PEACEKEEPING IN OUR TIME: PAST THE AGE OF CONSENT?

PEACEKEEPING IN OUR TIME:

PAST THE AGE OF CONSENT?

By Jamie Arbuckle, for Peacehawks

Introduction

Have you heard the one about how many Peacekeepers it takes to change a light bulb?

Actually, any number will do – but the light bulb has to want to change.

To know where we are going, we need to know where we are, and to know that, we usually need to know where we have been.  To look ahead, then, we often need to look back.

One of the most critical factors in modern peace operations has, since the creation of the United Nations, been the issue of consent to and the continuing support for an operation.  The  UN is hard-wired for consensual operations; it’s in the DNA, in the Charter:

Article 2.1: “The Organization is based on the principle of the sovereign equality of all of its members”; and

Article 2.7:  “Nothing contained in the present Charter shall authorize the United Nations to intervene in matters which are essentially within the domestic jurisdiction of any state … “

The consent issue has several forms; among these: the consent of the hosts and of the parties to a conflict; of the people living in the conflict area; that of the troop contributors to a peace force; and the consent of the major powers, especially the permanent members of the Security Council of the UN (the P5). The first two are often the most critical: we might refer to them as the consent of the parties and the people. We certainly cannot ignore the importance of the consent of the troop contributors – without them we have no force, or of the Security Council – without them we have no mandate. Nevertheless, I will generally focus on the issues of local consent: in which I include the host government, the sub-state parties, and the people. These, which I by no means take to be the same thing or even in some cases very much alike, are nevertheless in my view collectively the true conditio sine qua non of a successful intervention.

There has since late in the last century been a growing tendency to contemplate and to mandate peace operations founded under Chapter VII of the Charter, which is implicitly non-consensual in its tone and presumably, in its intent.  It might seem that peace operations are indeed beyond the age of consent.  That is in principle; however in practice peace operations  have continued to be very conservatively structured and even more cautiously  executed, and missions have continued to negotiate the terms and the extent of operations specifically intended to enforce peace. This is no less true of the current vogue for the Responsibility to Protect (R2P), than it was of the rash of “enforcement operations” of the 1990s.

To see why this has been, and largely remains, the case, I want to review the origins of the issue of consent in peace operations, and  see what that has subsequently come to mean. To do this, we will review the first modern peacekeeping mission, the United Nations Emergency Force, as it formed up  in the autumn of 1956, where the issue first arose and was to be of fundamental importance. We will then fast-forward to Eastern Slavonia almost 40 years later, and we will visit there the birth-place of the practice – and only later the concept – of “induced  consent.” (Alex Morrisson, the founder and President of the Pearson Peacekeeping Centre in Nova Scotia, once said, while a student at the Canadian Army Staff College, “It certainly seems to work in practice, but how will it stand up in theory?) It is a large part of the story of peacekeeping that practice often and necessarily precedes theory.

 Finally, having  established where we really  are, we will peek briefly through that R2P looking glass to see where we might be going  with 21^st Century peace operations. As written, that “policy” largely describes non-consensual military intervention to “protect”, but its authors have been back-pedalling on that almost since before their ink was dry – and no wonder. We know what they said, but it seems that may not have been what they meant, and we need to look critically at this “new norm.”  We can only hope this will allow us at least a glimpse of what John le Carre has called “the recent future”.

Sometimes, to get ahead, we need to go back.

In preparing this posting, I need to thank Russia, China and Syria, who in fanning the flames of tragedy have provided me with further  insight into the importance of consent at multiple levels. 

And that is what I want to share with you in this posting.

CHILD SOLDIERS: WEAPONS OF CHOICE, BUT WHOSE CHOICE?

  

A book review for Peacehawks:

They Fight Like Soldiers, They Die Like Children, by Senator Romeo Dallaire, Arrow Books, London, 2010 (307 pp, 12.07 LBS)

By Jamie Arbuckle

INTRODUCTION

Canadian Senator and retired General Romeo Dallaire, the author of the best-selling Shake Hands With the Devil (Random House Canada, 2003), and the original commander of the UN Peacekeeping Mission in Rwanda in 1994, has written another book, just as timely, urgent and compelling as his first.  Peacehawks  thinks it important that we inform you of this book as quickly as we can – I finished reading it an hour ago.

My life and my career have been very short on living heroes: Robert Rogers died almost a century and a half, and T.E. Lawrence five years, before I was born; I was 22 years old when Dag Hammarskjold was killed, and 23 when JFK was assassinated; my father died when I was only 32.  I didn’t expect to have any more heroes in my direct experience of life.  But I have been rarely privileged to know, even briefly to work with, Romeo Dallaire, and he is every inch a hero for our so dusty, spiteful and divided time. I thought you needed to know my view of the author as you read this review.

DISCUSSION

Search as we may, there are no comprehensive or reliable figures for child soldiers around the world. The only reference to outside figures I have found on scores of websites is from Human Rights Watch, who estimate that there are  “hundreds of thousands” of child soldiers between the ages of 8 and 17 years old.[1]They are however ubiquitous in some of the most chaotic parts of the world, and they are in certain areas a major impediment to the peace process. They were perhaps at their worst in Sierra Leone in 2000, when a spate of pointless and random killings and kidnappings peaked with the taking of nearly 500 U.N. peacekeepers as hostages. I have written about that elsewhere in Peacehawks.[2]

Dallaire poses straight from the outset a quite arresting view of the child soldier: as a weapon system. The child soldier, he says, has several systemic advantages: he, or often she, is plentiful, inexpensive, easily disciplined, expendable and easily replaced. The child soldier is thus the obvious weapon of choice of those for whom violence and outrageous cruelty are their own ends.

WITH LAWRENCE IN VALHALLA

A book review essay for Peacehawks by Jamie Arbuckle

… the dreamers of the day are dangerous men, for they may act their dreams with eyes wide open, to make it so.  This I did.

T.E. Lawrence, Seven Pillars of Wisdom

Hero: The Life and Legend of Lawrence of Arabia, by Michael Korda (Harper Collins, New York, 2010. Ilus, 762 pp. $35.00)

Other books discussed in this essay:

Seven Pillars of Wisdom, by Lawrence of Arabia (Hazel Watson and Viney Ltd, Aylesbury, Bucks, 1926. Illus, 700 pp [Penguin Vers.])

Lawrence and the Arabs, by Robert Graves (Jonathan Cape, London, 1927. Illus, 454 pp)

Lawrence of Arabia, by Basil H. Liddell Hart (Da Capo Press, New York, 1937, Illus, 406 pp)

Introduction

Did we really need another bio of Lawrence? Well, the most recent of the several, Hero, by Michael Korda is, I think, the best of the bunch, and for me it has been worth the wait.

There has for nearly 100 years been heated controversy about Lawrence: was his contribution as significant as his supporters maintain, or was it merely a “side-show of a side-show”? Was he a genuine leader of the Arab-Revolt, or its betrayer – for betrayed the Arab Revolt surely was. Was he a genuine hero, or merely an early public relations trick? I think it is sufficient here to recognize these enduring controversies – it is not the purpose of a review essay such as this to resolve them. That does not mean I will not take a stand, as will soon become apparent. As Liddell Hart said¸

… I have found two sharply contrasted currents of opinion as to Lawrence’s achievement, character and qualities of  leadership.  One is overwhelmingly favourable, the other disparagingly skeptical.  Such a difference in view is to be expected about any outstanding figure: the remarkable feature of this case lies in the contrast of the composition of the two groups. For it is significant that the first includes all those who for long periods were in close contact with Lawrence  and  his work in the Arab campaign … The  second current of opinion … is composed of men who had only a fleeting contact with Lawrence or, more often, a hearsay acquaintance  with his activities.[1]

That first group, Liddell Hart might have added, included such as David Lloyd George, Winston Churchill, Field Marshall Allenby, Marshall of the Royal Air Force Trenchard, Gertrude Bell and, of course, Robert Graves and Liddell Hart himself.

Lawrence was considered the most famous man in the world in his lifetime (1888-1935), and the puffery of Lowell Thomas’ media circus did not quite obscure the real events and the genuine achievements of the Arab Revolt.  Thanks to the steady procession of books about Lawrence[2], his fame has pretty much endured. His reputation was updated, boosted and popularized by David Lean’s movie (starring Peter O'Toole) in 1962, which was based on Seven Pillars, and was one of the best movies of the last century.  As incredible as his story is, it was pretty clearly understood by the many in his own time, and has been fairly accurately conveyed for succeeding generations: his reputation as a hero has been shaken now and again, but has on the whole  remained intact.

REVIEW OF “RESTREPO”: WHEN A PICTURE IS NOT WORTH A THOUSAND WORDS

Restrepo, 2010, a film by Sebastian Junger and Tim Hetherington.

Reviewed for Peacehawks by Jamie Arbuckle

It is a characteristic of our very advanced communications media that the medium is often not the message, and sometimes contains almost no message at all. This film is one such non-message.

The intention of the film seems to be to accompany the book, War, by Sebastian Junger. Junger is a skilled writer with a strong sense of contemporary history and is well known for his narrative skills, both of which are amply displayed in his book.  War presents the operations of Battle Company, 2^nd Parachute Infantry Battalion  of the 173rd Airborne Infantry Brigade in the Korengal Valley of Afghanistan from May 2007 to July 2008. (The other companies in the Battalion are called “Chosen” and “Destined” – the irony, as in so much of the terminology used here, is certainly unintentional.) In particular, the movie tells inter alia the story of the Second Platoon of Battle Company in combat outpost Restrepo, which was named for a very popular medic, Juan Restrepo, and which was established shortly after he was killed in action in Afghanistan.

Do-able Peace: A Handbook

The Mediator’s Handbook for Durable Peace, by Evan A. Hoffmann, the Canadian International Institute of Applied Negotiations, Ottawa, 2010.




Reviewed for Peacehawks by Jamie Arbuckle



At only 52 pages, this slim volume will scarcely displace the baton from anyone’s rucksack, but no one proceeding on a mission should leave home without it.



Evan Hoffman is the Executive Director of the Canadian International Institute of Applied Negotiations, a leader in their field of training on and researching into the techniques of mediation and negotiation, especially but not solely for peacekeepers of all brands and stripes. They have also been active in the non-violent management of conflicts and in promoting peace around the world. It detracts not at all from Evan’s own considerable accomplishments to say that he stands on the shoulders of a giant, which for us is a very good description of his father, Ben, whose work we have reviewed elsewhere in this blog.



Evan states his thesis early and clearly: “the balance of power between the parties at the time of mediation does not need to be equal, but a balanced agreement is necessary.” And there you have in a nutshell the major challenge of any mediation process: power is usually unevenly held, which is one of the more common causes of violent conflict. This asymmetry of power, usually accompanied by unequal access to resources, makes it difficult for the lesser to come to the table, while making it (seemingly) unnecessary for the greater to come at all. Only the prospect of a balanced agreement will attract the lesser to the table, and if the process does not iron out the differences, not least of power sharing, any semblance of peace will be an illusion quickly dispelled. It is the aim of Evan’s book to provide a model for durable peace.

INTERAGENCY COMMUNICATIONS AND CO-OPERATION IN COMPLEX EMERGENCIES:THE ROLE AND INFLUENCE OF CULTURES

- by Jamie Arbuckle, presented to the Workshops on Diversity and Global   Understanding, Vienna 2 June 2010


Introduction


A thoroughly modern complex humanitarian emergency typically is a multi-agency operation, involving a vasty array of organizations: international, regional, local; governmental, non-governmental; civilian and military. All have a contribution to make, and some will be vital, but none of them can work alone. Meshing their capabilities to avoid duplications and omissions, is a major challenge for what, begging your pardon and for lack of any better term, I will call the international community. Collectively, they pose a staggering range of diversity, and they present the most complex operating environment I have ever encountered. It is therefore on this, the humanitarian emergency, on which I will now focus. The challenges arising from the organizational and cultural diversity of international and local actors in this type of peace operation are poorly understood, but the problems are so well-known as to have become like Dr Johnson said of the weather: more productive of conversation than of knowledge.

Thomas Weiss has described one well-known example of this complexity in the following words:

Last week (1994), I was talking to a couple of colleagues just back from Kigali. I learned that there are at least 150 international NGOS in Kigali tripping over one another, vying for turf, looking for resources. I have described this effort as like trying to herd cats. (1)


Actually, Weiss’ information was not quite accurate: others subsequently estimated at least twice that number of NGOs in Kigali in 1994 – but no one was quite sure. Five years later, in Kosovo, which is a box about 100 kilometres on a side, some estimated there were about 500 NGOs in the province – but no one was quite sure. And this was in a mission area more or less dominated by the UN, leading the “four pillars” (if you can lead a pillar) of the United Nations Secretariat, the UN High Commission for Refugees, the OSCE, the EU and, as an adjunct, the NATO-led KFOR. The landscape was crowded – especially on that moral high ground - and the architecture was ad hoc and complex.


While the UNMIK operation in Kosovo did eventually sort itself into a climate of reasonable cooperation among the various agencies and with the emerging local government, it will be no surprise that this is more usually a recipe for organizational nightmares.


In this paper, I will describe the problems of interagency communication and cooperation as I have experienced them, and as they have been related to me. Following this description of the problem I will present a short analysis of the origins of the problems, and I will provide a very brief prescription for alleviating these symptoms of disarray. Description, analysis, prescription, then: shut up, and leave time for me to hear from you.

I am constantly reminded that this is as much a learning experience for me as it is for you, and just before lunch I met one of your number who will in the course of this summer do exactly what I am recommending everyone of you should do – I'll tell you more about him as I get to the end of this presentation.

Light Candles or Curse the Darkness: East Timor Turns the Century

“Militaries that are doing something bad sometimes go into their shell. It’s them against the world.”


- Admiral Dennis Blair, CinC U.S. Pacific Command, on the Indonesian Armed Forces, in 1999.


“ … cutting off contact with Indonesian officers only makes the problem worse”


- Paul Wolfowitz


“Better to light a candle than to curse the darkness.”


- Confucius

- a book report by Jamie Arbuckle for Peacehawks:

If You Leave us Here, We Will Die – How Genocide was Stopped in East Timor, by Geoffrey Robinson, Princeton University Press, Princeton, 2010, 317 pages, $35


INTRODUCTION

This book tells of the terrible and the wonderful events in East Timor, centred on but not limited to the years 1999- 2000, and of the candles that were lit then. For us the messages in this book are three, and they bear directly on our central belief that peace must be maintained at least as robustly as it is violated. These three messages concern:

1. The uses of humanitarian intervention, and the military role in such interventions;

2. The issue of consent, especially that of the Security Council, of the major powers and of the “host” government, to an intervention;

3. The relationship of peace to justice – can there be one without the other?



Geoffrey Robinson is that most valuable combination of practitioner and academic, and his book is given dramatic thrust by the fact that he was an eye-witness to much of the action of that critical year, as he was at that time a political affairs officer with the UN mission in East Timor. Reading between his lines with your accustomed skill, you will infer as did we that he and his colleagues were brave to a degree way beyond his spare descriptions of the hazards they faced. He is in “real life” a professor of history at UCLA, and he was six years with the headquarters of Amnesty International in London. He is thus well able to zoom in for the detail, and then back seamlessly out to the wider time-frame and perspective. He is a superb writer, and this book is both an invaluable reference, and a cracking good read.