The UN at War: Peace Operations in a New Era

By John Karlsrud

This book is a critical political and institutional reflection on UN peace operations. It provides constructive suggestions as to how the UN and the international system can evolve to remain relevant and tackle the peace and security challenges of the 21st century, without abandoning the principles that the UN was founded upon and on which the legitimacy of UN peace operations rests. The author analyses the evolving politics on UN peace operations of the five veto powers of the UN Security Council, as well as major troop-contributing countries and western powers. He investigates the move towards peace enforcement and counter-terrorism, and what consequences this development may have for the UN. Karlsrud issues a challenge to practitioners and politicians to make sure that the calls for reform are anchored in a desire to improve the lives of people suffering in conflicts on the ground—and not spurred by intra-organizational turf battles or solely the narrow self-interests of member states. Finally, he asks how the UN can adapt its practices to become more field- and people-centered, in line with its core, primary commitments of protecting and serving people in need.

• Language: English
• Publisher: Palgrave Macmillan
• Release date: Nov 26, 2017
• ISBN: 9783319628585

Book preview

A978-3-319-62858-5_CoverFigure.jpg

John Karlsrud

The UN at WarPeace Operations in a New Era

A417993_1_En_BookFrontmatter_Figa_HTML.png

John Karlsrud

NUPI, Oslo, Norway

ISBN 978-3-319-62857-8e-ISBN 978-3-319-62858-5

https://doi.org/10.1007/978-3-319-62858-5

Library of Congress Control Number: 2017955020

© The Editor(s) (if applicable) and The Author(s) 2018

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Praise for The UN at War

For those who are wondering what relevance UN peacekeeping has today, or what role UN peacekeeping can or should play in resolving twenty-first century conflicts fueled by extremist beliefs, terrorism and debilitating violence and destabilization, Karlsrud offers highly readable, yet analytically rigorous insight on both the opportunities facing UN peacekeeping and the gaps between reality and expectations. Scholars and practitioners alike will find that his orientation to people-centered peacekeeping goes far in broadening their perspective.

- Chiyuki Aoi, Professor, Graduate School of Public Policy, University of Tokyo.

This is an important and timely work that examines UN peace operations in an evolving international context. It takes on the thorny issues of a changing global geopolitical balance of power and the shifting priorities of key states involved in peacekeeping; the gaps between what is asked and expected of missions and the will and resources given to them; the obstacles to but potentially enormous benefits of using new technologies in peace operations; if - and how - the UN should address new security challenges, including terrorism and violent extremism; and how to make peace operations more responsive to the needs of the people they seek to help. Karlsrud’s analysis is detailed but succinct and hard-hitting, and this book will have notable import for those who work for, watch, and study the UN as it continues its mission to maintain peace and security around the world.

- Dr Sarah B. K. von Billerbeck, Lecturer in International Relations, University of Reading.

John Karlsrud provides a timely and cogent analysis of changing peacekeeping practice, especially with regard to the use of force, the many definitions of stabilization, and the potentially increasing connection to counterterrorism. Highly recommended for those interested in assessing the overall significance of these trends in light of core peacekeeping principles as Karlsrud also examines what the UN should want its peacekeeping to be.

- Dr Ingvild Bode, Lecturer in International Relations, University of Kent, UK.

A comprehensive and current overview that succinctly and clearly covers the main challenges facing peace operations at a time of transition. This work will be of use to students and policy-makers alike.

- Jane Boulden, Professor, Department of Political Science, Royal Military College of Canada

The UN at War is a thought provoking and timely contribution to current policy debates around the use and abuse of United Nations’ peace and security tools, which adequacy and relevance are increasingly questioned in the face of contemporary challenges they are thrown at in places where there is little or no peace to keep. John Karlsrud strikes a rare balance of scholarly and practical analysis of the dilemmas, doctrinal and political debates that will be determinant for the future of UN peace operations.

- Arthur Boutellis, Director of the Brian Urquhart Center for Peace Operations at the International Peace Institute (IPI).

This book comprehensively analyses the dilemmas facing UN peace operations, and examines the most controversial trend: the gradual slide towards peace enforcement. Karlsrud warns against the shift towards Chapter 7½ solutions, where regional enforcement forces are used under the UN banner. He argues that the UN should deal proactively with spoilers at the tactical level, but refrain from operational and strategic level enforcement. Instead the UN must ensure that it continues to carve out space for political and prevention-orientated responses. If you are looking for one book that explains the state of UN peace operations in the first quarter of the 21st century, this is it.

- Cedric de Coning, Senior Research Fellow, Norwegian Institute of International Affairs (NUPI)

Peacekeeping is a much more complex affair than it used to be. This book vividly illustrates the ambiguity and nuance of modern UN peace operations.

- Jim Della-Giacoma, former Editor-in-Chief, Global Peace Operations Review, New York University.

John Karlsrud gives an excellent in depth overview of the evolution of peacekeeping and what is required in the future. It describes and analyses the increasing threat in missions where sometimes there is not even a peace to keep. Fundamental questions are discussed such as should the UN update its principles and practices to a new context—or are existing principles and practices still valid? What will be the role of the Western countries and regional organizations in this volatile environment? The hot item of the Protection of Civilians (POC) in all of the Chapter VII operations and the use of force are widely discussed. This book is an excellent tool for commanders, junior and senior, during pre-deployment training and at Staff Colleges for a better understanding what the challenges are in UN peace operations and the differences in regional led operations such as NATO, EU or AU.

- Maj. Gen. (ret.) Patrick Cammaert, former Military Advisor to the Department of Peacekeeping Operations and Force Commander in Ethiopia and Eritrea (UNMEE).

In the quest for making itself fit for changing conditions, the UN peacekeeping has gone through various changes, particularly since the demise of the Cold War. With the changes in the type of threats facing the UN in many of its theatres of operations, there has been increasing push from within the UN and diverse group of member states for the UN peacekeeping to take on counterterrorism operations. Drawing on diverse sources of data on the experience of both UN and regional peace operations, in this timely book on The UN at War , a close observer of UN peacekeeping John Karlsrud not only presents cogent arguments cautioning against the contemporary temptation for reviewing of long standing principles of UN peacekeeping but also draws attention to the options available for dealing with the serious threats that UN peacekeeping is facing in places such as Mali. A book that probes the factors that shape UN peacekeeping from the de facto division of labor between the UN and the African Union in which the AU is assuming commendably increasing responsibilities to new technologies, John offers a fascinating reading for everyone interested in the current state of UN peacekeeping and its possible future.

- Solomon Dersso, Commissioner, African Commission on Human and Peoples’ Rights.

This book is truly impressive in how it weaves together the core pillars and drivers of contemporary UN peace operations, by centering the discussion around transformation and evolution. It is an engaging read that will no doubt ruffle a few feathers, yet, I hope, inspire sober, constructive and critical reflection. Karlsrud has no doubt moved the discussion forward on the question of how far countering violent extremism and terrorism should be the business of peacekeepers.

- Dr Linnea Gelot, Senior Researcher, The Nordic Africa Institute.

In this timely book, Dr Karlsrud succeeds admirably in its purpose to bring out some of the key dilemmas and challenges facing UN peace operations as well as discussing how UN peace operations can become more people-centered. The author also addresses the tensions between the traditional principles of UN peacekeeping and the new complex mandates assigned to the peacekeepers. The book is a must read to all those who are interested in using the UN more effectively in peace operations.

- Dr Ronald Hatto, Senior Lecturer, Institut d’Etudes Politiques, Sciences Po.

With The UN at War , John Karlsrud contributes an important study that adds greatly to the growing literature on multilateral (global) peace interventions and their changing nature. With a focus on member states preferences, tools and capabilities as well as (inter-)institutional changes, Karlsrud reminds the reader that peace operations cannot be the option of last resort but need to be first and foremost needs-based.

- Stephanie C. Hofmann, Associate Professor of Political Science, Graduate Institute of International and Development Studies, Geneva.

Karlsrud’s critical account of recent developments in UN peace operations takes issue with the idea that such operations should be used for peace enforcement against terrorists and violent extremists. The book is especially timely given recent major reviews of UN peace operations, the election of a new secretary-general, and the possibility that the UN will be asked to take on additional, complex challenges in Libya and Yemen. The analysis of shifts underway within the UN, among Western powers and troop contributing countries along with the overview of efforts to upgrade the planning and execution of peace operations, including issues surrounding the use of new capabilities, plus the growing role of the African Union and its evolving partnership with the UN, all make the book valuable to scholars and policy-makers alike.

- Margaret Karns, Professor Emerita of Political Science, University of Dayton

This book is a timely and compelling invitation to seriously reflect on the future of peace operations, as they are relentlessly challenged to adapt to increasingly asymmetric threat environments. The robust posture language inserted into the mandates of contemporary peacekeeping operations to counter these threats, are putting under stress the fundamental principles of peacekeeping. The book rightly reminds us that the ultimate aim of peace operations is to serve we the peoples and lay the foundations for self-sustaining peace. No amount of technological wizardry or other force multiplier adaptations should distract us from this overarching aim. Under the guise of stabilization, excessively militarized peace operations may end up legitimizing the use of violence in the pursuit of peace."

- Youssef Mahmoud, Senior Advisor at the International Peace Institute, former Special Representative of the Secretary-General in Chad and Burundi, and member of the High-level Independent Panel on UN Peace Operations.

In times of unprecedented challenges for UN peace operations, this volume offers a timely and brilliant analysis of the new realities they face. While it has become almost a cliché to say that the world is changing, when it comes to peace operations both their target – conflict – and the system that manage them – the UN – are in the mist of dramatic contextual transformations, driven by multiple factors, from geopolitics to new technology. Karlsrud’s comprehensive analysis becomes an essential guide to navigate the new complex world of peace operations, to comprehend the changes it faces, and to develop ideas to cope with it.

- Francesco Mancini, Assistant Dean & Visiting Associate Professor, National University of Singapore

John Karlsrud is not afraid to take on the most difficult and controversial issues facing United Nations peace operations: their limitations in a world of violent extremists and terrorist networks, their need for intelligence and other new capabilities, their complementarities with African regional organisations, and how they must better relate to and protect the people of countries in conflict. His timely analysis and clear opinions will further inform and stimulate these essential debates.

- Ian Martin, member of the High-level Independent Panel on UN Peace Operations and former Special Representative of the Secretary-General in Libya, Nepal and Timor Leste.

In this short and crisp book, Karlsrud argues persuasively for UN restraint in the 21st century. Drawing on contemporary UN stabilization operations in Africa, he concludes that the UN is not equipped to address the threats posed by counterterrorism and violent extremism. The UN cannot lose its legitimacy as an impartial arbitrator and cannot serve as a substitute for political action. The UN needs to return to a people-centered approach. Academics and policymakers alike will benefit from this thorough analysis of the UN’s predicament.

- Karen A. Mingst, Patterson School of Diplomacy and International Commerce, University of Kentucky, Lexington, Kentucky USA.

Karlsrud provides a comprehensive and insightful overview of the challenges confronting peacekeeping in the 21st century. It offers an excellent critical analysis of contemporary policies and practices from the highest political levels in the Security Council to the issues on the ground in individual mission areas. The book should be read by all those interested in identifying current trends and how peacekeeping is evolving. It is essential reading for policy makers, practitioners and researchers at all levels. It is a most valuable contribution to research and scholarship in the field of peacekeeping.

- Prof Ray Murphy, Irish Centre for Human Rights, National University of Ireland Galway.

If you are looking for a relevant assessment of all the current challenges facing UN peacekeeping operations, this is a must read by one of the main researchers on the matter.

- Dr Alexandra Novosseloff, Senior Visiting Fellow, NYU Center on International Cooperation, New York

In memory of Anne Marie, Frode, and Maria

Preface and Acknowledgments

In a world where peace is becoming more and more elusive, it is of utmost importance that we uphold the values on which the UN was founded. After a period of guarded optimism in the first decade of the 2000s, there has been an increase in violent conflict during the last few years. Violence seems to be emerging as the only way of expressing anger and frustration at the lack of agency and participation. There is an urgent need to reflect on what role UN peacekeeping, and more generally UN peace operations, should be given in this context.

Theory is always for someone and some purpose, asserted Robert Cox, a former UN employee and professor of international relations (1981: 128). Thus, the aim of this book is to provide critical reflections on UN peace operations, and constructive suggestions as to how the UN and the international system can evolve to remain relevant and tackle the peace and security challenges of the twenty-first century, without abandoning the principles that the UN was founded upon, and on which the legitimacy of UN peace operations rests.

This book began with my article The UN at War: Examining the Consequences of Peace Enforcement Mandates for the UN Peacekeeping Operations in the CAR, the DRC and Mali, published in Third World Quarterly in 2015. The changes that occurred in the mandating and implementation of these three missions from 2013 and onward seemed to me to mark the possible start of an unsettling trend where the key principles of UN peacekeeping—and the UN Charter—were no longer heeded. The arguments for moving away from these principles were and are many—and indeed, many of them present the world with difficult dilemmas that require careful reflection as well as action. Questioning the assumption that we are facing an era of radically new threats that require new responses from the international community, I discuss these challenges and threats, and why we need to treat them as analytically distinct from the responses that the international community may agree on. Basically, I take issue with the trend toward using UN peace operations for peace enforcement purposes, whether against armed opposition groups, violent extremists, or terrorists.

The book focuses on UN peacekeeping operations in sub-Saharan Africa, where most UN peacekeeping missions are and have been for the last 15 years. However, it also looks forward, considering the very real possibility that future missions may be deployed to Libya in the Maghreb, and Syria and Yemen in the Middle East. The book does not deal with all the dimensions of modern UN peace operations, such as security sector reform and the rule of law, or developing a fit-for-purpose mission support concept for robust peacekeeping operations.

I am deeply thankful for the support received from the Training for Peace programme at the Norwegian Institute of International Affairs (NUPI) and from the Fulbright Foundation. The latter granted me a visiting scholar fellowship to spend three months at the Center on International Cooperation (CIC) at New York University, from September to December 2015. I am indebted to CIC and the staff there for hosting me. In particular, I would like to thank Richard Gowan , the then Deputy Director of CIC, and Barnett Rubin, the then acting Director, for initially supporting my proposal, and to the Center’s leadership Sarah Cliffe and Jim Della-Giacoma for taking me on board and supporting me in every way possible during my stay. I am also grateful for the continued support from colleagues at the Peace and Conflict Research Group (PCRG) at NUPI, without which this book would not have come to fruition. I have benefited from countless discussions and received incisive and very helpful comments on various drafts of the manuscript from my colleagues around the world, including Arthur Boutellis, Camilla Campisi, Cedric de Coning , Ingvild Magnæs Gjelsvik, Richard Gowan, Ian Johnstone, Jim Della-Giacoma, Kiyoshi Matsukawa, Hanny Megally, Kari Osland, Niels Nagelhus Schia, Alexandra Novosseloff, Yf Reykers, Pernille Rieker, Natasja Rupesinghe, Adam Smith, Andrea Ó Súilleabháin, and Maxime de Taisne. I would also like to thank Jim Della-Giacoma and Ryan Rappa at CIC, and Jair van der Lijn and Timo Smit at the Swedish Stockholm International Peace Research Institute (SIPRI), for permission to use figures and help to develop these.

A previous and shorter version of Chapter 3 was published as Karlsrud, John (2016a) New Tools for Blue Helmets, in Jim Della-Giacoma (ed.), Global Peace Operations Review: Annual Compilation 2015 . New York: Center on International Cooperation, New York University, pp. 101–107. Reused with permission of Global Peace Operations Review . A previous and shorter version of Chapter 4 was published as Karlsrud, John (2016b) UN peace operations and counter-terrorism—A bridge too far? in Jim Della-Giacoma (ed.), Global Peace Operations Review: Annual Compilation 2015 . New York: Center on International Cooperation, New York University, pp. 118–124. Reused with permission of Global Peace Operations Review . A previous and shorter version of Chapter 6 was published as Karlsrud, John (2016c) How can the UN move towards more people-centered peace operations? in Jim Della-Giacoma (ed.), Global Peace Operations Review: Annual Compilation 2015 . New York: Center on International Cooperation, New York University, pp. 108–11. Reused with permission of Global Peace Operations Review.

Warm thanks go to André Broome and Shaun Breslin, editors of the Global Reordering series for Palgrave Pivot, for initially agreeing to publish this book, as well as to my editors Christina Brian, Ulrike Stricker, Amber Husain, and James Safford at Palgrave, and to Susan Høivik and Natasja Rupesinghe at NUPI, who have helped me immensely in the process of finalizing the book. Finally, I would like to thank Astrid Hornslien for her warm support and companionship.

Previous publications by the same author:

UN Peacekeeping Doctrine in a New Era: Adapting to Stabilization, Protection and New Threats. Co-edited with Cedric de Coning and Chiyuki Aoi. Abingdon: Routledge (2017).

Norm Change in International Relations: Linked Ecologies in UN Peacekeeping Operations. Abingdon: Routledge (2016).

The Future of African Peace Operations: From the Janjaweed to Boko Haram. Co-edited with Cedric de Coning and Linnéa Gelot. London: Zed Books (2016).

John Karlsrud

Oslo, Norway

February 2017

Acronyms and Abbreviations

ACIRC

African Immediate Crisis Response Capacity

AFISMA

African-led International Support Mission in Mali

AMISISOM

African Union Mission in Somalia

APSA

African Peace and Security Architecture

AQIM

al-Qaeda in the Islamic Maghreb

ASF

African Standby Force

ASG

Assistant-Secretary-General (UN)

ASIFU

All Sources Information Fusion Unit

AU

African Union

AU PSC

African Union Peace and Security Council

C-34

UN General Assembly Special Committee on Peacekeeping Operations

CANs

Community Alert Networks

CAR

Central African Republic

CASEVAC

Casualty Evacuation

CCC

Civilian Contributing Country

CIC

Center on International Cooperation

CODs

Common Operational Datasets

CTITF

Counter-Terrorism Implementation Task Force

CVE

Countering Violent Extremism

CVR

Community Violence Reduction

DDR

Disarmament, Demobilization, and Reintegration

DDVE

Demobilization and Disengagement of Violent Extremists

DFS

Department of Field Support (UN)

DPA

Department of Political Affairs (UN)

DPKO

Department of Peacekeeping Operations (UN)

DRC

Democratic Republic of the Congo

ECCAS

Economic Community of Central African States

ECOWAS

Economic Community of West African States

FARDC

Forces armées de la République démocratique du Congo

FDLR

Forces démocratiques de libération du Rwanda

FGS

Federal Government of Somalia

FIB

Force Intervention Brigade

FOBs

Forward Operating Bases

FOC

Full Operational Capability

G-5 Sahel

Group of Five Sahel

G-77

Group of 77

HIPPO

High-level Independent Panel on Peace Operations (UN)

IASC

Inter-agency Standing Committee

ICC

International Criminal Court

ICTs

Information Communication Technologies

IED

Improvised Explosive Device

IS

Islamic State

ISSSS

International Security and Stabilization Support Strategy

ITU

International Telecommunications Union

LCBC

Lake Chad Basin Commission

LRA

Lord’s Resistance Army

MEDEVAC

Medical evacuation

MINURCAT

United Nations Mission in the Central African Republic and Chad

MINUSCA

United Nations Multidimensional Integrated Stabilization Mission in the Central African Republic

MINUSMA

United Nations Multidimensional Integrated Stabilization Mission in Mali

MINUSTAH

United Nations Stabilization Mission in Haiti

MISCA

African-led International Support Mission to the Central African Republic

MNJTF

Multinational Joint Task Force

MNLA

Movement for the National Liberation of Azawad

MONUC

United Nations