Content Type: Policy Brief / Publishing Institution: International Peace Institute / Political Geography:

1. Action for Peacekeeping Plus (A4P+): An Update on Monitoring and Implementation after Two Years

Author:: Daniel Forti
Publication Date:: 03-2023
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The UN secretary-general launched Action for Peacekeeping Plus (A4P+) in March 2021, three years after introducing the Action for Peacekeeping (A4P) initiative. A4P+ was conceptualized as a two-year implementation strategy for A4P that prioritizes urgent challenges facing UN peacekeeping. To monitor progress toward achieving these priorities, the UN has developed the A4P+ Plan and the A4P+ Monitoring Framework with specific results, deliverables, and indicators. To date, the UN Department of Peace Operations (DPO) has published two reports assessing the implementation of A4P+ and the impact of these efforts on UN peacekeeping operations. This issue brief takes stock of the monitoring and implementation of A4P+ over the past two years. It begins by explaining the A4P+ priorities and tracing their emergence out of the A4P initiative and Declaration of Shared Commitments. It then discusses highlights from the A4P+ Plan and the two progress reports published as of March 2023 and examines the benefits and limitations of current approaches to monitoring and implementing A4P+. The paper concludes that moving forward, UN officials will need to balance ambitious goals for progress with realistic expectations about what peacekeeping operations can achieve, and when. The UN will also have to decide whether to extend the current set of A4P+ priorities beyond 2023. Ultimately, while A4P+ can help grease the machinery of UN peacekeeping, its long-term impact will depend on member states delivering on their existing political, operational, and financial commitments.
Topic:: United Nations, Peacekeeping, and Monitoring
Political Geography:: Global Focus

2. Accountability for Crimes against Peacekeepers

Author:: Agathe Sarfati
Publication Date:: 03-2023
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Since 1948, more than 1,000 UN personnel have been killed in malicious acts while serving in UN peacekeeping operations. Since 2013, the vast majority of fatalities have taken place in the Central African Republic (CAR), Mali, and the Democratic Republic of the Congo (DRC). To address this trend, the UN Secretariat and member states have increasingly focused on strengthening the policy framework on accountability to peacekeepers. They have also increasingly focused specifically on how to pursue justice for peacekeepers who have been victims of attacks. This paper focuses on advancing justice for crimes against peacekeepers as one aspect of the overall effort to enhance accountability to peacekeepers. It provides an overview of the role of UN peacekeeping operations in investigating and prosecuting crimes against peacekeepers and the UN’s growing focus on advancing and prioritizing accountability for these crimes. It then examines case studies of criminal cases supported by the UN missions in CAR (MINUSCA), Mali (MINUSMA), and the DRC (MONUSCO) in their respective host states and provides an overview of cross-cutting challenges they have faced. The paper concludes with recommendations to help the UN Secretariat, peacekeeping operations, the Security Council, and other member states accelerate the investigation and prosecution of crimes against peacekeepers in a consistent and balanced manner: The UN Secretariat should maintain a comprehensive approach to accountability, develop a common definition of crimes against peacekeepers, ensure that host states adhere to human rights standards when engaging with those accused of crimes against peacekeepers, and improve internal and external coordination in this area. UN missions should pursue a comprehensive approach to accountability, continue to support host-state investigations and prosecutions of those accused of crimes against peacekeepers, advocate for host-state authorities to pursue accountability, and ensure sustained documentation of and follow-up on cases. The Security Council should reinforce peacekeeping mandates to build the host state’s capacity to pursue accountability and encourage legal clarity on the nature of crimes against peacekeepers. UN member states should use the group of friends to offer new ideas on ways to promote accountability and use the Special Committee on Peacekeeping Operations to discuss ways to improve coordination in this area.
Topic:: Crime, United Nations, Peacekeeping, and Accountability
Political Geography:: Global Focus

3. Peacekeeping in Nonpermissive Environments: Assessing Troop-Contributing Countries’ Perspectives on Capabilities and Mindsets

Author:: Fiifi Edu-Afful
Publication Date:: 03-2023
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Many peacekeepers are deployed in areas where ongoing armed conflicts or other situations of violence, including attacks against peacekeepers, have constrained their capacity to implement their mandate and protect themselves. This has led some troop-contributing countries (TCCs) to raise concerns about the high-risk environments to which their troops are deployed. One of the most critical issues when deploying troops to nonpermissive environments is ensuring they have the right capabilities and mindset. This paper interrogates TCCs’ perspectives on capabilities and mindsets and explores their implications for peacekeeping policy and practice. The goal is not only to deepen understanding of the UN’s progress on implementing the A4P+ priorities but, more importantly, to assess the state of play of peacekeeping in nonpermissive environments, drawing on the diverse perspectives of TCCs. The paper concludes by considering how capabilities and mindsets relate to accountability for and accountability of peacekeepers. Failure to properly train, equip, and support troops being deployed to nonpermissive environments raises questions about whether the UN and TCCs are accountable to peacekeepers. Likewise, it is unclear to what extent peacekeepers should be held accountable for their performance when they have not been provided the proper equipment, training, and mindset.
Topic:: Environment, United Nations, Peacekeeping, and Armed Conflict
Political Geography:: Global Focus

4. Forced Marriage by Non-state Armed Groups: Frequency, Forms, and Impact

Author:: Phoebe Donnelly and Emily Myers
Publication Date:: 04-2023
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Many non-state armed groups use forced marriage during armed conflict. This practice has been documented across all geographic regions, in every decade since the 1940s, and across armed groups with many different ideologies. Yet while policymakers, scholars, and practitioners recognize forced marriage as an important form of conflict-related sexual violence (CRSV), there are no frameworks for conceptualizing the frequency and range of forms of forced marriage that occur in conflict. To fill that gap, this paper introduces an original dataset tracking forced marriage in armed conflict and uses the data and illustrative examples to divide forced marriage in armed conflict into three types: member–member forced marriage, member–civilian forced marriage, and civilian–civilian forced marriage. This dataset can be a tool for policymakers and practitioners to understand the impacts of forced marriage in armed conflict and better design prevention strategies and survivor-centered responses. The report concludes with an overview of existing policy, legal, and programmatic responses to forced marriage in conflict settings, including by non-state armed groups, and provides recommendations for how these responses can better address this complex phenomenon: Data collection: Disaggregate data on CRSV by the form of violence (when possible), avoid linking sexual slavery and forced marriage, and gather more data on the unique needs of survivors of forced marriage. Criminal accountability: Continue prosecuting forced marriage as a distinct crime against humanity and promote the inclusion of forced marriage as a distinct crime against humanity during negotiations on the treaty on crimes against humanity. Sanctions: Continue to include information on CRSV in the reports of sanctions monitoring committees, ensure that sanctions listing criteria are applied against perpetrators of forced marriage, and ensure that every panel of experts includes at least one member with expertise on gender issues or CRSV. Reintegration: Factor the different types of forced marriage into the design of reintegration programs and provide support that considers the unique needs of individuals exiting forced marriage.
Topic:: Security, Armed Forces, Women, Peace, Armed Conflict, and Forced Marriage
Political Geography:: Global Focus

5. Financing Loss and Damage at Scale: Toward a Mosaic Approach

Author:: Michael Franczak
Publication Date:: 05-2023
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The historic decision on loss and damage (L&D) at the 2022 UN Climate Change Conference (COP27) calls for a new fund and funding arrangements focused on addressing L&D. It also tasks a Transitional Committee to prepare recommendations on the new fund and funding arrangements for adoption at the 2023 UN Climate Change Conference (COP28) in Dubai. This decision reflects a recognition that existing funding arrangements are grossly inadequate to address the escalating scale of L&D. Addressing L&D will require both enhancing these existing arrangements and creating a new fund and funding arrangements, forming a mosaic of solutions across countries, institutions, and markets. This paper aims to aid the Transitional Committee and other stakeholders by providing an initial sketch of that mosaic. First, it examines existing arrangements, modalities, and sources of funding for addressing L&D from UN humanitarian agencies, multilateral development banks and international financial institutions, and insurance and bond markets. Second, it proposes reforms to existing arrangements that would address key finance gaps and bottlenecks. Third, it identifies elements of a new L&D fund that would complement existing arrangements and make use of innovative finance (including levies and bond issuances) to operate at scale. With roughly six months left until COP28, the Transitional Committee will need to work efficiently to achieve its mandate, which includes determining the fund’s institutional arrangements, modalities, structure, governance, sources of funding, and coordination and complementarity with existing funding arrangements. To this end, the paper recommends that it should: Begin securing financing before COP28, particularly innovative financing, which takes longer to secure than traditional donor contributions; Consult with the private sector to determine its role, including in the use of insurance mechanisms and risk pools, frontloading, and connections between L&D and jobs; Determine the form and role of triggers, including for slow-onset events; Consider how to address noneconomic losses, including displacement and forced migration; and Identify the actions, mechanisms, and institutions required to operationalize the fund, including an internal or external coordination mechanism.
Topic:: Climate Change, Development, United Nations, and Finance
Political Geography:: Global Focus

6. The UN’s Response to the COVID-19 Infodemic

Author:: Gabriel Delsol and Albert Trithart
Publication Date:: 05-2023
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The COVID-19 pandemic has been accompanied by a related “infodemic.” This infodemic emerged as widespread demand for information about the public health emergency was met with large volumes of false and misleading information. Many of the national and international institutions leading the response to the COVID-19 pandemic, including the UN, quickly recognized that they also needed to respond to the infodemic. This led to a quick, broad-based response by a broad array of UN agencies and partners. To date, however, there has been no systematic mapping or assessment of the range of initiatives across the UN system. To begin filling that gap, this paper provides an overview of the UN system’s response to the COVID-19 infodemic across four areas: monitoring harmful information related to COVID-19; dispelling false information and providing authoritative information; building information resilience; and setting the agenda. It then assesses some of the successes and challenges of the response across four areas: external partnerships, including with governments, civil society, academia, and social media companies; coordination within the UN system; financial, human, and technological capacity; and impact assessment. The report concludes that the UN’s infodemic response finds itself at a pivotal point: Due to donor fatigue around COVID-19, funding for the infodemic response is falling even while the need for a robust infrastructure to address infodemics and other information disorders may be increasing. UN entities working to address the infodemic and other information disorders should therefore consider the following: Engaging in a consultative process to develop a shared understanding of the infodemic by defining its specific harms in relation to each of their mandates; Sustaining and building capacity to counter infodemics and other information disorders, both in communications departments and in other sections working on infodemic management; Adopting a more standardized, system-wide approach to the use of new technologies and engagement with technology platforms; and Continuing to strengthen long-term information resilience by building the capacity of governments to manage infodemics and supporting strong, independent media.
Topic:: Health, Science and Technology, United Nations, and COVID-19
Political Geography:: Global Focus

7. Protection Dilemmas Arising from the Reintegration of Former Combatants and the Impact of the Terrorist Designation

Author:: Agathe Sarfati and Phoebe Donnelly
Publication Date:: 01-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The concept and implementation of disarmament, demobilization, and reintegration (DDR) have evolved as DDR-related activities have increasingly occurred in environments where armed conflict is ongoing, no peace agreement has been signed, and armed groups designated as terrorist organizations (AGDTOs) are operating. In parallel, reintegration has increasingly been discussed in the UN counterterrorism architecture through the concept of prosecution, rehabilitation, and reintegration (PRR). The changing context has raised challenges related to reintegration, especially reintegration of former members of AGDTOs. This policy paper analyzes the risks faced by individuals taking part in reintegration processes and by the communities they are reintegrating into. In particular, it analyzes how the designation of an armed group as a terrorist organization by the UN Security Council or by a state impacts these risks while acknowledging that these risks largely depend on the broader context. The paper examines three case studies of current reintegration processes: (1) the process for reincorporating former combatants from the Revolutionary Armed Forces of Colombia–People’s Army (FARC-EP); (2) the defector program for former members of al-Shabaab in Somalia; and (3) the reintegration process for individuals associated with Boko Haram in the Lake Chad Basin. The paper concludes by recommending several steps the UN could take to help ensure that reintegration processes address protection risks, especially for former members of AGDTOs: Tailor reintegration programs to the context, not to whether a group is labeled as a terrorist organization; Design reintegration programs to be gender-sensitive and human rights–compliant; Ensure that PRR and DDR programs are complementary and adopt the Integrated DDR Standards module on AGDTOs; and Keep reintegration and counterterrorism goals distinct.
Topic:: Terrorism, Non State Actors, Armed Forces, Civilians, and Protection
Political Geography:: Africa and Colombia

8. UN, EU, and NATO Approaches to the Protection of Civilians: Policies, Implementation, and Comparative Advantages

Author:: Joachim A. Koops and Christian Patz
Publication Date:: 03-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The protection of civilians (POC) in armed conflict has become a core strategic objective for the United Nations system and for UN peace operations in particular. The UN, however, is not the sole actor engaged in POC. The European Union (EU) and North Atlantic Treaty Organization (NATO), among other regional actors, have been developing their own policies and approaches to POC. While the significant overlap in these organizations’ member states and interorganizational developments create an opportunity to coordinate and synergize their POC policies, their approaches to POC differ—in some cases substantially. As the EU and NATO are both in the process of reassessing their strategic direction against the backdrop of new conflict scenarios, there is a need to reflect on the differences and similarities between these three organizations’ approaches to POC, their comparative advantages, and the future direction of the POC agenda. At a time when international peace operations and protection efforts are under intense political and operational pressure, such an understanding could also lay the foundation for more informed and effective interorganizational cooperation on POC. Toward this end, this paper examines the conceptualization of POC in the UN, the EU, and NATO, lays out the core POC policies and approaches of the three organizations and examines their approaches to implementing these policies in the field. The paper concludes with policy recommendations for the UN, the EU, and NATO to strengthen POC efforts within and between the three organizations: Adapt POC to new operational realities; Revitalize discussion on POC within and between the organizations; Improve POC training, preparedness, and institutionalization; and Focus on both passive (harm mitigation) and active approaches to POC.
Topic:: NATO, United Nations, European Union, Conflict, Civilians, Protection, and Regional Organizations
Political Geography:: Global Focus

9. The UN Agenda for Protection: Policy, Strategic, and Operational Priorities

Author:: Damian Lilly
Publication Date:: 03-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: In his 2020 Call to Action on Human Rights, UN Secretary-General António Guterres committed to developing an “Agenda for Protection.” The agenda provides an opportunity for the UN to reaffirm that the protection of crisis-affected populations is fundamental to its purpose and values. To be effective it should address the lessons learned from previous efforts to bring about a system-wide approach to protection, particularly the Human Rights up Front initiative. Critically, it should address the systemic and structural shortcomings of the UN to effectively respond to protection crises by providing strategic coherence to the fragmented ways in which the different UN entities contribute to protection. This policy paper analyzes the policy, strategic, and operational priorities for the forthcoming Agenda for Protection. It focuses on how the UN system can reform the way it addresses protection crises while remaining mindful that its role is heavily influenced by member states. It argues that without a transformative and comprehensive approach that brings together the fragmented ways the different UN entities contribute to protection, the Agenda for Protection is likely to suffer the same fate as previous unsuccessful efforts, further undermining the organization’s credibility. The paper concludes by providing several recommendations for the UN to consider as it drafts the Agenda for Protection: Establishing a clear vision statement and a commitment to protect; Setting out a common framework of protection measures to be implemented; Designating and resourcing a system-wide lead entity on protection; Outlining procedures to scale up the response in the event of a protection crisis; Developing an implementation plan and accountability framework; and Consolidating the reporting of protection results.
Topic:: Human Rights, United Nations, Sustainable Development Goals, Civilians, Humanitarian Response, and Protection
Political Geography:: Global Focus

10. An Unfinished Agenda: Carving Out Space for Humanitarian Action in the UN Security Council’s Counterterrorism Resolutions and Related Sanctions

Author:: Agathe Sarfati
Publication Date:: 03-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Since the terrorist attacks of September 11th, 2001, the UN Security Council has developed two main streams of work related to counterterrorism: the sanctions regime established by Resolution 1267 and measures under Resolution 1373. However, these resolutions and related sanctions regimes have been criticized for failing to safeguard and facilitate impartial humanitarian action. In response, the council has progressively incorporated language that better considers international humanitarian law (IHL) and humanitarian principles. Despite these efforts, humanitarian organizations have continued to criticize counterterrorism resolutions and related sanctions regimes for inhibiting humanitarian activities. This policy paper considers how the Security Council’s counterterrorism resolutions and related sanctions regimes can continue making progress to better protect humanitarian action. It begins by describing the council’s main streams of work on counterterrorism as well as their subsidiary organs. The second section discusses the impact of these counterterrorism measures on impartial humanitarian activities. The third section then reviews the incremental steps taken by the Security Council to incorporate language relevant to IHL and humanitarian affairs into these measures. The fourth section analyzes the four most recent counterterrorism-related resolutions adopted by the Security Council. The paper concludes with policy recommendations for entities both within and outside of the UN to better safeguard humanitarian action within counterterrorism resolutions and related sanctions regimes: For humanitarian organizations, relevant civil society groups and UN entities, and independent experts: Advocate to keep humanitarian action high on the Security Council agenda; Monitor the implementation of the humanitarian exception for Afghanistan; and Issue independent opinions on advisable forms of humanitarian carve-outs. For the UN Security Council and other UN member states: Reinforce implementation and monitoring of provisions in Security Council resolutions pertaining to IHL and humanitarian action; Provide adequate resources to monitor the impact of UN counterterrorism measures and related sanctions on humanitarian action; Amend language in UN counterterrorism resolutions and related sanctions regimes to facilitate humanitarian action; and Empower elected members of the Security Council to be agents of change.
Topic:: Sanctions, Counter-terrorism, UN Security Council, and Humanitarian Response
Political Geography:: Afghanistan and Global Focus

11. Blue on Blue: Investigating Sexual Abuse of Peacekeepers

Author:: Phoebe Donnelly, Dyan Mazurana, and Evyn Papworth
Publication Date:: 04-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: It is commonly assumed that the main threats to uniformed peacekeepers originate from outside of peacekeeping missions. However, many women (and some men) deployed as military or police peacekeepers are subjected to sexual abuse by other members of the organizations they serve. Until now, there has been little research specifically focused on this sexual abuse by uniformed peacekeepers against their peacekeeping colleagues. This paper helps fill that gap, drawing on a survey of peacekeepers as well as data from interviews and a closed-door workshop. It presents findings related to the extent, frequency, and type of abuse peacekeepers have experienced and witnessed; the perpetrators of this abuse; the organizational cultures that enable it; and peacekeepers’ perceptions of the UN’s response. These findings reveal that while sexual abuse is a major threat to uniformed peacekeepers, especially women, the UN and troop- and police-contributing countries (T/PCCs) have not adequately responded to the issue. This lack of attention is in contrast to the relatively robust architecture for reporting on and investigating sexual exploitation and abuse of host communities in peacekeeping environments. To successfully prevent and respond to sexual abuse within peacekeeping missions as well as increase women’s meaningful participation in peace operations, the report concludes by providing several recommendations across four broad areas for the UN and T/PCCs: Transform the organizational cultures that enable sexual abuse of peacekeepers; Mandate robust training to prevent sexual abuse of peacekeepers; Require T/PCCs to address sexual abuse of peacekeepers within their contingents; and Create a robust, confidential, and victim-centric reporting and investigation infrastructure.
Topic:: United Nations, Peacekeeping, and Sexual Violence
Political Geography:: Global Focus

12. Enhancing the Protection of Civilians through Conventional Arms Control

Author:: Damian Lilly and Barbara Morais Figueiredo
Publication Date:: 01-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Conventional arms control and disarmament efforts have historically been framed as a humanitarian cause to limit human suffering. However, activities with an arms control component have only featured to a limited extent within the protection of civilians (POC) mandates of United Nations peace operations. Both issues feature on the agenda of the UN Security Council, which mandates missions, but the linkages between the two have not been well explored at the policy, strategic, and operational levels. Produced in conjunction with the United Nations Institute for Disarmament Research, this brief provides an analysis of the actual, and potential, contribution of conventional arms control and related activities to POC within the context of UN peace operations—both peacekeeping operations and special political missions. There has been limited research conducted on this topic, and it has been addressed in only a cursory manner in relevant policies, guidelines, and strategies. This paper therefore attempts to demonstrate the existing linkages between these two mandated tasks, as well as to pinpoint some of the barriers and challenges to why arms control has not featured more fully within the POC efforts of missions. It then identifies relevant entry points based on concrete examples of how arms control-related activities can be better leveraged by UN peace operations to ensure the more effective protection of civilians.
Topic:: Arms Control and Proliferation, Civilians, UN Security Council, and Protection
Political Geography:: Global Focus

13. Gender-Responsive Leadership in UN Peace Operations: The Path to a Transformative Approach?

Author:: Sarah Smith
Publication Date:: 02-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Initiatives to increase gender equality or implement the women, peace, and security agenda in peace operations routinely fail when they lack support from leadership. Gender-responsive leadership is thus essential to the UN’s efforts to promote gender equality in UN missions and the countries where these missions are deployed. While the phrase “gender-responsive leadership” is not yet widely used by the UN, its fundamental principles have been integrated across several peacekeeping priority areas and policy frameworks, including training and mentoring programs, accountability frameworks, and data collection and monitoring. Yet significant shortcomings remain. This issue brief examines the concept and practice of gender-responsive leadership and assesses its potential to contribute to UN peace operations. It begins by examining the concept of gender-responsive leadership, the approaches and strategies envisioned by policymakers, and what outcomes it can achieve. It then outlines why gender-responsive leadership is important to UN peace operations and how it could bring about new approaches and challenge barriers to gender equality. It also considers the steps the UN has taken to implement gender-responsive leadership at both the mission and headquarters levels. The paper argues that gender-responsive leadership has the potential to change gender-unequal outcomes in peacekeeping if it is supported through training, mentoring, online resources, and assessment frameworks. Ultimately, the paper recommends a more inclusive, intersectional view of gender-responsive leadership—one that pays attention to issues such as race, ability, and sexual orientation—to ensure that leaders do not operate according to homogenized or essentialized understandings of women’s experiences.
Topic:: Security, United Nations, Peacekeeping, Women, Leadership, and Peace
Political Geography:: Global Focus

14. Vaccine Equity in ConflictAffected Areas: The Challenges of Development, Production, Procurement, and Distribution

Author:: Katherine DeLand
Publication Date:: 05-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: While the wide-ranging impacts of COVID-19 are being felt in all countries and communities, the pandemic is having a disproportionately large impact on vulnerable populations, such as people living in areas affected by fragility, conflict, and violence. Vaccines hold enormous promise to mitigate these impacts, but the complications inherent to armed conflict make accessing vaccines especially challenging. Even when countries do receive vaccines, they often face challenges in rolling out vaccination programs, whether because they lack adequate capacity or because the doses are set to expire or are not acceptable to the communities set to receive them. This issue brief focuses on the challenges of equitably distributing COVID-19 vaccines to populations in conflict-affected areas. It begins by looking at general issues related to the development, approval, production, procurement, and distribution of vaccines. It then examines the particular challenges to distributing vaccines in conflict-affected areas both before and during the vaccine rollout. The report concludes with several recommendations for stakeholders and policymakers to improve the delivery of vaccines in conflict-affected areas: Redistribute global resources to increase the supply of vaccines to conflict-affected countries; Increase the transparency and predictability of global vaccine supplies; Enhance cooperation and coordination at the national and local levels to deliver vaccines to conflict-affected areas through existing humanitarian response mechanisms; and Ensure that vaccination campaigns in conflict-affected areas adhere to humanitarian principles.
Topic:: Health, Conflict, Vaccine, COVID-19, and Humanitarian Response
Political Geography:: Global Focus

15. The Impact of Women Peacekeepers on Public Support for Peacekeeping in TroopContributing Countries

Author:: Laura Huber
Publication Date:: 05-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: There are several common assumptions about how women peacekeepers may impact public opinion in the countries from which they deploy. Women peacekeepers may boost public support for peacekeeping by increasing the perceived legitimacy of peacekeeping missions. They may also boost public support for women’s rights by challenging norms around the roles women should perform. Finally, there is a belief that the death of women peacekeepers could decrease support for peacekeeping. Drawing on two rounds of online public surveys in India and South Africa, this issue brief tests these assumptions. It also draws on an additional survey of UN member-state representatives in New York to understand how decision makers believe the deployment of women alters public support for peacekeeping. Overall, the surveys revealed relatively high levels of support for peacekeeping in both India and South Africa. Moreover, member-state representatives in New York indicated that they not only value public opinion on peacekeeping and consider it when making deployment decisions but also believe that the deployment of women peacekeepers increases support for UN peacekeeping. However, differences between the surveys of the two countries underscore that women peacekeepers may be perceived differently by the public in different contexts and may not always increase support for peacekeeping or women’s rights. Therefore, scholars and policymakers within national governments and the UN should consider how the deployment of women may interact with other social, cultural, and political norms and practices to moderate how the public will perceive and react to women peacekeepers.
Topic:: Security, United Nations, Public Opinion, Peacekeeping, Women, and Peace
Political Geography:: Africa, South Asia, India, and South Africa

16. Expanding Conceptions of Conflict-Related Sexual Violence among Military Peacekeepers

Author:: Gretchen Baldwin
Publication Date:: 06-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: UN peacekeeping missions tend to frame conflict-related sexual violence (CRSV) narrowly both in terms of who its victims are and who is best placed to address it. The victims of CRSV are usually assumed to be women and girls, and there is often an expectation that women peacekeepers will be better able to address CRSV than men. These assumptions reflect the frequent conflation of CRSV with “violence against women and girls,” as well as with “sexual and gender-based violence.” They also reflect the broader conflation of “women” and “gender” throughout UN policy documents and training resources for military peacekeepers. This issue brief explores how the UN system currently understands CRSV and SGBV, how this understanding affects the responsibilities, roles, and perceptions of military peacekeepers, and how UN policies—especially those focused on military women’s participation in peacekeeping—might be more inclusive. It draws on desk research as well as interviews with practitioners, UN personnel, and academic gender experts, as well as insights shared in several closed-door, expert-level workshops. The paper concludes that the current narrow understanding of CRSV harms victims of sexual violence who are not women and girls, including men and boys as well as sexual and gender minorities. Beyond the victims, narrow understandings of CRSV also harm women peacekeepers. Those pushing to increase the number of uniformed women peacekeepers often emphasize their added value in preventing and responding to CRSV. This assumption can perpetuate the idea that women peacekeepers’ primary added value is their gender identity and saddles them with additional responsibilities, often without adequate training, resources, or authority.
Topic:: Security, United Nations, Peacekeeping, Women, Conflict, Sexual Violence, and Peace
Political Geography:: Global Focus

17. Masculinities and Violent Extremism

Author:: Aleksandra Dier and Gretchen Baldwin
Publication Date:: 06-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: While only a small percentage of men become involved in violent extremism, the majority of violent extremists are men. Across the ideological spectrum, violent extremist and terrorist groups exploit male sentiments of emasculation and loss of power and appeal to ideas of manhood in their recruitment efforts. Yet policymakers rarely focus on gender to help them understand why some men engage in violence and others do not or what role peaceful notions of masculinity play in preventing radicalization and terrorism. Similarly, male-dominated counterterrorism institutions rarely pose the question of how masculinities shape these institutions and their approaches to counterterrorism and countering violent extremism (CVE). This report discusses masculinities—the socially constructed ideas of what it means to be a man—as they are constructed and used by violent extremist groups, as they exist in and interact with society, and as they interplay with the state. It draws on examples pertaining to both “Islamist” and extreme right-wing terrorism, considering differences not just between but also within these ideologies. The report argues that while current efforts to “mainstream gender” in counterterrorism and CVE do not focus on masculinities, a masculinities-focused approach must avoid repeating the shortcomings of existing counterterrorism and CVE approaches aimed at women; be grounded in a robust human rights framework to avoid perpetuating gendered harms; be based on an understanding of the links between extremist violence and gender inequality at the societal level; and recognize and address the harmful role masculinities play within counterterrorism and CVE institutions themselves. It concludes by recommending that state, multilateral, and civil society actors engaged in counterterrorism and CVE: Conduct more policy-oriented research and analysis on the link between masculinities and violent extremism; Integrate a gender perspective—including a focus on masculinities—across all counterterrorism and CVE policy and programming; Monitor and evaluate the gendered impact of counterterrorism and CVE interventions using a robust human rights framework; and Address the harmful role masculinities play within counterterrorism and CVE institutions.
Topic:: Security, Violent Extremism, Counter-terrorism, Women, Peace, Men, and Gender
Political Geography:: Global Focus

18. Multilateralism Index: Pilot Report

Author:: International Peace Institute
Publication Date:: 09-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: In the past several years, there has been a much-discussed rise in strain on multilateralism. However, there have been few efforts to quantifiably assess the state of the multilateral system. This Multilateralism Index (MI) report is the first known attempt to do so. It focuses on developments in the system over the past decade, providing a snapshot of its relative strength in 2020 compared to 2010. It seeks to answer questions including: What is the state of the multilateral system? What is working? What is not? And how has the multilateral system changed over time? The MI examines five domains of multilateral coordination: Peace and Security, Human Rights, Environment, Public Health, and Trade. Each domain is evaluated across three dimensions: Participation, Performance, and Inclusivity. Analysis of sixty-five indicators across these domains and dimensions reveals several trends in multilateral cooperation over the past decade: Participation scores for Human Rights, Public Health, and Trade have improved, while the scores for Peace and Security and Environment have deteriorated. Performance scores have deteriorated in four out of five domains. Inclusivity scores have improved across all five domains. These trends shed light on the nature of the crisis of multilateralism. Rather than decreased international cooperation and widespread exit from multilateral institutions, we are seeing a battle over the nature and purpose of the multilateral system—not decay, but transformation. The MI provides a basis for tracking this transformation and informing decision making on the future of multilateralism.
Topic:: Security, Environment, Human Rights, Multilateralism, Peace, Trade, and Public Health
Political Geography:: Global Focus

19. Contingent-Owned Equipment and Environmental Considerations in UN Peacekeeping Operations

Author:: Daniel Forti and Emmanuelle Cousin
Publication Date:: 09-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Peacekeeping operations are among the largest contributors to the UN’s environmental footprint, as well as the biggest potential vectors for pollution. Without strong environmental standards, these operations risk not just damaging local environments, but also negatively impacting the health and safety of local populations and compromising the UN’s reputation and legitimacy. The UN has taken steps to improve its missions’ environmental practices, but these efforts have largely focused on the actions of the UN Secretariat and not those of member states. Less attention has been paid to the role of member states, which supply a considerable portion of the equipment used in peacekeeping operations. This issue brief analyzes how environmental considerations have emerged in discussions about UN peacekeeping operations and the financial incentives governing contingent-owned equipment (COE). It provides an overview of UN peacekeeping missions’ environmental footprint and the policies that have emerged in response. It also examines the evolution of environmental issues in the UN General Assembly’s COE Working Group, the dynamics that affect how member states engage in these negotiations, and current best practices for improving environmental standards for COE. The paper concludes by suggesting important points member states should consider in future discussions surrounding the COE framework: Member states will need to expand their focus beyond renewable energy to consider the myriad of ways in which their deployments impact the environment, including waste and pollution. Adjustments to the COE framework hinge on progress both by member states and by the UN Secretariat. Member states would benefit from a dedicated forum for sharing data and best practices on environmentally friendly equipment. The pace of climate change-induced environmental degradation is accelerating, with an especially profound impact on conflict-affected countries. Reducing missions’ environmental footprints is necessary not just to mitigate environmental degradation but also to improve their ability to implement their mandates.
Topic:: Climate Change, Environment, United Nations, and Peacekeeping
Political Geography:: Global Focus

20. The UN Environmental and Climate Adviser in Somalia

Author:: Jenna Russo
Publication Date:: 10-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The UN Assistance Mission in Somalia (UNSOM) was among the first special political missions to receive climate-related language in its mandate, reflecting Somalia’s acute vulnerability to the impact of climate change. In 2020, UNSOM also became the first mission to have an environmental and climate adviser deployed to help implement this mandate. The adviser’s work is structured around three pillars: Mainstreaming the environment and climate throughout the mission’s mandated areas of work; Coordinating UN agencies, government actors, and NGOs working on climate across the humanitarian, development, and peacebuilding sectors; and Supporting the government in developing, funding, and coordinating its climate action plans and policies. This issue brief reviews the role of the environmental and climate adviser in Somalia, including their areas of work, successes, challenges, and opportunities for replication in other mission settings. Strong buy-in from both mission leaders and national and regional counterparts has facilitated the adviser’s ability to help the mission implement its mandate relating to climate change, environmental degradation, and other ecological challenges. Furthermore, the adviser has successfully helped to coordinate climate-related work, incorporate strategic analyses into climate-related risk assessments and responses, and liaise with local actors. The adviser has also faced challenges, including the broad scope of work tasked to a single person and the unique set of skills required, as well as the political contention surrounding the concept of climate security. The brief concludes by looking ahead to the growth of environmental and climate advisers in other UN missions and the importance of understanding and addressing interlinkages among climate, peace, and security as the impacts of climate change accelerate.
Topic:: Security, Climate Change, Environment, Peacekeeping, and UNSOM
Political Geography:: Africa and Somalia

21. Options for a Loss and Damage Financial Mechanism

Author:: Michael Franczak
Publication Date:: 10-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: As efforts to mitigate and adapt to the impacts of climate change fall short, discussions around loss and damage (L&D) resulting from climate change have gained urgency. These discussions pivot on questions around financing, which remains very limited. Going into the twenty-seventh UN Climate Change Conference (COP27), the call for a new L&D financial mechanism has been raised by developing countries. This paper provides a brief overview of the state of play of global negotiations on L&D and explores options for funding arrangements for addressing L&D in the context of the positions of the G77 and Alliance of Small Island States (AOSIS). The paper considers options related to four key questions concerning a new mechanism for financing L&D: Where will it be located? A new L&D financial mechanism could be located within the climate regime. However, there could also be complementary mechanisms outside the climate regime. Who will pay for it? There are two broad options for funding: ask for public contributions from donors or impose new taxes. An L&D financial mechanism could adopt both approaches, though some taxes could negatively impact some of the very countries advocating for L&D. Who will control it? Any mechanism should be guided by the principle of Common But Differentiated Responsibility and should be new and additional; needs-based, adequate, and predictable; public and grant-based; guided by vulnerability criteria; and locally driven. What will it do? The fund should make clear how L&D is both distinct from and linked to mitigation and adaptation and should take special care to address critical gaps in financing for slow-onset and noneconomic losses.
Topic:: Climate Change, Development, and Finance
Political Geography:: Global Focus

22. Toward an Environmental and Climate-Sensitive Approach to Protection in UN Peacekeeping Operations

Author:: Agathe Sarfati
Publication Date:: 10-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Environmental degradation, including degradation caused by climate change, armed conflict, or the illegal exploitation of resources, can be a catalyst for violence against civilians. While addressing environmental degradation goes well beyond the mandates of UN peacekeeping operations, missions are increasingly focusing on climate-related security risks, and several missions have environment and climate-related language in their mandates. Overall, however, missions’ work in this area remains ad hoc. This issue brief discusses how peacekeeping operations can better factor environmental and climate-related security risks in planning and implementing protection-related activities. It provides an overview of the impact of environmental degradation on armed conflict and the impact of armed conflict on environmental degradation. The paper then highlights current best practices for considering the environment and climate in protection-related activities in peacekeeping. The brief concludes by suggesting that UN peacekeeping operations include environmental and climate security considerations in their assessment, planning, and implementation of mandated activities related to protection through a whole-of-mission approach and in close partnership with the UN country team and the host government. It also suggests that missions continue exploring opportunities for new approaches, including environmental peacebuilding and mediation.
Topic:: Climate Change, Environment, United Nations, Peacekeeping, Civilians, and Protection
Political Geography:: Global Focus

23. UN Peacekeeping and CPAS: An Experiment in Performance Assessment and Mission Planning

Author:: Daniel Forti
Publication Date:: 10-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Since 2018, the UN Department of Peace Operations’ (DPO) Division for Policy, Evaluation and Training (DPET) has been rolling out the Comprehensive Planning and Performance Assessment System (CPAS) across all UN peacekeeping operations. CPAS sets out a framework for mission officials to interrogate how their operations impact stakeholders and processes in the country and whether these impacts are helping missions achieve their mandated priorities. This policy paper examines the rollout and implementation of CPAS to date and reviews CPAS’s impact across three core areas: data collection and analysis, impact assessment, and mission planning. It also examines six factors that affect the implementation and impact of CPAS: (1) mission-wide integration; (2) mission leadership and mission-wide ownership; (3) capacities and skill sets; (4) alignment with other peacekeeping planning tools; (5) thematic priorities; and (6) dynamics between UN headquarters and field missions. The paper concludes with the following recommendations, which are intended to help missions, headquarters, and member states sustain CPAS into the future: Peacekeeping operations should include CPAS-specific information in handover notes; share the topline of CPAS frameworks and impact assessments with UN headquarters; improve the design, tracking, and communication of CPAS recommendations; provide detailed overviews of CPAS impact assessments in the secretary-general’s reports to the Security Council; broaden CPAS participation to the UN country team and other UN entities in the country or region; and incorporate local views of mission performance and impact into CPAS. UN headquarters should publish CPAS fact sheets on mission websites; incorporate CPAS exercises and assessments into senior leadership training exercises; expand training materials on data analysis and visualization; and align CPAS with other UN planning and reporting processes. Member states should provide consistent political support and attention to CPAS; increase funding for civilian planning and data-management posts; and include CPAS in peacekeeping curricula at national peacekeeping and police training centers.
Topic:: Conflict Prevention, United Nations, and Peacekeeping
Political Geography:: Global Focus

24. Disinformation against UN Peacekeeping Operations

Author:: Albert Trithart
Publication Date:: 11-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Over the past few years, a growing barrage of disinformation has targeted UN peacekeeping operations, particularly the missions in the Central African Republic (MINUSCA), Mali (MINUSMA), and the Democratic Republic of the Congo (MONUSCO). This includes false allegations that UN peacekeepers are trafficking weapons to armed groups, supporting terrorists, and exploiting natural resources. This disinformation makes it harder for peacekeeping operations to implement their mandates and has put the safety of peacekeepers at risk. This paper provides an overview of the recent rise in disinformation against MINUSCA, MINUSMA, and MONUSCO. It also examines how these three peacekeeping operations have been addressing disinformation and the challenges they have faced. While these initial efforts have tended to focus on strategic communications, disinformation is not only a strategic communications issue; it affects all mission components, and effectively tackling it requires situating it in the broader political context and understanding its drivers. This paper offers the following questions the UN Department of Peace Operations and individual missions could consider as they develop policies, guidelines, structures, and activities to address disinformation: How can missions develop a cross-cutting, strategic approach to disinformation? Disinformation is more than a technical or tactical issue; it is a political and strategic issue that requires the proactive attention of mission leaders. How can missions better monitor and analyze disinformation both online and offline? Monitoring disinformation is critical not only so missions can address it; tracking rumors also has intrinsic value by helping missions better listen to and understand the sentiments of local populations. How can missions respond to disinformation more quickly? For many UN personnel, the slowness of the UN response is one of the biggest challenges inhibiting their efforts to address disinformation. How can missions reshape anti-UN narratives? Anti-UN disinformation is woven into a broader anti-UN (and anticolonial) narrative that is grounded in both great-power politics and legitimate public grievances. In countering individual falsehoods, missions should consider whether and how they could also respond to this broader narrative. How can missions contribute to a healthier information environment? From the perspective of civil society, the most important shift the UN can make would be to focus more on supporting local journalists. Does the scale of the problem call for a more decisive shift in approach? Any shift in approach should be premised on the principle that under no circumstances should missions respond to disinformation with disinformation of their own.
Topic:: United Nations, Peacekeeping, and Disinformation
Political Geography:: Africa, Democratic Republic of the Congo, and Central African Republic

25. Strengthening Data to Protect Healthcare in Conflict Zones

Author:: Rohini Haar and Susannah Sirkin
Publication Date:: 11-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Attacks on healthcare in situations of armed conflict have been reported at alarming levels over the past two decades. In response to this problem, the UN Security Council unanimously passed Resolution 2286, which urges states to collect data on attacks on medical personnel, transport, and facilities. This data is essential to understand the scale and scope of the problem, protect health services and workers, prioritize resources to those most impacted, prevent future attacks, and hold perpetrators accountable. This paper examines why data on threats to and attacks on healthcare in conflict is important to protection, advocacy, and investigation and how it can be improved and harmonized. It provides an overview of existing data-collection efforts—namely, the Surveillance System for Attacks on Health Care (SSA) and the database produced by the Safeguarding Health in Conflict Coalition (SHCC) in partnership with Insecurity Insight—and identifies challenges and gaps at both the policy and technical levels. This paper concludes with the following recommendations for the World Health Organization (WHO), other UN entities, UN member states, and NGOs: The World Health Assembly should adopt a resolution calling on WHO to address the major concerns in the structure and operation of the SSA; WHO should make technical improvements to the quality and presentation of data in the SSA and be open to a range of data-collection methodologies; Other UN agencies, governments, and civil society organizations should take steps to improve the collection and sharing of data on attacks on healthcare to improve protection, prevention, and accountability; and Governments, NGOs, and other actors should increase the funding and capacity of existing data-collection initiatives.
Topic:: Health, Humanitarian Aid, United Nations, Conflict, UN Security Council, Data, and WHO
Political Geography:: Global Focus

26. Lessons from E10 Engagement on the Security Council

Author:: Arthur Boutellis
Publication Date:: 11-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: In recent years, the ten elected members of the Security Council, now commonly referred to as the E10, have come to play a more prominent role. Although there were previous periods when elected members were active and took initiative, the space for such contributions began to shrink in the mid-2000s. The emergence of the E10 as a construct and a more cohesive coalition on the Security Council is thus recent. Despite elected members’ different levels of commitment to collective E10 initiatives, and although the Council’s five permanent members have greater capacity, permanence, and veto power, there is a sense that the E10 have been able to influence the work of the Council, including its working methods, thematic issues, and some country-specific files. This paper presents a broad policy perspective on lessons from both individual elected members and from the E10 as a group. It examines the E10’s recent engagement on the Council and offers lessons for how elected members can most effectively prepare for their term, serve on the Council, and ensure their legacy. The paper concludes with reflections on the future of the E10 in a fragmented Security Council. While the E10 as a group have reached a level of maturity, their ability to coordinate across a diverse group whose effectiveness depends on several internal and external factors may have reached a natural limit. The E10’s composition, individual members’ level of commitment to collective E10 initiatives, and the group’s leadership all impact the E10’s ability to influence the work of the Council. While the E10 have been collectively successful at promoting certain issues and files and at making the Council more transparent, individual members have and will continue to have different views on many issues on the agenda. They will also continue to face structural inequalities when it comes to penholding and chairing subsidiary bodies.
Topic:: Diplomacy, United Nations, and UN Security Council
Political Geography:: Global Focus

27. The Primacy of Politics and the Protection of Civilians in UN Peacekeeping

Author:: Jenna Russo and Ralph Mamiya
Publication Date:: 12-2022
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Support to political processes and the protection of civilians (POC) are arguably the two most prominent mandated tasks for multidimensional UN peacekeeping operations. Policy guidance and independent reviews have made clear that politics and protection must be linked, yet within missions, POC is often considered in parallel to political work and is not always effectively incorporated into a political vision. The purpose of this report is to examine how UN peacekeeping missions’ POC and political work are understood in relation to one another in terms of planning and operations and to consider opportunities for better integrating them, both formally and informally. The report begins by outlining the concept of political primacy and the elevation of POC within UN peacekeeping. It then provides an overview of entry points for better connecting missions’ political and POC work, including in mapping and analyses, planning and strategies, negotiated agreements, the creation of enabling environments, and local-level processes. The report then discusses various challenges and offers concluding recommendations. The paper concludes with the following recommendations for member states, mission leadership, and other mission personnel to better integrate their POC and political work: Mapping and analysis: Mission leaders should ensure that mapping and analyses are conducted jointly by mission personnel working on POC and politics. Planning and strategies: Special representatives of the secretary-general (SRSGs) and headquarters should take ownership of, and clearly and consistently communicate to mission staff, mission concepts, mission plans, POC strategies, and political strategies. To better translate their strategic vision into actionable plans, mission leaders should also establish joint mission planning cells. Heads of POC and political components (or their equivalents) should anchor their individual strategies in the central mission concept, plan, or strategy to ensure all components are working toward a common goal. Negotiated agreements: During the lead-up to a formal negotiation process, SRSGs should advocate for POC. Mediators should also advocate for specific language on POC within negotiated agreements, including language on the protection of specific groups and protection from sexual and gender-based violence. Creating an enabling environment: Mission personnel in charge of planning and implementing POC should look for entry points to enhance the protection-participation nexus. Local-level processes: Senior mission leaders and member states should broaden their focus on the “political” beyond national-level formal processes to include the local level.
Topic:: Politics, United Nations, Peacekeeping, Civilians, and Protection
Political Geography:: Global Focus

28. United Nations Special Political Missions and Protection: A Principled Approach for Research and Policymaking

Author:: Daniel Forti
Publication Date:: 10-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Independent reviews are a relatively new but increasingly popular tool. Since the practice was established in 2017, there have been nineteen independent reviews of UN peace operations. These reviews have been intended to rigorously assess the strategic orientation of peace operations while providing more political credibility than UN-led review processes. But given the diverse processes and incentives that shape them, these exercises are both analytically complex and highly political. As independent reviews have gained prominence over the past five years, reflecting on the experiences of previous reviews is necessary for improving their quality, impact, and sustainability moving forward. This paper provides a comparative analysis of the nineteen independent reviews of UN peace operations conducted between 2017 and 2021 by considering emerging trends, best practices, and lessons observed. It begins by juxtaposing the emergence of independent reviews with an increasingly fractured geopolitical landscape for UN peace operations and introducing these reviews’ distinguishing features and objectives. It then analyzes how independent reviews have unfolded in practice across seven different dimensions. The paper concludes by presenting findings about the practice and future of independent reviews and developing criteria to distinguish between UN-led and independent reviews. It also offers recommendations to the UN system, member states, and independent review teams to improve the practice: The UN system should codify independent reviews within formal UN policy, consolidate best practices, clarify roles and expectations of UN staff seconded to review teams, prioritize diversity in the composition of review teams, improve reporting on independent reviews, and establish a dedicated funding stream for independent reviews. Independent review teams should emphasize their transparency and independence, build internal and external constituencies, systematize their use of diverse research methods and approaches, and embrace the support provided by “red teams.” Member states should treat independent reviews as exceptional instead of standard, debrief team leaders following the submission of an independent review, request a formal briefing on strategic reviews and assessments, strengthen reporting requirements on the implementation of review recommendations, and provide ample time for conducting independent reviews.
Topic:: Politics, United Nations, Peacekeeping, and UN Security Council
Political Geography:: Global Focus

29. From Female Engagement Teams to Engagement Platoons: The Evolution of Gendered Community Engagement in UN Peace Operations

Author:: Gretchen Baldwin
Publication Date:: 11-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The military components of UN peacekeeping operations have used engagement teams (ETs) to conduct community engagement activities since at least 2015. While ETs were initially ad hoc initiatives, the UN has recently begun to institutionalize gendered community engagement, including through an ongoing shift from ETs to engagement platoons (EPs). Yet despite a general recognition that ETs have been beneficial, they have not been consistently understood or defined, making it difficult to assess how they have been used and to what effect. This policy paper fills this research gap by presenting data on the prior activities of ETs and the experiences of those deployed to them. It aims to help decision makers align policies and guidance on ETs and EPs with evidence of what has and has not worked and to establish a baseline against which EPs can be measured over time. The paper draws on extensive interviews with members of ETs and policymakers, as well as a questionnaire distributed to military peacekeepers in six peacekeeping missions. Overall, this research found broad support for the ongoing rollout of mixed-gender EPs. It concludes, however, that to effectively implement ETs and EPs, leaders in missions and in national militaries must address the institutional barriers that preclude women’s full participation in peace operations and perpetuate gendered stereotypes. Toward this end, it offers several recommendations to troop-contributing countries and the UN: Provide training on the skills required for community engagement to men and women across all levels of the military; Shift the burden for gendered community engagement off of women; Improve internal reporting and analysis by ETs and EPs; Coordinate between ETs and EPs and other mission components; Build the capacity of missions to engage with communities; and Avoid reinforcing gendered assumptions and stereotypes through the activities of ETs and EPs.
Topic:: Security, Gender Issues, United Nations, Peacekeeping, and Women
Political Geography:: Global Focus

30. Strategic Communications in UN Peace Operations: From an Afterthought to an Operational Necessity

Author:: Jake Sherman and Albert Trithart
Publication Date:: 08-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: United Nations peace operations are increasingly recognizing strategic communications as essential to implementing their mandates and managing expectations about what they can and cannot achieve. This has led them to ramp up their communications capabilities and shift their approach away from the traditional top-down, one-way model of communication. Nonetheless, missions continue to face obstacles in realizing this approach. This issue brief analyzes the current strategic communications practice in UN peacekeeping operations and special political missions. It explores why strategic communications are increasingly important in the contexts where missions are deployed and the external and internal challenges missions face. It also identifies best practices peace operations might adopt or adapt from other parts of the UN system and related fields. The paper concludes that, while missions may need additional resources for strategic communications, what they most need is a cultural shift. Mission leaders need to see strategic communications as a core mission capacity. Strategic communications are not an operational support function, a downstream activity, or an output of a planning cycle; they are an integral part of political strategies and mandate delivery. They are not just a leadership function but a “whole-of-mission” responsibility. Strategic communications must therefore be treated as central to every phase of a UN peace operation. If missions are to succeed, strategic communications professionals should be part of their decision making, from initial planning through transition and exit.
Topic:: United Nations, Communications, Peacekeeping, Civilians, and Protection
Political Geography:: Global Focus

31. The Road to Seoul: Previewing the 2021 UN Peacekeeping Ministerial

Author:: Daniel Forti
Publication Date:: 11-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The UN peacekeeping ministerial process has emerged as one of the flagship vehicles through which the UN can mobilize concrete pledges of uniformed personnel, enablers, financial resources, and capacity building for peacekeeping operations. The 2021 UN peacekeeping ministerial in Seoul—the sixth ministerial since 2014—presents a valuable opportunity for member states to make pledges, focusing on four substantive areas: (1) peacebuilding and sustaining peace; (2) partnerships for capacity building and training; (3) performance and accountability; and (4) protection of civilians and safety and security. The conference also has two cross-cutting themes: technology and medical capacity building. This issue brief offers a preview of the 2021 peacekeeping ministerial in Seoul. It discusses the motivation for and evolution of the ministerial format and its value to UN peacekeeping. It also highlights the issues discussed during the four preparatory conferences in the run-up to the conference and briefly summarizes topics raised in both the UN’s official pledging guide and independent white papers commissioned by the Republic of Korea.
Topic:: United Nations, Peacekeeping, and Protection
Political Geography:: Global Focus

32. Breaking the Mold: Lessons from Sixteen Years of Innovative UN Political Engagement in Nepal

Author:: Rebecca Brubaker and Akhilesh Upadhyay
Publication Date:: 02-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: UN political engagement in Nepal between 2002 and 2018 has long been considered a successful example of sustained and innovative support to a critical peace process. Many governments in the broader region, however, have largely eschewed international assistance in resolving conflicts, perceiving it as an unnecessary infringement on state sovereignty or a threat to regional balances of power. This paper looks at lessons the UN could learn from its political presence in Nepal. It summarizes the four periods of the UN’s involvement, highlights best practices, and reviews the challenges faced and how they shaped the range of actions available to the UN. It concludes with eight lessons for the UN: Foster relationships with key conflict parties before there is a need for an active UN political role; Use indirect means to keep the regional players positively engaged, when direct means fail; Draw on or generate high-quality, fast, actionable, and representative conflict information; Design UN missions according to context; Manage a mission’s (perceived or real) footprint in order to maximize leverage; Build a dedicated communications strategy to help set and manage expectations regarding what a mission can and cannot do; Consider using human rights monitoring as the groundwork for conflict resolution; and Be willing to make unpopular decisions, if they are the right decisions for sustaining the peace.
Topic:: Human Rights, United Nations, Conflict, and Peace
Political Geography:: South Asia and Nepal

33. A UN for All? UN Policy and Programming on Sexual Orientation, Gender Identity and Expression, and Sex Characteristics

Author:: Albert Trithart
Publication Date:: 02-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Sexual orientation, gender identity and expression, and sex characteristics (SOGIESC) have been on the UN’s agenda for more than twenty-five years. Many of the earliest developments took place in the UN human rights mechanisms and Human Rights Council. Increasingly, however, UN agencies, funds, and programs are also integrating SOGIESC into their policy and programming. This paper explores what these UN entities have been doing to respect, protect, promote, and fulfill the rights of lesbian, gay, bisexual, transgender, and intersex (LGBTI) people. It looks at how the UN’s work on SOGIESC has intersected with its work on human rights, global public health, development, humanitarian affairs, peace and security, and gender. It also assesses what has been driving forward policy and programming on SOGIESC and the barriers that have held back further progress. The paper concludes with recommendations for the UN Secretariat, UN agencies, funds, and programs, supportive UN member states, and LGBTI activists across five areas: Building the human resources needed to institutionalize the UN’s work on SOGIESC; Making the UN a safe and accepting workplace for LGBTI people; Mainstreaming and coordinating work on SOGIESC; Strengthening partnerships between the UN and other actors; and Continuing to expand policy and programming on SOGIESC into new areas.
Topic:: Gender Issues, Human Rights, United Nations, Inequality, Sustainable Development Goals, LGBT+, Peace, and Transgender
Political Geography:: Global Focus

34. Walking a Tightrope: The Transition from UNAMID to UNITAMS in Sudan

Author:: Daniel Forti
Publication Date:: 02-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The UN’s transition in Sudan started out in 2014 as a process to close the African Union–United Nations Hybrid Operation in Darfur (UNAMID) in the face of waning international support and overwhelming pressure from an autocratic regime. But in 2019, Sudan’s revolution and ongoing political transition radically transformed how the UN engages with Sudan. UNAMID’s closure in December 2020 and the start-up of a new special political mission, the UN Integrated Transition Assistance Mission in Sudan (UNITAMS), now constitute one of the most complex reconfigurations the organization has ever attempted. This paper examines the ongoing UN transition in Sudan, focusing on the establishment of UNITAMS and UNAMID’s exit from Darfur.The paper evaluates the transition across four themes pertinent to the transition of UN peace operations: the creation of a shared political vision for the transition, national engagement in the process, efforts to comprehensively plan the transition, and the dynamics of international financial support and partnerships. In order to sustain the UN’s reconfiguration in Sudan while supporting Sudan’s own political transition, the UN should consider the following: Articulating a forward-looking political compact with Sudan to guide UN support to the political transition; Rapidly expanding support for urgent peacebuilding and protection priorities in Darfur; Continuously evaluating the UN’s operational presence and substantive impact outside of Khartoum; Encouraging the Sudanese government to provide regular updates on the implementation of the Juba Peace Agreement and its national protection of civilians plan; Providing frequent, detailed assessments of UNAMID’s drawdown and liquidation; Undertaking a nationwide campaign to raise awareness of UNITAMS; and Considering additional reforms to the UN’s peace and security pillar on mission planning processes. In addition, to support the efforts of the UN and the Sudanese transitional government, UN member states could consider the following: Increasing financial support to coherently address Sudan’s peacebuilding and development needs; Maintaining a close relationship between the UN Security Council and the AU Peace and Security Council on Sudan; and Sustaining international attention on Sudan’s transition and maintaining UN support.
Topic:: United Nations, Peacekeeping, and Transition
Political Geography:: Africa and Sudan

35. At the Nexus of Participation and Protection: Protection-Related Barriers to Women’s Participation in Northern Ireland

Author:: Catherine Turner and Aisling Swaine
Publication Date:: 06-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The protection of women in armed conflict and their participation in peace and security activities are central pillars of the women, peace, and security (WPS) agenda. Overall, however, the WPS agenda has overlooked the relationship between participation and protection. This perpetuates a false binary between the participation of women as leaders with agency and the protection of women as victims of conflict. It also misses the gendered, context-specific, and conflict-related protection risks that accompany women’s participation. Finally, it overlooks the critical link between the harms women experience and their low levels of representation. This paper considers the intersection between women’s participation and protection in the context of Northern Ireland. While often assumed to be free of “global policy” concerns such as WPS, Northern Ireland starkly illustrates the intrinsic connections and tensions between women’s leadership and protection in conflict and post-conflict situations. After providing an overview of these connections and tensions more broadly, this paper examines the participation and protection of women in Northern Ireland since the 1998 Good Friday Agreement. It draws from twenty-five semi-structured interviews with women in leadership positions in Northern Ireland. The paper concludes that gender inequalities and gendered insecurities intersect with sectarianism, the legacy of violence, and political crises arising from power-sharing arrangements under the peace agreement. These, in turn, intersect with emerging technologies such as social media to stymy women’s participation across all areas of post-conflict political life. While these findings underscore the continued relevance of the WPS agenda, they also signify that deeper engagement with gendered protection issues is required if the agenda is to substantively advance women’s equality and participation in the longer term.
Topic:: Security, Gender Issues, Women, and Peace
Political Geography:: Europe and Northern Ireland

36. The UN’s Response to the Human Rights Crisis After the Coup in Myanmar: Destined to Fail?

Author:: Damian Lilly
Publication Date:: 06-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Since seizing power in a coup on February 1, 2021, Myanmar’s military has launched a violent crackdown against anti-coup protesters—a campaign of terror that may amount to crimes against humanity. With violence spreading, there are fears that the country is slipping toward full-scale civil war and state collapse. The international community has appeared almost powerless to respond to this human rights crisis, reflecting a broader weakening of its resolve to prevent and respond to atrocity crimes over the last decade. This policy paper analyzes the human rights crisis created by the coup in Myanmar and assesses the response of the UN, within the context of broader international efforts, when viewed against the many commitments that have been made to protect people from atrocity crimes. The first section outlines the different elements of the human rights crisis and the violations that have been occurring. The second section places the events in Myanmar in the context of international commitments, including by the UN, to address atrocity crimes. The third section reviews the human rights tools that are at the disposal of the UN to understand what works and what does not and to highlight innovative ways to address such a challenging situation. The paper concludes with proposals for what an agenda for protection in Myanmar might entail, building on the ambitious Call to Action for Human Rights launched by the UN secretary-general in 2020. The unfolding tragedy in Myanmar is one of the first major tests of the secretary-general’s initiative, and so far, the UN’s response—both as an intergovernmental body of member states and as a system of operational entities—has been woefully inadequate. While there is no simple recipe for halting the atrocity crimes, the UN could take a combination of measures at several levels: Grounding the response in a political strategy; Increasing capacity for human rights monitoring and quiet diplomacy; Providing clear leadership that encourages a less risk-averse approach; Devising a whole-of-system approach to the UN’s response; Scaling up protection services; and Supporting existing nationally or locally-led protection efforts.
Topic:: Human Rights, United Nations, Coup, Civilians, and Responsibility to Protect (R2P)
Political Geography:: Southeast Asia and Myanmar

37. Considering the Protection of Civilians during UN Peacekeeping Transitions

Author:: Damian Lilly
Publication Date:: 01-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: In contrast to recent transitions, the next wave of UN peacekeeping transitions is set to occur in contexts where civilians continue to face threats of physical violence. These transitions are likely to have major implications for the protection of civilians (POC), which should be a key consideration for the UN when planning these missions’ exit strategies. As the mandate of a UN peacekeeping operation draws to an end and the UN reconfigures its presence, the strategic goals of POC will evolve. To ensure sound exit strategies, missions should revise their protection priorities and approaches as countries move from crisis management toward peacebuilding. This requires shifting from a military-dominated to a civilian-led approach to POC in coordination with humanitarian, development, and other peace actors. It also requires defining the target end state for POC—a difficult task due to political sensitivities and the technical challenges of assessing ongoing threats to civilians. In addition, exit strategies need to focus on enhancing national ownership and leadership of POC, as states ultimately have the primary responsibility for protecting their civilian population. Beyond these strategic considerations, the UN also needs to reconfigure its operational approach to POC both during peacekeeping transitions and after a mission’s closure. Under tier 1 of the UN Department of Peace Operations’ (DPO) POC concept (protection through dialogue), the UN needs to prioritize political engagement with host states and ensure that the mission’s followon presence continues to address POC in its political strategy and has adequate capacity in areas such as human rights monitoring. Under tier 2 (provision of physical protection), transferring tasks to host-state authorities without falling off a “physical protection cliff” requires delicate negotiations and significant capacity building. Finally, tier 3 (establishment of a protective environment) increases in importance as the strategic goals of a mission shift toward enhancing national ownership of POC and addressing the root causes of threats to civilians. Twenty years on from the Security Council first mandating a UN peacekeeping operation to protect civilians, the UN’s approach to POC is entering a new phase in which missions are being called upon not only to respond to threats to civilians but also to plan for their exit and a shift toward peacebuilding. To avoid the premature departure of UN peacekeeping operations when civilians continue to face threats, the UN should develop a system-wide strategy to ensure smooth and sustainable peacekeeping transitions.
Topic:: Human Rights, United Nations, Peacekeeping, and Civilians
Political Geography:: Global Focus

38. Women, Peace, and Security Mandates for UN Peacekeeping Operations: Assessing Influence and Impact

Author:: Lisa Sharland
Publication Date:: 01-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Peacekeeping mission mandates now routinely include language on women, peace, and security (WPS). Despite this progress, negotiations in the Security Council on the inclusion of WPS language in mandates have at times been contested, and it is not always clear that more detailed or “stronger” language on WPS in mandates translates to changes in peacekeeping missions. The language included in mandates can even perpetuate stereotypes, including the assumption that every uniformed woman is responsible for implementing a mission’s WPS mandate. This paper explores the different elements of the WPS agenda that are included in peacekeeping mandates, assesses the factors that influence the inclusion of language on WPS, examines the drivers behind the implementation of the WPS agenda in the field, and assesses the impact that mandate language has on uniformed women peacekeepers. It concludes by considering how the Security Council and other stakeholders could advance the WPS agenda through mission mandates, including by: Proposing WPS language early in the Security Council’s mandating process; Facilitating engagement between country experts and WPS experts in member states’ permanent missions to the UN; Using informal consultations to understand the needs of women affected by conflict; Including language in mandates that reflects the contributions of both women and men to operational effectiveness; and Ensuring that approaches to WPS in the Security Council consider the full spectrum of gender.
Topic:: Security, United Nations, Women, Conflict, Peace, and UN Security Council
Political Geography:: Global Focus

39. UN Peacekeeping Operations and Gendered Threats to the Protection of Civilians

Author:: Laura Cuzzuol and Welmoet Wels
Publication Date:: 02-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The intersection between the protection of civilians (POC) and gender has been addressed in Security Council resolutions on POC and on women, peace, and security (WPS) since the late 1990s. Nonetheless, understanding how POC and gender converge, and translating this convergence into implementable action plans, are challenging tasks for peacekeeping missions. One challenge is that neither UN policies on POC in peacekeeping nor UN policies on making peacekeeping gender-responsive focus on the intersection between POC and gender. Likewise, the language in peacekeeping mandates does not always include firm and clear language related to gendered POC threats. At the mission level, POC strategy documents vary greatly in the extent to which they mention gender mainstreaming, and few provide concrete guidance. Accordingly, most missions do not undertake a structured, gendersensitive analysis of threats. When they do, they often focus on sexual and gender-based violence against women, with less attention to other gendered POC threats or POC threats to men, boys, and girls. Moreover, many missions do not systematically disaggregate POC-related data by sex, age, and other relevant demographic factors. Another challenge is the lack of coherence within the UN and between the UN and other stakeholders in conceptualizing and responding to gendered POC threats. While there are conversations on gendered POC threats within missions, and, to some extent, with interlocutors outside of missions, these usually amount to a relatively shallow form of coordination. To ensure the sustainability of their efforts to address gendered POC threats, missions also have to work with national and local actors. While there are many examples of missions grounding their POC work in local structures, it is difficult for missions to sustainably address gendered POC threats that are culturally grounded. To address these challenges, UN peacekeeping missions could consider developing “safeguarding frameworks” on the intersection of POC and gender. These frameworks could provide more detailed guidance that challenges the conflation of “gender” and “women” and the association of gender-related protection primarily with sexual violence. They could also dictate that missions need to assess the gender aspects of every threat and could help move missions from coordinating to integrating their work on POC and gender.
Topic:: Gender Issues, United Nations, Peacekeeping, and Civilians
Political Geography:: Global Focus

40. Youth Participation in Global Governance for Sustaining Peace and Climate Action

Author:: Masooma Rahmaty and Jimena Leiva Roesch
Publication Date:: 04-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Youth movements have played an increasingly prominent role in calling for action to address climate change. Many youth-led organizations are also engaged in initiatives to build peace in their communities. In global policymaking fora, however, youth remain sidelined. The sidelining of youth peacebuilders and climate activists can be attributed to four main factors. First, there are widespread misperceptions of youth grounded in age and gender stereotypes. Young men are often seen as perpetrators of violence, while young women are seen as passive victims. These misperceptions can lead policymakers to adopt a securitized approach to youth, peace, and security and overlook the efforts of young peacebuilders. In some cases, the perception that young activists are a threat to national security can also put them at risk. Second, global policy frameworks on youth are outdated and piecemeal. While the UN Security Council has passed three resolutions on youth, peace, and security since 2015, there is no comparable framework for youth and sustainable development or climate action. Moreover, there is no overarching global framework on youth that links the youth, peace, and security and youth climate action agendas. Third, youth organizations and activists are underfunded. Much of the work that young people do is voluntary. While there are some initiatives to direct more funding toward youth-led organizations, funding largely remains ad hoc, and many organizations lack the capacity to meet the onerous application and reporting requirements. Finally, youth have weak institutional links to global governance fora. There are some mechanisms for consulting and involving youth, including the secretary-general’s global envoy on youth, the UN-coordinated Global Coalition on Youth, Peace and Security, and the Youth Constituency of the UN Framework Convention on Climate Change. However, youth have no direct decision-making role in the work of the UN and its member states, and engagement is often ad hoc. To build peace and tackle climate change, governments and multilateral institutions must shift toward inclusive governance systems that involve and empower youth. They must also consider the synergies between youth, climate, and peace.
Topic:: Climate Change, Governance, Youth, and Peace
Political Geography:: Global Focus

41. Transitions from UN Special Political Missions to UN Country Teams

Author:: Agathe Sarfati
Publication Date:: 04-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The UN Department of Political and Peacebuilding Affairs (DPPA) currently manages twenty-five special political missions (SPMs) that have a field presence. Nonetheless, research and guidance on UN transitions has mainly focused on peacekeeping operations. This paper takes a first step toward filling that gap by exploring transitions from SPMs to UN country teams (UNCTs). Focusing on the programmatic and political aspects of transitions, this paper explores the particular challenges of transitioning from an SPM to a UNCT by studying the closure of four missions: the United Nations Mission in Nepal (UNMIN) in 2011, the United Nations Office in Burundi (BNUB) in 2014, the United Nations Integrated Peacebuilding Office in Sierra Leone (UNIPSIL) in 2014, and the United Nations Integrated Peacebuilding Office in Guinea-Bissau (UNIOGBIS) in 2020. After presenting the main characteristics of SPMs, it discusses some of the challenges and characteristics of SPM transitions based on the four case studies. These four case studies show that the drawdown of special political missions with a field presence shares several features with the drawdown of peacekeeping missions, but some aspects are specific to SPMs. In the coming years, the UN will need to develop a more comprehensive picture of the key elements to take into consideration during SPMs’ lifecycles and transitions, as well as specific guidance on the transition of SPMs. This could help the UN deliver a “continuum of responses and smoother transitions” while supporting national priorities.
Topic:: United Nations, Peacekeeping, and Transition
Political Geography:: Global Focus

42. Protection, Justice, and Accountability: Cooperation between the International Criminal Court and UN Peacekeeping Operations

Author:: Shilpa A. Venigandla
Publication Date:: 05-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Most countries that host UN peacekeeping operations face an impunity gap. Their national courts often lack the capacity to prosecute international crimes such as genocide, crimes against humanity, war crimes, and grave violations of human rights. As a result, special or hybrid courts and international courts, like the International Criminal Court (ICC), often have to step in. In such contexts, some UN peacekeeping operations have been mandated by the UN Security Council to support justice, fight impunity, and pursue accountability, mainly in support of national justice mechanisms. This issue brief focuses on cooperation between UN peacekeeping missions and the ICC. After discussing the impunity gap when it comes to international criminal justice, it outlines frameworks that provide a foundation for cooperation between the ICC and the Security Council. It then explores the benefits of cooperation and the political barriers and conflict dynamics that have prevented UN peacekeeping operations from fully assisting the ICC. The paper concludes by considering how the protection of civilians (POC)—particularly the establishment of a protective environment—could provide opportunities for cooperation between peacekeeping operations and the ICC in pursuit of a more coherent approach to international justice. Given that international justice reinforces protection mandates, POC could serve as a guiding principle for peace operations’ future support to international criminal justice. By reflecting and building on best practices and lessons learned from previous challenges, peacekeeping operations can more effectively pursue international justice and ensure the sustainability of their protection efforts.
Topic:: United Nations, Peacekeeping, Rule of Law, Accountability, Justice, and International Criminal Court (ICC)
Political Geography:: Global Focus

43. Perceptions and Lived Realities of Women Police Officers in UN Peace Operations

Author:: Liezelle Kumalo
Publication Date:: 06-2021
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Over the past decade, the UN has undertaken several initiatives to increase the number of women police officers deployed to peace operations. Collectively, these initiatives have increased the proportion of women police officers deployed to UN missions. However, women police still face challenges deploying to missions and effectively contributing to mission mandates. This paper interrogates the experiences, concerns, and needs of women police officers deployed to UN peace operations. First, it analyzes progress on including more women in UN police forces. Second, it provides arguments for including more women police officers. Third, it describes the multifaceted challenges that women police officers face both before and during deployment. Finally, it provides recommendations for how police-contributing countries (PCCs) and the UN can move toward a shared, sustainable approach to the full, equal, and meaningful participation of women police officers in peacekeeping. While the UN often argues for deploying more women peacekeepers because they will increase missions’ operational performance, this rationale risks reinforcing some of these challenges by perpetuating stereotypes about the role of women in missions. Missions should instead focus on women police officers’ right to deploy. To ensure women have this right, both PCCs and missions need to foster an enabling working environment and address structural barriers to women’s participation.
Topic:: Security, United Nations, Peacekeeping, Women, Peace, and Police
Political Geography:: Global Focus

44. Sharing the Burden: Lessons from the European Return to Multidimensional Peacekeeping

Author:: Arthur Boutellis and Michael Beary
Publication Date:: 01-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Since 2013, after years of near absence from the continent, a number of European countries, along with Canada, have again deployed to UN peacekeeping missions in Africa. The European presence in UN peacekeeping in Africa is now nearly at its largest since the mid-1990s. These countries provide much-needed high-end capabilities, as well as political and financial capital, to UN peacekeeping operations. Nonetheless, securing and sustaining European contributions to these types of peacekeeping operations remains an uphill battle for the UN. This paper draws lessons from this renewed engagement by European countries and Canada, both from their point of view, as well as from that of the UN Secretariat, UN field missions, and other troop contributors. It aims to explore how these bodies and other countries can best work together in a collective endeavor to improve UN peacekeeping’s efficiency and effectiveness. Toward this end, the paper recommends a number of actions to the UN Secretariat: Build peacekeeping operations around first-class medical systems; Focus on improving processes for casualty evacuation; Strengthen the UN’s capacity to foster partnerships among troop-contributing countries; Engage Europe strategically and politically; Be flexible and make European contributors (and others) feel included in planning; Continue educating European contributors about UN peacekeeping; Do not limit engagement with European contributors to high-end capabilities; Ensure European contributors adhere to UN standards; and Encourage European contributors to commit to longer deployments.
Topic:: United Nations, Peacekeeping, and Multilateralism
Political Geography:: Africa, Europe, and Canada

45. Protection through Policing: The Protective Role of UN Police in Peace Operations

Author:: Charles T. Hunt
Publication Date:: 02-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Since first deployed in 1960, United Nations police (UNPOL) have consistently been present in UN missions and have become increasingly important to achieving mission objectives. Since 1999, these objectives have often included the protection of civilians (POC), especially in places like the Central African Republic, Darfur, the Democratic Republic of the Congo, Mali, and South Sudan. But despite its rise in prominence, the protective role of UNPOL is generally undervalued and regularly overlooked, and missions have tended to overly rely on militarized approaches to POC. This report examines the roles and responsibilities of UNPOL regarding POC. It outlines UNPOL’s contributions to POC and perceived comparative advantages, using examples of their role as compeller, deterrent, partner, and enabler. It also identifies and draws lessons from challenges to police protection efforts, including ambiguous mandates, policies, and guidance; poor coordination; problematic partnerships; and deficits in capabilities, capacities, and tools. Drawing on these lessons from past and current deployments, the report proposes recommendations for how member states, the Security Council, the UN Secretariat, and field missions can improve UNPOL’s efforts to protect civilians going forward. These recommendations include: Clarifying the role of UN police in POC through mandates, policies, guidance, and training to align the expectations of UN peace operations, the Secretariat, and member states for what UNPOL are expected to do; Involving all UN police in POC and giving them a voice in decision making and planning to infuse whole-of-mission POC efforts with policing perspectives and empower UNPOL to act more readily; Enhancing partnerships between UN police, host states, and other mission components to enable more responsive, better coordinated, and more comprehensive approaches to POC; and Providing more appropriate and more flexible capabilities, capacities, and tools to address critical capabilities gaps and adapt existing resources to better meet UNPOL’s latent potential for POC.
Topic:: Security, United Nations, Peacekeeping, Reform, Rule of Law, Civilians, and Police
Political Geography:: Africa, Darfur, Mali, South Sudan, Central African Republic, and Congo

46. Finding the UN Way on Peacekeeping-Intelligence

Author:: Sarah-Myriam Martin-Brûlé
Publication Date:: 04-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The growing number of UN personnel deployed to missions in violent, volatile, and complex settings has pushed the UN to take all means necessary to improve the safety and security of its staff and of civilians under its protection. The UN’s Peacekeeping-Intelligence Policy, which was first developed in 2017 and later revised in 2019, has been a central part of these efforts. This paper outlines the difficulties of creating and implementing this policy. It addresses the origin and evolution of UN peacekeeping-intelligence as a concept and explains the need for this policy. It then discusses how peacekeeping-intelligence was and is being developed, including the challenge of creating guidelines and trainings that are both general enough to apply across the UN and flexible enough to adapt to different missions. Finally, it analyzes challenges the UN has faced in implementing this policy, from difficulties with coordination and data management to the lack of a sufficient gender lens. The paper recommends a number of actions for UN headquarters, peace operations, and member states in order to address these challenges: Optimize tasking and information sharing within missions by focusing on senior leaders’ information needs; Harmonize the content of peacekeeping-intelligence handbooks with standard operating procedures while ensuring they are flexible enough to account for differences among and between missions; Refine criteria for recruiting civilian and uniformed personnel with intelligence expertise and better assign personnel once they are deployed; Improve retention of peacekeeping-intelligence personnel and encourage member states to agree to longer-term deployments; Tailor peacekeeping-intelligence training to the needs of missions while clarifying a standard set of UN norms; Apply a gender lens to UN peacekeeping-intelligence; Improve coordination between headquarters and field sites within missions by adapting the tempo and timing of tasking and creating integrated information-sharing cells; and Establish common sharing platforms within missions.
Topic:: Intelligence, United Nations, Peacekeeping, and Civilians
Political Geography:: Global Focus

47. Integrating Human Rights into the Operational Readiness of UN Peacekeepers

Author:: Namie Di Razza and Jake Sherman
Publication Date:: 04-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The effectiveness of UN peace operations depends on the “operational readiness” of their personnel, which refers to the knowledge, expertise, training, equipment, and mindset needed to carry out mandated tasks. While the need to improve the operational readiness of peacekeepers has been increasingly recognized over the past few years, the concept of “human rights readiness”—the extent to which consideration of human rights is integrated into the generation, operational configuration, and evaluation of uniformed personnel—has received less attention. This policy paper analyzes opportunities and gaps in human rights readiness and explores ways to improve the human rights readiness of peacekeepers. A comprehensive human rights readiness framework would include mechanisms to integrate human rights considerations into the operational configuration and modus operandi of uniformed personnel before, during, and after their deployment. This paper starts the process of developing this framework by focusing on the steps required to prepare and deploy uniformed personnel. The paper concludes with concrete recommendations for how troop- and police-contributing countries can prioritize human rights in the force generation process and strengthen human rights training for uniformed peacekeepers. These actions would prepare units to uphold human rights standards and better integrate human rights considerations into their work while ensuring that they deliver on this commitment. Ultimately, improved human rights readiness is a key determinant of the performance of UN peacekeepers, as well as of the UN’s credibility and reputation.
Topic:: Security, Human Rights, United Nations, and Peacekeeping
Political Geography:: Global Focus

48. Sustaining Peace in Burkina Faso: Responding to an Emerging Crisis

Author:: Christian Lara and Gabriel Delsol
Publication Date:: 05-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: In 2017, the UN launched a system-wide effort to support the implementation of the sustaining peace agenda in Burkina Faso. Since then, a rapidly deteriorating security situation and an imminent humanitarian crisis have forced the UN, the Burkinabe government, and their partners to recalibrate their efforts. This ongoing recalibration, together with the changes resulting from the UN development system reforms, makes this an opportune moment to assess the state of efforts to sustain peace in Burkina Faso. This paper examines the implementation of the UN’s peacebuilding and sustaining peace framework in Burkina Faso, looking at what has been done and what is still needed. It focuses on the four issue areas highlighted in the secretary-general’s 2018 report on peacebuilding and sustaining peace: operational and policy coherence; leadership at the UN country level; partnerships with local and regional actors; and international support. Burkina Faso provides lessons for how the UN’s sustaining peace efforts can respond to growing needs without a change in mandate. Continued support for the UN resident coordinator in Burkina Faso is necessary to ensure that these efforts are part of a holistic approach to the crisis, together with local, national, and regional partners. Such support could underpin Burkina Faso’s status as a buffer against spreading insecurity in the Sahel and make the country a model for the implementation of the sustaining peace agenda in conflict-prone settings without UN missions.
Topic:: Development, United Nations, Peacekeeping, Peace, Sustainability, and Humanitarian Crisis
Political Geography:: Africa and Burkina Faso

49. With or Against the State? Reconciling the Protection of Civilians and Host-State Support in UN Peacekeeping

Author:: Patryk I. Labuda
Publication Date:: 05-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Contemporary UN peace operations are expected to implement ambitious protection of civilians (POC) mandates while supporting host states through conflict prevention, peacemaking, and peacebuilding strategies. Reconciling these people-oriented POC mandates and the state-centric logic of UN-mandated interventions ranks among the greatest challenges facing peace operations today. This report explores how peace operations implement POC mandates when working with, despite, or against the host state. It analyzes the opportunities, challenges, and risks that arise when peacekeepers work with host states and identifies best practices for leveraging UN support to national authorities. The paper concludes that peacekeeping personnel in each mission need to decide how to make the most of the UN’s strengths, mitigate risks to civilians, and maintain the support of government partners for mutually desirable POC goals. The paper offers seven recommendations for managing POC and host-state support going forward: Persuade through dialogue: Peace operations should work to keep open channels of communication and better prepare personnel for interacting with state officials. Leverage leadership: The UN should better prepare prospective mission leaders for the complex POC challenges they will face. Make capacity building people-centered and holistic: The UN should partner with a wider group of actors to establish a protective environment while reconceptualizing mandates to restore and extend state authority around people-centered development initiatives. Induce best practices: Missions should leverage capacity building and other forms of support to promote national ownership and foster best practices for POC. Coordinate pressure tactics: Peace operations should make use of the full spectrum of bargaining tools at their disposal, including pressure tactics and compulsion. Deliver coherent, mission-specific messaging on the use of force: The UN should improve training, political guidance, and legal advice on the use of force, including against state agents. Reconceptualizing engagement with states on POC as a “whole-of-mission” task: The UN Secretariat should articulate a vision and mission-specific guidelines for partnerships with host governments on POC.
Topic:: United Nations, Peacekeeping, and Civilians
Political Geography:: Global Focus

50. Financing the United Nations Secretariat: Resolving the UN’s Liquidity Crisis

Author:: Wasim Mir
Publication Date:: 03-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The UN is currently facing its most challenging financial situation in nearly two decades. Despite taking emergency measures to reduce spending, the UN Secretariat’s severe liquidity problems have been getting progressively worse, to the point where they are starting to affect the UN’s ability to carry out its mandates. The main cause of this crisis is the late payment and nonpayment of member-state contributions. This issue brief breaks down the reasons why certain member states have not been paying in full or on time, which include the withholding of payments to express concerns about specific UN activities and domestic financial difficulties. It then considers the proposals the secretary-general has put forward to address the crisis: replenishing the existing reserves, incentivizing member states to make timelier payments by invoking Article 19 of the UN Charter sooner, and limiting the General Assembly’s use of creative measures to reduce spending. Since these proposals currently have little backing from member states, the paper also suggests looking at alternative approaches, including allowing the UN Secretariat to borrow commercially or pool cash balances. As the domestic dynamics that lead to late payment and nonpayment will not change quickly, the paper urges member states not to ignore the issue and hope that it will resolve itself. They need to urgently consider what measures could help mitigate the crisis as soon as possible.
Topic:: United Nations, Financial Crisis, and Finance
Political Geography:: Global Focus

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COLUMBIA UNIVERSITY PRESS