04.02.10 Escaping Path Dependency
A Proposed Multi-Tiered Approach for the UN’s Peacebuilding Commission
NUPI-notat | 24 sider.
This Working Paper is one of nine essays that examine the possible future role of the UN’s peacebuilding architecture. They were written as part of a project co-organized by the Centre for International Policy Studies at the University of Ottawa and the Norwegian Institute of International Affairs. All of the contributors to the project were asked to identify realistic but ambitious “stretch targets” for the Peacebuilding Commission and its associated bodies over the next five to ten years. The resulting Working Papers, including this one, seek to stimulate fresh thinking about the UN’s role in peacebuilding.
This paper argues that unless the Peacebuilding Commission adopts a ‘multi-tiered approach’ which is designed to better identify and respond to multiple peacebuilding challenges, it will remain a marginal actor in an already overcrowded peacebuilding field.
The Future of the Peacebuilding Architecture Project
>> Summary
The UN’s new peacebuilding architecture was created to address the persistent shortcomings of international support to countries emerging from war and violent conflict. Recognizing that peacebuilding is a multi-dimensional effort involving myriad actors, it was envisaged that the Peacebuilding Commission (and the related Peacebuilding Fund and Peacebuilding Support Office) would serve as catalysts to improve international policies and practices, thereby contributing to sustainable peace.
While the Peacebuilding Commission (PBC) is now well-established, its performance to date has fallen short of expectations. One of the main reasons is the PBC’s pursuit of a ‘standard approach’ in its engagement with countries on its agenda. Every peacebuilding context is unique. Yet the PBC has so far been ‘path dependent’ - replicating the same approach in successive countries. Its efforts have been driven by process rather than substance.
This paper argues that unless the PBC adopts a ‘multi-tiered approach’ which is designed to better identify and respond to multiple peacebuilding challenges, it will remain a marginal actor in an already overcrowded peacebuilding field. A multi-tiered approach would require the PBC to define three existential questions regarding the scope, focus and function of its work. The Commission needs to engage with a range of countries at different points on the non-linear transition from conflict to peace; it needs to focus on peacebuilding outcomes and impact rather than activities and inputs; and finally, it needs to establish itself as a proactive and sought out advisory body. These are consistent with the PBC’s formal mandate. However, they do necessitate a fundamental rethinking of the PBC’s current configurations, instruments, and modes of operation.
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