Publishing Institution: International Peace Institute / Publication Year: 3 selected / Topic: United Nations

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. 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

5. 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

6. 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

7. 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

8. 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

9. 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

10. 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

11. 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

12. 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

13. 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

14. 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

15. 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

16. 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

17. 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

18. 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

19. 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

20. 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

21. 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

22. 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

23. 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

24. 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

25. 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

26. 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

27. 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

28. 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

29. 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

30. 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

31. 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

32. 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

33. 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

34. 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

35. 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

36. 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

37. 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

38. 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

39. 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

40. Operationalizing the Sustaining Peace Agenda: Lessons from Burkina Faso, Liberia, and Papua New Guinea

Author:: Agathe Sarfati
Publication Date:: 06-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The twin resolutions on peacebuilding and sustaining peace adopted by the General Assembly and Security Council in 2016 made a breakthrough in the UN’s conception of peacebuilding. Significant work has since been undertaken to reconfigure the UN system to work toward the implementation of these resolutions, and the UN Peacebuilding Commission has launched a comprehensive review of the peacebuilding architecture to be completed in 2020. To inform this review, this issue brief synthesizes findings related to the operationalization of the peacebuilding and sustaining peace resolutions at the country level. These findings emerged from three case studies published by IPI on Liberia, Papua New Guinea, and Burkina Faso. The operationalization of sustaining peace is assessed across four areas: (1) operational and policy coherence; (2) leadership, accountability, and capacity; (3) financing; and (4) partnerships. The paper concludes that much of the focus to date has been on improving the effectiveness of how the UN delivers its mandates on peacebuilding and sustaining peace. To fully realize the vision of the sustaining peace agenda, its operationalization must increasingly focus on the impact of these efforts. This requires questioning and testing the theory of change underpinning these operational reforms to ensure the UN is effectively helping societies build the foundation for sustaining peace.
Topic:: United Nations, Peace, and UN Security Council
Political Geography:: Africa, Liberia, Papua New Guinea, and Burkina Faso

41. Unpacking the UN’s Development System Reform

Author:: Lesley Connolly and Jimena Leiva Roesch
Publication Date:: 07-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: On January 1, 2019, a far-reaching reform of the UN development system went into effect. This was referred to by the deputy secretary-general as “the most ambitious reform of the United Nations development system in decades.” While this reform has only briefly been in place, questions have already arisen about its implementation and implications. This issue brief aims to contribute to the understanding of this ongoing reform and its significance. It provides a detailed overview of the UN development system reform at the headquarters, regional, and country levels, highlighting why it was undertaken and identifying some of the political and bureaucratic complexities it entails. The report concludes that more than a year into the reform of the UN development system, significant progress has been made, but it is too early to assess the reform’s long-term impact. What is clear, however, is that bringing about change of this scope will require the UN to adapt not only its structure but also its way of working.
Topic:: Development, United Nations, and Sustainability
Political Geography:: Global Focus

42. Implementing the UN Management Reform: Progress and Implications for Peace Operations

Author:: Wolfgang Weiszegger
Publication Date:: 07-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: In September 2017, UN Secretary-General António Guterres proposed a new management paradigm to enable the UN to confront global challenges and remain relevant in a fast-changing world. The new management paradigm would bring decision making closer to the point of delivery, empower managers, increase accountability and transparency, reduce duplicative structures and overlapping mandates, increase support for the field, and reform the planning and budgeting processes. Eighteen months after the management reform came into effect, this paper examines the implementation of the reform and its impact on peace operations from the perspective of both UN headquarters and the field. The paper highlights the current state of the reform, identifies good practices, flags areas for possible improvement or attention, and offers forward-looking recommendations for UN headquarters, mission leaders and managers in the field, global or regional support offices, member states, and staff at large. While the reform is still a work in progress, it has continued to gain momentum, and implementation has become more systematic. Nonetheless, the paper concludes that greater effort must be made to get input from personnel in peace operations to ensure that the reform responds to their needs and constraints. More work is also needed to fully realize the potential of the management reform and ensure that it aligns with parallel reforms underway in the UN peace and security architecture and development system.
Topic:: United Nations, Peacekeeping, Reform, and Accountability
Political Geography:: Global Focus

43. The Peacebuilding Commission and Climate-Related Security Risks: A More Favourable Political Environment?

Author:: Jake Sherman and Florian Krampe
Publication Date:: 09-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Climate change and the associated climate-related security risks increase instability and have significant adverse effects on peacebuilding. Within the UN, however, there is a lack of consensus on which organs are most appropriate to respond to climate-related security risks. Most of the bodies addressing climate change do not address its intersection with peace and security, while many member states have concerns about the role of the UN Security Council on climate change. In this context, the UN Peacebuilding Commission (PBC) seems well placed to complement and advance discussions on climate-related security risks in other UN bodies, including the Security Council. This paper—a joint publication of IPI and the Stockholm International Peace Research Institute (SIPRI)—aims to identify areas and ways in which the PBC is preventing and mitigating climate-related security risks and to map the political positions of PBC members on this topic. It also looks at opportunities for the PBC to strengthen its engagement on climate-related security issues. The paper identifies a number of attributes that uniquely position the PBC as a forum for states to seek international support for addressing climate-related security challenges: it emphasizes national ownership, has a mandate to work across the three pillars of the UN, brings together a wide range of UN organs, and convenes relevant stakeholders from within and outside the UN system. The paper concludes that a gradual but steady approach to addressing climate-related security risks in the PBC is likely to encourage more countries to seek its support on these issues.
Topic:: Security, Climate Change, United Nations, and Peace
Political Geography:: Global Focus

44. Beyond 2020: Exploring the Potential for a Strong UN-AU Peacebuilding Partnership

Author:: Priyal Singh and Daniel Forti
Publication Date:: 09-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Effective and sustainable multilateral peace and security initiatives in Africa depend on a strong partnership between the United Nations and the African Union. While their strategic partnership has grown since 2017, collective peacebuilding efforts still lag behind cooperation in other areas. Different institutional mandates, policy frameworks, and operational practices have led them to carve out distinct roles in the multilateral peacebuilding space, often impeding closer cooperation. This report—a joint publication of IPI and the Institute for Security Studies (ISS)—analyzes the UN and AU’s approaches to peacebuilding and identifies opportunities for a more robust and effective peacebuilding partnership. These include aligning their political strategies, fostering cooperation between the AU Peace and Security Council (AUPSC) and the UN Peacebuilding Commission (UNPBC), reconciling differences in their peacebuilding approaches, securing sustainable financing, and capitalizing on emergent peacebuilding approaches. The paper concludes with recommendations for UN and AU member states and officials: UN and AU member states should build consensus around shared peacebuilding concerns, better institutionalize the working relationship between the AUPSC and the UN Africa Group, and strengthen implementation of the recommendations from the 2018 meeting between the AUPSC and UNPBC. UN and AU officials should include peacebuilding and development personnel in annual engagements on peace and security, explore opportunities for joint analysis and planning for peacebuilding activities, and share more analysis and expertise at the working level.
Topic:: Regional Cooperation, United Nations, Peace, and African Union
Political Geography:: Africa

45. Woman First, Soldier Second: Taboos and Stigmas Facing Military Women in UN Peace Operations

Author:: Lotte Vermeij
Publication Date:: 10-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Despite efforts to increase the participation of women uniformed peacekeepers, military women continue to face taboos and stigmas that are barriers to their inclusion and successful deployment. These range from gender stereotypes that cause military women to face more scrutiny than their male counterparts to difficulties speaking up about discriminatory and sexualized behavior, including racism, sexual harassment, and assault. Being confronted with persistent taboos and stigmas can have far-reaching consequences for military women before, during, and after deployment. This paper, which is based on interviews with 142 military women from fifty-three countries, assesses the taboos and stigmas facing military women at three levels: (1) at the individual and community levels; (2) within their national defense structures; and (3) during deployment to UN peace operations. It also looks at the strategies women use to mitigate these taboos and stigmas and the formal and informal support structures they turn to. The paper concludes with recommendations for national defense structures and the UN: For national defense structures, it recommends improving standards of behavior and accountability, educating men and women on taboos and stigmas, recruiting and retaining more women, proactively reaching out to and selecting women for deployment to peace operations, providing women the support they need, and designing equipment that better suits women’s needs. For the UN Department of Peace Operations, it recommends strengthening narratives on the importance of female peacekeepers, ensuring that all peacekeepers respect UN values, developing mission-specific gender strategies and plans, engaging more firmly with troop-contributing countries, making recruitment and selection processes more gender-sensitive, holding personnel accountable for discriminatory and sexualized behavior, and establishing in-mission support systems.
Topic:: Security, United Nations, Peacekeeping, Women, and Peace
Political Geography:: Global Focus

46. UN Reform and Mission Planning: Too Great Expectations?

Author:: Marc Jacquand
Publication Date:: 11-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Since 2017, the UN system has undergone a historic process of reform at several levels and across many entities. Several of these reforms have either directly aimed at improving the planning of UN missions or included elements that have a significant bearing on mission planning. As the focus shifts from designing to implementing these reforms, it is possible to begin reflecting on whether these aims have been met. This paper takes stock of the various strands of UN reform and explores their impact on the planning of UN missions, drawing on the experiences of four missions that have recently started or transitioned. In addition to the peace and security, management, and development system reforms, it looks at the impact of several other recent initiatives. These include the launch of a series of independent strategic reviews of peace operations, the reinvigorated use of the secretary-general’s transition planning directives, the rollout of the Comprehensive Performance Assessment System, and the establishment of the Executive Committee. The paper concludes by recommending that the UN consider: Tying together the strands of reform related to planning to prevent fragmentation; Making increased and better use of peace and security management mechanisms at the initial stages of planning to ensure that UN leaders have a unified tone and vision; More formally and transparently involving the Security Council in strategic reviews; Clarifying and strengthening the role of all relevant departments and the shared regional divisions in the mission budget process; Repositioning DPO’s planning cell in the Office of Shared Services to move toward a shared planning capacity; and Incentivizing lateral movement of personnel across departments and entities to broaden their perspectives.
Topic:: United Nations, Peacekeeping, Reform, and Transparency
Political Geography:: Global Focus

47. Community Engagement in UN Peacekeeping Operations: A People-Centered Approach to Protecting Civilians

Author:: Harley Henigson
Publication Date:: 11-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: As the practice of the protection of civilians (POC) has evolved in peacekeeping missions, the UN has increasingly focused on “people-centered” approaches. As a result, community engagement has emerged as a core component of POC efforts. By engaging with communities, missions can build trust, gather information, and build a protective environment, ultimately improving their ability to protect civilians. This paper examines the positive implications and impact of this increased focus on community engagement, as well as the challenges and risks it can pose for communities and missions. It analyzes the community engagement activities of the military, police, and civilian components of the UN missions in the Central African Republic, the Democratic Republic of the Congo, Mali, and South Sudan. The paper concludes with recommendations for these four missions, the UN Secretariat, and UN member states on the Security Council: UN member states should continue to refine the language on community engagement in peacekeeping mandates. The UN Secretariat should develop more in-depth modules on community engagement in relevant training materials. Relevant UN stakeholders should explore how missions’ military personnel can improve their community engagement. The UN Secretariat and missions should optimize their use of community liaison assistants. The UN Department of Peace Operations should continue to explore where the unarmed civilian protection methodology could complement community engagement by UN missions.
Topic:: United Nations, Peacekeeping, Civilians, and Community Engagement
Political Geography:: Global Focus

48. Parallel Tracks or Connected Pieces?: UN Peace Operations, Local Mediation, and Peace Processes

Author:: Arthur Boutellis, Delphine Mechoulan, and Marie-Joelle Zahar
Publication Date:: 12-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Track-1 mediation processes have increasingly struggled to deliver comprehensive peace agreements that address fragmented conflict dynamics and include local communities’ needs. As a result, local mediation has increasingly been a focus for the UN, including for UN peace operations. UN peace operations can play an important role in supporting local mediation initiatives, whether these initiatives are separate from, complementary to, or integrated into national processes. This paper considers how local mediation fits into the broader political strategies of UN peace operations. Building on a series of country case studies published by IPI and the UN Department of Political and Peacebuilding Affairs’ Mediation Support Unit, it provides preliminary answers to whether, when, where, and how the UN can engage in local mediation efforts. It explores what capacities the UN would need to increase its engagement in local mediation, what role it can play, and how it could better configure itself and engage in partnerships. While this paper does not advocate for UN peace operations to engage more or less in local mediation processes, it concludes that missions ought to assess whether, when, and how short-term investments in local mediation can contribute to longer-term, sustainable conflict resolution. In each case, they should tailor their role based on informed strategic decisions and appropriate partnerships and as part of a broader effort to strengthen and foster greater coherence in national peace processes.
Topic:: United Nations, Peacekeeping, and Mediation
Political Geography:: Global Focus

49. The Accountability System for the Protection of Civilians in UN Peacekeeping

Author:: Namie Di Razza
Publication Date:: 12-2020
Content Type:: Special Report
Institution:: International Peace Institute
Abstract:: Over the last two decades, UN peacekeeping operations have striven to protect civilians from physical violence. The protection of civilians (POC) is now based on a clear normative and policy framework, and its practical implementation relies on a number of innovative tools, tailored and multidimensional approaches, and the more proactive posture of peacekeepers. On a number of occasions, however, UN missions have failed to prevent or respond to threats despite being aware of the risk, receiving adequate warning of an attack, or being in the proximity when abuses were committed. Numerous reports and investigations into these incidents have highlighted shortcomings in performance and called for more accountability. Despite institutional ambitions, however, there is still limited accountability for the actors involved in protecting civilians. To help address this challenge, IPI undertook a project to map how existing accountability mechanisms in the UN could be applied to peacekeeping missions with POC mandates. Through a combination of desk research and key informant interviews, IPI developed a set of tools to help guide the UN and its member states in building a robust, multi-actor, multilayer “system of accountability for POC.”
Topic:: United Nations, Peacekeeping, Accountability, and Civilians
Political Geography:: Africa, Darfur, Democratic Republic of the Congo, South Sudan, Central African Republic, and Global Focus

50. Mental Health in UN Peace Operations: Addressing Stress, Trauma, and PTSD among Field Personnel

Author:: Namie Di Razza
Publication Date:: 12-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The challenging environments where many contemporary UN peace operations are deployed can take a toll on the mental health of both uniformed and civilian personnel. This has led to increased attention to questions around mental health in peace operations, and in 2018, the UN made mental health and well-being a system-wide priority. Yet two years later, much remains to be done to improve mental health in UN missions. This paper looks at the prevalence of post-traumatic stress disorder (PTSD) and other mental health issues among the military, police, and civilian personnel of UN peace operations. It analyzes the types of stressors and psychological factors affecting personnel in the field, explores the political and institutional challenges to instilling change, and reviews the UN’s response to the mental healthcare needs of field personnel. It concludes with recommendations for the UN to ensure its duty of care for field personnel: Raising the profile of mental health in UN peace operations: The Secretariat and member states should shed light on the difficult conditions facing peacekeeping personnel and better assess the prevalence of mental health issues among staff; strive to reduce the stigma associated with mental health; and come to a clear understanding of their roles and responsibilities in supporting mental health needs. Providing more pre-deployment support: There is a need to train and sensitize personnel on how to recognize mental health issues, symptoms, and coping mechanisms. Preparedness and pre-deployment training on PTSD, trauma, and mental health should be based on minimum standards so that all contingents are equally prepared and equipped. Strengthening support during deployment: Both the Secretariat and member states should uphold their duty of care for personnel in missions, including by fostering a culture of care, offering adequate psychosocial support, and improving human resources arrangements. Continuing to provide support post-deployment: The UN and member states should recognize that their duty of care does not end after field personnel return from deployment. They should continue following up with former personnel to ensure they are receiving the psychosocial support they need through dedicated structures and resources.
Topic:: United Nations, Peacekeeping, Trauma, Mental Health, PTSD, and Stress
Political Geography:: Global Focus

51. UN Peacekeeping Operations and Pastoralism-Related Insecurity: Adopting a Coordinated Approach for the Sahel

Author:: Gabriel Delsol
Publication Date:: 07-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: In recent years, pastoralism has increasingly become associated with violent conflict. In the Sahel, pastoralism-related insecurity is directly linked to macro-level conflict dynamics in contexts with UN peacekeeping missions, including Mali, the Central African Republic, the Democratic Republic of the Congo, Darfur, Abyei, and South Sudan. However, the UN system has been slow to adopt a coordinated response to this phenomenon. This issue brief provides a preliminary overview of peacekeeping missions’ efforts to mitigate growing pastoralism-related insecurity in their areas of operation. It analyzes six missions that are active within or near the Sahel region. After framing pastoralism-related security, it explores how the Security Council has addressed this issue in mission mandates. It then looks at how missions have tried to address pastoralism-related insecurity and how they can leverage partnerships with other actors as part of a multi-stakeholder approach. The paper concludes that while peacekeeping missions are not the primary means for addressing the multidimensional drivers of pastoralism-related insecurity, they can help mitigate risks, including through political and logistical support to other actors. Together with these partners, peacekeeping missions should leverage their comparative advantages to help address pastoralism-related insecurity in the Sahel.
Topic:: Security, United Nations, Peacekeeping, and Pastoralism
Political Geography:: Africa and Sahel

52. Gender Trainings in International Peace and Security: Toward a More Effective Approach

Author:: Sarah-Myriam Martin-Brûlé, Stefanie Von Hlatky, Savita Pawnday, and Marie-Joelle Zahar
Publication Date:: 07-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: As more and more states and organizations adopt a gendered approach to international policy, trainings on how to conduct gender-based analysis and integrate gender perspectives into policies and programming have proliferated. But despite this increase in gender trainings, it remains unclear how effective they have been due to challenges related to their design, delivery, targeting, and evaluation. After mapping the ecosystem of gender trainings in the realm of international peace and security, this issue brief unpacks each of these challenges. It concludes with a set of recommendations for improving gender trainings, suggesting that those designing gender trainings should consider the following: Conducting a preliminary needs assessment to adapt trainings to their audience; Soliciting feedback at every stage of the training, including “live” feedback during the training; Grounding training in local contexts and providing evidence to back up claims; and, Generating self-reflection by both participants and trainers during evaluations.
Topic:: Security, Gender Issues, United Nations, Women, and Peace
Political Geography:: Global Focus

53. Bouncing Back from Rock Bottom: A New Era for the UN Special Committee on Peacekeeping Operations?

Author:: Lisa Sharland
Publication Date:: 10-2020
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The 2020 report of the UN Special Committee on Peacekeeping Operations (C-34) marked the culmination of nearly a decade of efforts to improve the committee’s working methods and deliver a more relevant report. Because the report was restructured around the eight thematic priorities of the Action for Peacekeeping (A4P) initiative, it also helped translate the initiative’s Declaration of Shared Commitments into practice. This was an especially noteworthy achievement considering that the committee had failed to reach consensus on a report just one year prior. This paper explores previous efforts to reform the C-34 and the process of agreeing to reform the working methods and report structure in 2019. It also assesses the contribution of the report’s revised structure and substance to ongoing efforts to support and advance peacekeeping reform. It concludes with lessons that could guide other UN reform initiatives: timing and circumstances matter, there must be an appetite for reform, those leading the reform process must listen and be impartial arbiters, and delegations must be patient and have realistic expectations.
Topic:: United Nations, Peacekeeping, and Reform
Political Geography:: Global Focus

54. Senior Leadership Training in UN Peace Operations

Author:: Kevin S. Kennedy and Laura Powers
Publication Date:: 02-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Due to their unique and complex nature, UN peacekeeping missions depend on effective leadership. Because few, if any, mission leaders have the requisite skills, knowledge, political judgment, and physical and mental stamina upon being selected, they require continuous, institutionalized, and sustained training and learning support. While the Secretariat has undertaken a number of training and learning initiatives, critical gaps remain. This paper identifies these gaps and analyzes obstacles that impede progress in addressing them. It looks at gaps in three broad areas: knowledge of peacekeeping doctrine, policy, and practice specific to UN peacekeeping; knowledge of UN policies and procedures on financial and human resources management; and leadership and team-building skills. To address these gaps, it recommends that the Secretariat prioritize action in several areas: Centralize responsibility for mission leadership training in a single unit; Integrate training into planning and recruitment processes; Provide more sustained support to training; and Employ new tools such as scenario-based exercises for in-mission training.
Topic:: United Nations, Peacekeeping, and Leadership
Political Geography:: Global Focus

55. A Necessary Voice: Small States, International Law, and the UN Security Council

Author:: Adam Lupel and Lauri Mälksoo
Publication Date:: 04-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The international rule-based order has come under threat on multiple fronts. If it continues to deteriorate into an older model based on power politics, small states—by definition vulnerable in a world where only might makes right—are most at risk. This makes them natural defenders of the international order that protects them. How can small countries serve as effective champions of the rule-based order and international law? This paper explores this question by looking at the role of small states on the UN Security Council. The council, with its five veto-wielding permanent members, is perhaps not an obvious place to look at the role of small states. Nonetheless, it presents critical opportunities, as well as difficult challenges, for small states. This paper concludes that small states on the Security Council are well-placed to provide an important, credible voice with moral authority to remind all member states of their obligations under international law, reaffirm normative commitments to compliance, and advocate for a recommitment to a multilateral, rule-based international order. Perhaps not since the founding of the United Nations has that voice been more necessary for all to hear.
Topic:: International Law, United Nations, and UN Security Council
Political Geography:: Global Focus

56. Sustaining Peace in Liberia: New Reforms, New Opportunities?

Author:: Lesley Connolly and Laurie Mincieli
Publication Date:: 05-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The reforms to the UN development system, effective on January 1, 2019, marked the start of a new period for the UN presence in Liberia, making it one of the earliest test cases of a “next generation” UN country team. This comes less than a year after two other transitions: the withdrawal of the UN Mission in Liberia and the inauguration of a new Liberian president. On top of longstanding socioeconomic challenges, these transitions are testing the country’s ability to sustain peace. This paper, a publication of IPI and the Global Partnership for the Prevention of Armed Conflict (GPPAC), examines the implementation of the UN’s peacebuilding and sustaining peace framework in Liberia, 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. It looks specifically at how the UN country team is adapting its strategy and operations in the wake of the recent transitions in Liberia. The changes taking place in Liberia illustrate that efforts to implement the secretary-general’s recommendations are already underway. The UN has implemented a new, innovative model centered on an empowered resident coordinator’s office, which has been able to effectively coordinate its approach with the Liberian government. Nonetheless, this office needs support to ensure that programming is oriented toward conflict prevention and connected to discussions at UN headquarters.
Topic:: Development, United Nations, Reform, Peace, and Transition
Political Geography:: Africa and Liberia

57. Inside the Engine Room: Enabling the Delivery of UN Mandates in Complex Environments

Author:: Marc Jacquand
Publication Date:: 07-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Particularly in the complex environments where it increasingly deploys, the UN depends on a range of functions to implement its mandate. These include but are not limited to provision of security, facilitation of access, medical support, support to staff welfare, logistics, coordination, and risk management. Compared to substantive tasks implemented as part of mandates, these enabling functions, or enablers, have received less scrutiny. As a result, enablers—and their financial costs—are often unknown or misunderstood by member states, donors, and even UN staff. This paper explores these enablers by explaining what they are, why they are needed, how much they cost, and how they are—or should be—funded. It then investigates the challenges the UN needs to tackle to put enablers on a path to sustainable funding, including: Reporting and consolidating data: While data is not the end point, it is a necessary starting point for the UN to engage in dialogue with those who use enablers and those who pay for them. Dedicating the necessary capacity: More spending on enablers is required now if lives and resources are to be saved later. Managing trade-offs: The UN needs to set and articulate clear priorities to guide the difficult trade-offs between different enablers and their associated risks. Integrating operations into planning: Operational planning is critical to avoid retroactive, ad hoc arrangements, especially during mission transitions. Communicating the importance of enablers: Effective communication on the need for enablers is necessary to convince member states and donors to fund them. Ultimately, there must be greater coherence between those who define UN mandates, those who fund them, and those who implement them.
Topic:: United Nations, Capacity, Data, and Operational Planning
Political Geography:: Global Focus

58. Sustaining Peace in Papua New Guinea: Prevention in Practice

Author:: Lesley Connolly and Laurie Mincieli
Publication Date:: 09-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Papua New Guinea is facing two major challenges to peace: a November referendum on the future political status of Bougainville, the site of a brutal conflict from 1989 to 1998; and the recent increase in intercommunal violence in the Highlands region. This makes it an important test case for the UN’s approach to peacebuilding and sustaining peace and the recent reforms to the UN development system. This paper, a publication of IPI and the Global Partnership for the Prevention of Armed Conflict (GPPAC), examines the implementation of the UN’s peacebuilding and sustaining peace framework in Papua New Guinea, 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. Despite ongoing challenges in Papua New Guinea, implementation of the secretary-general’s recommendations on sustaining peace is already underway, offering examples of how to use the UN’s tools and resources to reduce and prevent violence and sustain peace. It reveals the importance of getting a resident coordinator with the right skill set; taking a long-term, preventive approach; building the capacity of government and civil society; ensuring continuous and flexible funding; and working with the Peacebuilding Commission to bring political attention in New York.
Topic:: United Nations, Peace, and Sustainability
Political Geography:: Australia/Pacific and Papua New Guinea

59. Toward a More Effective UN-AU Partnership on Conflict Prevention and Crisis Management

Author:: Daniel Forti and Priyal Singh
Publication Date:: 10-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: The United Nations and the African Union (AU) have worked in tandem since the AU’s establishment in 2002. During this time, their partnership has evolved to focus increasingly on conflict prevention and crisis management, culminating in the 2017 Joint UN-AU Framework for Enhanced Partnership in Peace and Security. But while the organizations’ collaboration on peacekeeping has been extensively studied, other dimensions of the partnership warrant a closer look to understand how to foster political coherence and operational coordination. This report, done in partnership with the Institute for Security Studies (ISS), therefore considers the evolution of the strategic partnership between the UN and the AU, with a focus on their approach to conflict prevention and crisis management. It looks at this partnership at the member-state level in the UN Security Council and AU Peace and Security Council, as well as at the operational level between various UN and AU entities. It also assesses the partnership across several thematic issues, including the AU’s Silencing the Guns initiative; mediation; women, peace, and security; electoral support; peacebuilding and post-conflict reconstruction and development; and youth, peace, and security. Based on this analysis, the paper offers several recommendations to guide UN and AU stakeholders in improving cooperation. These include strengthening council-to-council engagement, working toward a collective approach to conflict prevention and crisis management, creating a dedicated team within the AU Peace and Security Department to support the partnership, better aligning work on peacebuilding and post-conflict reconstruction and development, building momentum on the AU’s Silencing the Guns initiative, and expanding diplomatic capacities to support the partnership.
Topic:: Security, United Nations, Crisis Management, and African Union
Political Geography:: Africa and Global Focus

60. Partners and Competitors: Forces Operating in Parallel to UN Peace Operations

Author:: Alexandra Novosseloff and Lisa Sharland
Publication Date:: 11-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Since the end of the Cold War, the UN Security Council has authorized or recognized the deployment of more than forty parallel forces that operate alongside UN peace operations. As the Security Council has deployed peace operations in increasingly non-permissive environments, the division of labor between UN missions and these parallel forces has blurred, and their goals have sometimes come into conflict. This raises the question of whether they are partners or competitors. This report examines the missions that have operated in parallel to UN peace operations to identify how to strengthen these partnerships in the future. It analyzes and categorizes the types of parallel forces that have been deployed and examines the rationales for deploying them. It also looks at strategic and operational challenges, including the challenges unique to peace operations operating alongside a counterterrorism force. Finally, drawing on lessons from past and current parallel deployments, it offers recommendations for member states, the Security Council, and the UN Secretariat. These include: Strengthening coordination of assessments, planning, and application of UN standards: The UN and actors deploying parallel forces should conduct joint assessments and planning when deploying or reconfiguring missions. The UN Security Council should also engage more regularly with parallel forces and encourage the continued development of human rights compliance frameworks for them. Clarifying roles, responsibilities, and areas of operation: Peace operations and parallel forces should clearly delineate their responsibilities and areas of operation, assess the risks of collocating, and improve strategic communications with the local population. The Security Council should also continue to put in place mechanisms to strengthen the accountability of parallel forces, especially when peace operations are providing support that could contribute to counterterrorism operations.
Topic:: United Nations, Peacekeeping, Armed Forces, and UN Security Council
Political Geography:: Global Focus

61. Navigating Crisis and Opportunity: The Peacekeeping Transition in Darfur

Author:: Daniel Forti
Publication Date:: 12-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: In the face of evolving security dynamics and geopolitical pressures, the African Union (AU) Peace and Security Council and the UN Security Council initiated the withdrawal of the AU-UN Mission in Darfur (UNAMID) in 2017. This transition is a uniquely complex undertaking—all the more so following Sudan’s political revolution in April 2019, which required the UN and AU to rapidly adapt their support to the country. This complex environment is putting all the principles of peacekeeping transitions to the test. This paper examines the dynamics of this peacekeeping transition in Darfur, focusing on UNAMID’s drawdown and reconfiguration, as well as the UN’s efforts to build the capacity of other actors to sustain peace following the mission’s exit. It highlights five broad priorities for this transition going forward: Strengthening political engagement between the UN Security Council and AU Peace and Security Council; Translating the AU-UN joint political strategy into an effective follow-on presence; Reinforcing the transition concept; Integrating human rights and protection in all areas of work; and Sustaining international attention and financial support. This paper is part of a larger IPI project on UN transitions and is complemented by similar case studies on UN peacekeeping transitions in Côte d’Ivoire, Haiti, and Liberia, as well as a paper exploring experiences and lessons from these three transitions.
Topic:: Security, United Nations, Peacekeeping, Geopolitics, Crisis Management, and African Union
Political Geography:: Africa, Darfur, Haiti, Liberia, and Côte d'Ivoire

62. Providing Healthcare in Armed Conflict: The Case of Mali

Author:: Alice Debarre
Publication Date:: 01-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Due to ongoing conflict and insecurity in northern Mali, 1.8 million people require humanitarian health assistance, and 2.5 million are considered food insecure. Given the level of need, Mali’s healthcare system is ill-equipped to respond, and humanitarian health actors play an important role filling the gaps. This issue brief maps the challenges these health actors face and assesses their response. It accompanies a policy paper published in 2018 entitled “Hard to Reach: Providing Healthcare in Armed Conflict,” as well as another case study on provision of healthcare in Nigeria. These papers aim to assist UN agencies, NGOs, member states, and donor agencies in providing and supporting the provision of adequate health services to conflict-affected populations. This issue brief concludes with recommendations for how health actors can improve delivery of health services in Mali: UN agencies, international NGOs, and donors should continue to focus on strengthening and supporting Mali’s community healthcare structures. Military, political, and humanitarian actors need to preserve the humanitarian space in Mali. Relevant UN agencies, local and international health NGOs, donors, and the Ministry of Health should place greater emphasis on noncommunicable diseases, particularly mental health. Humanitarian health actors and donors, as well as development actors and global health actors, should improve coordination with each other on the health response. Humanitarian health actors should better ensure that they are accountable for the health services they provide, in particular to affected populations.
Topic:: Health, United Nations, Peace, and Armed Conflict
Political Geography:: Africa and Mali

63. Pursuing Coordination and Integration for the Protection of Civilians

Author:: Alice Debarre and Namie Di Razza
Publication Date:: 02-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: In recent years, the UN and its member states have promoted comprehensive approaches and integrated structures and processes to improve coherence and consistency between political peacekeeping, humanitarian, human rights, and development efforts undertaken by the UN and its partners. For POC specifically, coordination between the military, police, and civilian components of peace operations; between peace operations and UN agencies, funds, and programs; and between the UN system and other protection actors has been pursued to maximize impact in the field. Joint planning, analysis, and action at these three levels are key to leveraging different types of expertise, tools, and responses in a holistic way in order to better prevent and respond to threats to civilians. However, while the UN’s normative and policy frameworks provide the basis for coordination and organizational arrangements have been set up to facilitate integrated efforts at these three levels, recent developments in the peace and security sphere have reinvigorated the debate over the costs and benefits of integration. Coordination for POC has proven to be increasingly difficult in non-permissive environments where, for example, peacekeepers may be perceived as party to the armed conflict or as having too close or tense a relationship with the host state or non-state actors. Integration in such contexts has led to debates around the preservation of humanitarian space, the independence of human rights advocacy, and the security of actors too closely linked to peacekeeping efforts. This issue brief analyzes the costs, benefits, and challenges of coordinated and integrated approaches to POC in peacekeeping contexts. It considers the added value of mission-wide and system-wide coordination for POC and concerns over comprehensive coordination between peacekeeping and humanitarian actors, which have different rationales and methodologies for protection. In a context of UN reform emphasizing prevention and political strategies, it questions the political and institutional push for more comprehensive POC strategies and reflects on the associated risks. It also offers considerations for how to coordinate and integrate multi-actor efforts in order to better protect civilians.
Topic:: Human Rights, United Nations, Peacekeeping, and Civilians
Political Geography:: Global Focus

64. Incorporating Gender into UN Senior Leadership Training

Author:: Lesley Connolly and Sarah Taylor
Publication Date:: 04-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Comprehensive leadership training is necessary to ensure that peace operations are effective and that senior leaders are prepared for both the daily challenges and the inevitable crises of peacekeeping. A gender perspective is of central importance to such training. However, gender considerations—from gendered conflict analysis to recognition of who is in the room when decisions are made—remain poorly understood at a practical level, including among senior mission leaders. This issue brief discusses what it means to apply a “gender perspective” and the importance of such a perspective for senior leaders to effectively implement mission mandates. It provides an overview of existing gender-related training and preparation techniques for senior leaders, including gaps. It concludes with a series of recommendations on how trainings and approaches to senior leadership training can better reflect these considerations: The current status of gender training for senior leaders should be assessed. Facilitators of trainings should ensure that their curricula address and respond to a peacekeeping workspace dominated by men. Facilitators should be aware that leaders often think they do not need training. Trainings for senior leaders should be designed to reflect the complexity of implementing women, peace, and security obligations in a mission. Efforts to ensure gender parity in senior mission leadership should be strengthened. Gender advisers should be included as formal members of a mission’s crisis management team and play an active role in decision-making bodies. Facilitators should understand the gender dimensions of a given training scenario and be aware of the gender balance among participants. The UN should develop resources for leaders, including key documents and guidance on understanding the gender dimensions of their mission.
Topic:: Security, Gender Issues, United Nations, Women, and Peace
Political Geography:: Global Focus

65. Financing UN Peacekeeping: Avoiding another Crisis

Author:: Wasim Mir
Publication Date:: 04-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: UN peacekeeping missions are facing cash-flow problems and financial strains due to the late payment and withholding of assessed contributions. Since the inception of UN peacekeeping, the financing of missions has been a challenge, with periods of calm followed by periods of crisis. The UN has been particularly vulnerable to withheld and late payments from its biggest financial contributors. This has an impact on missions’ effectiveness and the ability of troop-contributing countries to deploy. This paper examines how member-state contributions to peacekeeping are calculated, historical and current financing challenges faced by peacekeeping missions, and ideas for placing UN peacekeeping on a firmer financial footing. It recommends reevaluating some of the rules and regulations that govern the management of UN peacekeeping. It specifically recommends: Creating a cash reserve for peacekeeping: A new reserve fund or the relaxation of restrictions to use of the existing reserve fund could help manage liquidity problems. Consolidating peacekeeping accounts: Consolidating the accounts for missions would significantly improve cash management and operational flexibility by allowing the Secretariat to borrow between the accounts of different missions. Streamlining budgeting: Aligning the billing process with the budget period would reduce bureaucracy, reducing the burden on both the Secretariat and member states. Incentivizing budgetary discipline: Allowing some flexibility on the crediting of savings to member states could improve liquidity and incentivize missions to be more disciplined in their spending. Encouraging prompt payments: To encourage member states to meet the deadline for payments, they could be penalized for making late payments or given positive incentives to pay on time.
Topic:: United Nations, Peacekeeping, and Finance outlook
Political Geography:: Global Focus

66. Transitioning to National Forces in Somalia: More Than an Exit for AMISOM

Author:: Fiona Blyth
Publication Date:: 04-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: When the African Union Mission in Somalia (AMISOM) deployed in 2007, the AU and the UN Security Council expected that the United Nations would eventually take over from the AU force. But while a UN peacekeeping operation remains a theoretical option for the council, its prospects have diminished. Instead, the focus of Somali and international efforts has shifted to planning for AMISOM to transition directly Somali security forces without an interim UN mission. This issue brief outlines the factors behind this shift in intentions, including the new Somali administration’s commitment to assuming responsibility for security, a general agreement that the time had come for an exit strategy, and the Security Council’s reduced appetite for peace operations. It also lays out the objectives, approaches, and status of implementation of the Somali Transition Plan. Despite steady progress, there is still a long way to go in implementing this plan. Reforms are encountering resistance from vested interests, and al-Shabab poses an ongoing threat. Any sustainable transition from AMISOM must be a long-term project that includes not just a military handover but also political decisions on security and the structure of the state. It also depends on aligning national priorities and international efforts and the willingness of all security actors in Somalia to work together in a pragmatic, transparent, and coordinated way.
Topic:: Security, United Nations, Peacekeeping, Transition, and African Union
Political Geography:: Africa and Somalia

67. Pivoting from Crisis to Development: Preparing for the Next Wave of UN Peace Operations Transitions

Author:: Daniel Forti and Lesley Connolly
Publication Date:: 07-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: UN peace operations are going through an accelerated period of reconfiguration and drawdown. Between June 2017 and March 2018, long-standing peacekeeping missions in Côte d’Ivoire and Liberia closed, while the mission in Haiti was reconfigured into a transitional peacekeeping mission. Looking ahead, the Security Council has mandated the closure of the peacekeeping mission in Darfur and the initial drawdown of the peacebuilding mission in Guinea-Bissau, and its attention is starting to shift to other missions. With these upcoming transitions in mind, this issue brief explores experiences and lessons from recent UN transitions in Côte d’Ivoire, Haiti, and Liberia. Each of these transitions has been the subject of a detailed IPI policy report published as part of IPI’s project on “Planning for United Nations Peacekeeping Operations Transitions.” Drawing on this research, this issue brief recommends how to manage politics and recalibrate policies to better shape future transitions. Its recommendations include to: Adopt shared and long-term political strategies, particularly in Security Council mandates and benchmarks, as well as through regular sharing of assessments from the field. Ensure integration in field-level planning strategies well before the Security Council sets transition timelines, with senior leadership from the mission shaping the vision, driving planning, and providing concrete recommendations for the future UN presence in the country. Strategically engage the host society to align peacebuilding priorities and to communicate the core message that the mission is leaving but the UN is remaining in the country. Engage early to secure adequate financing, capitalizing on debates surrounding the transition while it is still on the Security Council’s agenda. Institutionalize dedicated transition support capacity within the UN system, including policy and programmatic guidance, operational support, planning expertise, and surge capacities. Sustain long-term peacebuilding through partnerships, ensuring that residual peacebuilding challenges are mainstreamed into national development plans and international and regional development frameworks.
Topic:: Development, United Nations, Peacekeeping, Crisis Management, and Transition
Political Geography:: Africa, Haiti, Liberia, and Côte d'Ivoire

68. Preventing Violent Extremism While Promoting Human Rights: Toward a Clarified UN Approach

Author:: Chuck Thiessen
Publication Date:: 07-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: In response to the threat of violent extremism, the UN has adopted a comprehensive approach that involves both aligning ongoing interventions with the goals of preventing violent extremism (PVE) and implementing PVE-specific programming. These initiatives aspire to use human rights-based approaches as opposed to hard-security counterterrorism responses. To date, however, there has been inadequate research on how the UN and other international organizations can promote human rights as part of their PVE programming. This issue brief introduces findings on the strategic shift of UN peacebuilding interventions toward PVE and the barriers these interventions face to protecting human rights, drawing on research conducted in Kyrgyzstan. It concludes that PVE approaches to peacebuilding are fundamentally ambiguous, which may be hindering promotion of human rights. These ambiguities lie both in the terminology and strategies of intervention and in the drivers of radicalization and violent extremism. By clarifying its approach to PVE, the UN can dilute the inherent contradiction in its dual role as a critic and supporter of host states and reduce the odds that its interventions legitimize human rights violations.
Topic:: Security, Human Rights, United Nations, and Violent Extremism
Political Geography:: Central Asia, Kyrgyzstan, and Global Focus

69. Action for Peacekeeping: One Year into the Implementation of the Declaration of Shared Commitments

Author:: Jake Sherman
Publication Date:: 09-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: In September 2018, more than 100 UN member states signed a Declaration of Shared Commitments as part of the secretary-general’s Action for Peacekeeping (A4P) initiative. The declaration was intended to rally member states to address urgent challenges facing contemporary peacekeeping operations. But one year later, the declaration has not yet translated into concrete action by member states, limiting tangible results for missions on the ground. This issue brief takes stock of progress by the UN and member states in implementing A4P over the past year and looks at where there is momentum and where additional political attention is needed. There is consensus that A4P has helped reaffirm the value of peacekeeping. It also provides a roadmap for incremental reform, a platform for sharing good practices, and a framework for identifying progress. Moving forward, however, it needs to be more than a package of preexisting UN priorities; it needs to become a platform through which the secretary-general sets a new approach to strengthening peacekeeping.
Topic:: Diplomacy, International Law, United Nations, Peacekeeping, and Conflict
Political Geography:: Global Focus

70. The Global Pushback on Women’s Rights: The State of the Women, Peace, and Security Agenda

Author:: Sarah Taylor and Gretchen Baldwin
Publication Date:: 09-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: For two decades, the women, peace, and security agenda has been the subject of policy development internationally, regionally, and nationally. But by many indicators, the global status of these commitments to gender equality is under threat. In the multilateral system, a growing number of states are questioning established standards of women’s rights, while international policy and programming struggle to adapt to the gendered implications of the changing nature of conflict. This issue brief takes stock of the state of the women, peace, and security agenda in the current geopolitical context, with a view to supporting strategic advances at the upcoming twentieth anniversary of UN Security Council Resolution 1325 (2000). It looks at characteristics of the current geopolitical context that are of concern to the defense of women’s rights, what these changes have meant for how the international community seeks to build peace and improve security, and how we can evaluate approaches to implementing WPS commitments in relation to these pressures on the multilateral system. The paper concludes that in order for the women, peace, and security agenda to be an effective tool, it must move beyond rhetoric and be woven into actionable policy. It must become a driving force behind the development and implementation of peace and security policy and programming rather than being buffeted by political considerations that elide the status and rights of women. This depends on a sustainable increase in resources and improved accountability within the multilateral system.
Topic:: Security, United Nations, Women, Multilateralism, Accountability, and Peace
Political Geography:: Global Focus

71. Focus on 2020: Opportunities for the Twentieth Anniversary of Resolution 1325

Author:: Sarah Taylor and Gretchen Baldwin
Publication Date:: 10-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: As the twentieth anniversary of UN Security Council Resolution 1325 (2000) on women, peace, and security (WPS) approaches, the ad hoc nature of and limited accountability for implementation of the WPS agenda are undermining its full promise. This is despite increasing recognition that efforts to build and sustain peace are dependent upon the full participation of women and respect for their rights. There is thus a need for concerted, strategic commitment to addressing the remaining gaps in implementation of the WPS agenda. This paper identifies opportunities for the twentieth anniversary of the adoption of Resolution 1325, particularly for the UN Security Council, its member states, and the UN system. It builds on IPI’s scene-setting issue brief “The Global Pushback on Women’s Rights: The State of the Women, Peace, and Security Agenda.” The paper concludes with several steps the UN and the international community can take to support substantive progress on WPS: Use creative mechanisms to increase women’s participation: The multilateral system can support new initiatives such as the regional women mediator networks. Leverage the tools of the UN Security Council: The council should consistently request gender-sensitive analysis and recommendations, mainstream the WPS agenda across all policies, and better integrate the work of the Informal Expert Group on WPS into its daily work. Significantly strengthen accountability: Increasing accountability requires changing the political calculus for engaging on the WPS agenda, particularly at the national level. Move the focus to the field: Dialogue around WPS needs to shift from UN headquarters in New York to focus more on the countries and regions grappling with conflict. Increase financing: Donors should increase their financial commitments to the WPS agenda and ensure funding supports long-term peacebuilding efforts.
Topic:: Security, Gender Issues, Treaties and Agreements, United Nations, Women, and Peace
Political Geography:: Global Focus

72. Lessons for “Partnership Peacekeeping” from the African Union Mission in Somalia

Author:: Paul D. Williams
Publication Date:: 10-2019
Content Type:: Policy Brief
Institution:: International Peace Institute
Abstract:: Deployed to Mogadishu in March 2007, the African Union Mission in Somalia (AMISOM) operates through a complicated and extensive system of partnerships. This has been referred to as the “AMISOM model” of “partnership peacekeeping.” While this specific configuration of forces and mechanisms is unlikely to be repeated, AMISOM remains the longest-standing case of a peace enforcement operation built on such international partnerships. If the AU and UN are going to continue deploying missions into such difficult environments, AMISOM’s experience offers lessons for how partnership peacekeeping can work better. This report summarizes the main operational-level lessons across seven themes: force generation, logistics, security sector reform, protection of civilians, strategic communications, stabilization, and exit strategy. Many of these lessons have not been truly learned, internalized, and acted upon by the actors and organizations in question.
Topic:: Security, United Nations, Peacekeeping, Reform, Partnerships, and Africa Union
Political Geography:: Africa and Somalia

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COLUMBIA UNIVERSITY PRESS