Cedric H. de Coning

The Challenge of Sustaining Peace: Enhancing and Moving Beyond the United Nations' Peacebuilding Architecture

The Role of the Civilian Component in African Union Peace Operations

The role of civilians in African Union (AU) peace support operations (PSOs) is still not fully understood. As a result, civilian capacity development has not been well resourced in comparison with the military and police dimensions of the African Standby Force (ASF) and has only modestly developed since 2006. As at the end of 2016 the AU has deployed approximately 400 civilians across its PSOs in Burundi, the Central African Republic (CAR), Mali, Somalia and Sudan. The average size of the actual civilian component in each mission totalled approximately fifty people. The civilian components most commonly found in AU PSOs are Political Affairs, Human Rights and Protection, Public Information, Humanitarian Liaison, Safety and Security, Civil Affairs, Gender and Mission Support. Despite AU policies and PSO doctrine, the value of a multidimensional approach to PSOs, and the role that civilians perform in this larger context, is not widely recognised in the AU Commission, AU PSOs or among the AU’s key PSO partners. The AU has struggled to articulate clearly why it needs a multidimensional approach, what the function and contribution of the civilian components are, and how the civilians staff contribute to achieving the mandate of a particular mission. This will have to change if the AU is serious about undertaking comprehensive stabilisation operations.

Une volonté partagée de façonner un nouvel ordre mondial

(Kun tilgjengelig på fransk): In the West, the rise of nationalist populism reached a tipping point in 2016 when it generated both the UK vote for Brexit and the election of President Trump in the US. In contrast, over the same period, the BRICS have invested in strengthening inter-BRICS cooperation and the group’s commitment to the United Nations, global governance and economic globalisation. Their primary focus has been on financial, trade and economic cooperation. However, their ability to develop a shared analysis of the political and security dimensions of the global order seems to have come to a turning point in 2017, when they opted to focus their annual Summit on developing strategies to defend global governance, economic globalisation, free trade, and joint action on climate. How did we get to the point where it seems to be up to the BRICS to rescue globalisation ?

Introduction: Why Examine Rising Powers and Peacebuilding?

Over the last decade several setbacks in places like Burundi, Libya, South Sudan and Yemen, to name a few, have significantly eroded the prominence that peacebuilding enjoyed in the international system. The failure of peacebuilding to deliver sustained peace has combined with a push from rising powers against Western dominance, to produce a turn to the Global South as a source for more legitimate and effective responses to mass organized violence in the world. Onto this stage new actors like the BRICS (Brazil, Russia, India, China and South Africa) and several other prominent regional powers in the Global South, like Indonesia and Turkey, have emerged as new ‘donors’ that advance their own political and technical approaches to peacebuilding. The entry of the rising powers into the peacebuilding field are likely to have significant implications for how the UN and other international and regional organisations, as well as both the traditional donors and the recipient countries view peacebuilding in the future. Their entry may fundamentally alter how we understand and undertake peacebuilding a decade or more from now. With this book, we seek to answer the following central question: What exactly is new and innovative about the peacebuilding approach of the rising powers from the Global South, and what are the implications of these new approaches for peacebuilding? In this introductory chapter, we explain why this question is important, and how we have gone about answering it in the book. The introduction thus give the reader an overview of the context, key research questions and the structure of the book.

Conclusion: Are Rising Powers Breaking the Peacebuilding Mold?

In the concluding chapter we analyze the peacebuilding concepts, policies and practices of the group of rising powers - Brazil, India, Indonesia, South Africa and Turkey – that we have chosen to focus on in this book. We find that these countries share a number of approaches, but note that they also diverge in several areas. The rising powers have a broader concept of peacebuilding than most Western donor countries, but the extent to which they equate peacebuilding with development varies. They have a more holistic operational approach, they have a longer time horizon and a strong emphasis on national ownership, but the latter is often narrowed down to governmental consent. They share a heightened sensitivity to sovereignty, but negotiate this in a variety of different ways. We find that the rising powers have influenced the discourse and practices of peacebuilding, especially at the United Nations, but have not transformed them. Several recent setbacks raise doubts about whether rising powers will sustain their new influential role in peacebuilding. Our research show that rising powers have set forth a broadly coherent set of principles and rationales as the basis for their new approach to peacebuilding. These principles and practices, and especially their results, are likely to influence how Western donors, the UN, regional organizations and non-governmental organizations approach peacebuilding in important ways in the coming years.