace • About the linkbetweendemocracy and development • Whatwe have learned about peace building • Simultaneous, multiple transitions: Fromwar to peace; fromauthoritarianism to democracy; fromsocialist to marketeconomies • The politicaleconomy of transitions: managing winners and losers • Actors • Post-warelites and the need for external assistance • The issue of « ownership »: the delicate balance betweenlocals and internationals • Localsneed to own the peace • Local elites must shoulderresponsibility • 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 liberalpeace (Paris) • Balancingdeterrence and assurance (Saideman and Zahar) • Linkingconflict transformation activities to the politicalprocess (Lederach)

8. IFIs: World Bank/IMF Peace Operations UN CountryTeam, Bailleurs The debate over sequencing: not just about statebuidling Post-Conflict Tasks Stabilisation Sustainable development Transition ECON. GOVERNANCE INFRASTRUCTURE CIVILIAN ADMIN. ELECTIONS POLITICAL SUPPORT SECURITY DDR RULE OF LAW STRENGTHENING CAPACITIES HUMANITARIAN TASKS LOCAL INSTITUTIONS ICRC / Humanitarian NGOs. Security Democracy Development

9. How: major debates in peacebuilding practice Empirical Debates Theoretical Debates • How to improve coordination • On the ground • The PillarApproach • Integrated Missions • At the strategic/politicallevel • The Peacebuilding Commission • The PBSO and the PeacebuildingFund • How to assesssuccess: exit strategies • Whendoespeacebecome self-sustaining? • Assessingprogress in statebuilding • Improving coordination • Compatible and convergent interests • Information sharing • Clear lines of authority • Evaluating success • The benchmarks approach • Assessing statebuilding • Capacity • Autonomy • Legitimacy

10. The Pillars Approach: International administration in Kosovo Specialisation and Coordination

11. REPRESENTANTSPEC. SG Roger Meece SRSG ADJOINT PRINCIPAL Leila Zerrougui SRSG ADJOINT/HC/RC /PNUD RR Fidèle Sarassoro COMMANDANT DE LA FORCE Lt Général Babacar Gaye Bureau de l’information publique DIRECTEUR DIVISION ADMINISTRATION Division Aff. politiques JMAC DIVISION ASSISTANCE ELECTORALE Discipline Section Droits de l’homme Section DDRRR/DDR SECTION SECURITE Unité Etat de droit Bureau de la police civile SENIOR MANAGEMENT TEAM SECTION AFFAIRES CIVILES HAG (Coordination de l’aide Humanitaire) DONATEURS Section Protect. enfance Unité de liaison sur les mines Unité HIV/ SIDA Unité Sexo-spécif. OCHA CICR Comité International de la Croix-Rouge ONG Internationales ONG Locales Autres Agences NU PNUD HCR UNICEF PAM UN COUNTRY TEAM MONUC : UNE MISSION SEMI-INTEGRÉE SECRÉTAIRE GENERAL ONU Ban Ki-Moon CERIUM/Université de Montréal – Ecole d’été – Les opérations de paix 21 juin – 9 juillet 2010 – Contribution de Xavier Zeebroek

12. Coordination: the debate at the DPKO External partners UN Country Teams Mission Components

13. 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.

14. 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 powersfarebetterthan the UN? • Means • Interests • Crediblecommitment • How to intervene? • The primacy of ‘security’ (particularlytroopsecurity) 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 choicebetweendemocracy and stability