The Hague International Model United Nations 2019 | 27th January 2019 – 1st February 2019

Forum: General Assembly Fifth Committee

Issue: Moving towards a more integrated and efficient approach to

conflict prevention and peacebuilding operations

Student Officer: Toyah Hoeher

Position: Chair

Introduction

For the past 70 years, the United Nations has engaged in peace operations by sending

international soldiers to areas in or at risk of conflict. Despite its successes, UN Peacekeeping

has been characterized by multiple shortcomings throughout its history, with persistent sexual

abuse by peacekeepers, fragmented management structures and flawed systems of

transparency and accountability being just a few examples of these. In the last 30 years,

increased pressure has been placed on the United Nations to address various conflicts. The

Security Council has mandated peacekeeping operations in places where it is virtually

impossible to keep a (often non-existing) peace, and have ultimately supported governments

that themselves contribute to instability and violate human rights. Often, peacekeeping

operations lack the troops and resources to successfully execute their mandates and can offer

no more than mixed results at best. In lieu of the many obstacles facing effective peacekeeping,

the Fifth Committee plays a crucial role among various UN reforms in providing political

guidance to other organs of the UN. An objective of a less bureaucratic and more efficient

approach to peacekeeping is necessary to preserve the UN’s credibility and its ability to serve

people and countries in need.

A better approach to conflict prevention presents our second daunting, yet necessary

task. The UN’s current approach is in need of administrative refurbishing in the areas of

efficiency, funding and coherence. There are many ways the UN can be involved in conflict

prevention, but preventive activities never present “one size fits all” solutions. There has been

much support for integrating conflict prevention as a core responsibility of the UN, as the

preemptive hindrance of conflicts saves huge amounts of money and resources compared to

the deployment of peacekeeping operations once a conflict has escalated.

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Definition of Key Terms

Peacekeeping operations (PKOs)

UN.org defines PKOs as “one of the most effective tools available to the UN to assist host

countries navigate the difficult path from conflict to peace”. Once deployed, the tasks of

peacekeeping operations include strengthening the rule of law, overseeing elections,

assisting in economic and social development and monitoring ceasefires, among others.

Peacekeeping differentiates itself from peacebuilding, peacemaking and peace enforcement,

while naturally overlapping with these at times.

Conflict Prevention

Conflict prevention seeks to prevent the occurence or escalation of hostilities within a

given region by monitoring the situation in the region and identifying potential causes of

conflict. Direct action to prevent conflict includes work on the socio-economic situation of

the region, the state of human rights and humanitarian aid, resource management and

distribution, and assistance in development to improve any problematic conditions that

could lead to future conflict. Preventive actions are conducted according to Chapter VI of

the United Nations Charter and can encompass anything from a small diplomatic

mission to a larger military one.

Peacebuilding

Peacebuilding is roughly synonymous with conflict prevention, its definition being “an

intervention technique or method that is designed to prevent the start or resumption of

violent conflict by creating a sustainable peace.”

Preventive diplomacy

In the 1992 Agenda for Peace, the UN described preventive diplomacy as “action to

prevent disputes from arising between parties, to prevent existing disputes from

escalating into conflicts and to limit the spread of the latter when they occur”. The first

preventive action by the UN was the deployment of the peacekeeping mission in

Macedonia (UNPREDEP) from 1992-1995. It has also been credited with averting full-

scale war between the Democratic Republic of Congo and Rwanda through its

dispatching of diplomats. One can differentiate between ‘soft’ mediation and ‘muscular’

diplomacy, in which threats of preemptive military action can be made.

Special political missions (SPMs)

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The characteristics of SPMs vary on a case-by-case basis. The three main categories of

SPMs are field missions, special envoys, and sanction panels or monitoring groups.

Their core function is political, i.e. helping Member States prevent and resolve conflict.

Cross-cutting

Cross-cutting issues has been proposed in the UN as a strategy to improve the

effectiveness of peacekeeping operations. It refers to the linkage of separate interests,

for example of the administrative and budgetary aspects of financing PKOs, or

advancing gender equality and environmental conservation. Cross-cutting issues means

that all developmental initiatives would ultimately integrate the goals of all cross-cut

issues at once, possibly creating a more comprehensive and holistic approach to

tackling multiple issues simultaneously.

Umoja

Umoja is an enterprise resource planning (ERP) solution meant to upgrade and

streamline various business processes of the UN, improving its approach to finances,

resources and assets. Umoja became the UN’s central administrative tool in 2006,

hoping to retire many of its outdated or fragmented previous systems and attempting to

modernize the UN’s administrative practices to improve finance and budget capacity and

enhance human resource tools, while saving staff time in the process. There have been

reported shortcomings surrounding umoja.

Background Information

Despite their flaws, the world is still in desperate need of UN peacekeeping operations,

and most countries rely on the UN to respond to outbreaks of violent conflict in one manner or

another. In order to effectively do so, their integrity must be preserved and there must be

sufficient attention given to their financing, administration, and organization. In May of 2018, the

Brazilian delegation pointed out that instead of selecting which activities should be mandated to

PKOs or not, the Fifth Committee’s duty “is to adequately resource mandates, not to rewrite them”.

Conflict Prevention

Given the challenges in demonstrating which exact actions or non-actions lead to the

outbreak of conflict, measuring the UN’s direct impact in avoiding the commencement,

escalation or resumption of such a conflict is difficult. Instead, the UN can hope to continue

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partnering with governments, NGOs and communities in addressing situations that could

potentially pose long-term risks of conflict. Its conflict prevention “toolkit” includes special

envoys, SPMs, PKOs, regional offices, the deployment of mediation experts, resident

coordinators and country teams, political and human rights analytical capacity and sanctions

monitoring groups. These tools, coupled with the building of more resilient societies (working in

areas such as the rule of law, governance, elections, gender disparities and security sectors),

can go a long way in addressing the deeper causes of violent conflict.

Problems with peacekeeping

Lack of oversight

UN peacekeeping has been plagued by various levels of mismanagement, fraud, and

corruption. So-called “watchdogs” such as Transparency International have found that

the UN has repeatedly failed to tackle these issues within its PKOs. The UN Office of

Internal Oversight Services (OIOS) itself has repeatedly been found to be politicized and

is known to be riddled with corruption. It has also been said that the body is effectively

controlled by the exact management it is meant to be monitoring for malpractice. Some

examples of misdemeanors by UN peacekeepers include fraud concerning meal and

hotel invoices (MINURSO), illegal reselling of food (UNIFIL), and the discovery that the

failure of the UN to act despite being aware of abuses by French peacekeepers in the

Central African Republic. This weak oversight is made worse by the failures of UN

programs and agencies to protect whistleblowers.

Local (and lack of) consequences

At times, UN peacekeeping missions have ended up actually worsening the local

situation, and due to the UNs various immunities, rarely if ever face repercussions. One

prominent example is the discovery that Nepalese peacekeepers were the cause of the

2010 outbreak of cholera in Haiti, killing thousands. Even after the outbreak, sanitation

problems continued. A leaked report detailed that “a month after the cholera outbreak,

more than one in 10 of the UN camps were still disposing of sewage [...] into the ‘local

environment.” There is no evidence that the failures in Haiti have caused any

consequences for UN officials.

Ineffectiveness

Many PKOs have been operational for borderline ridiculous amounts of time without fully

accomplishing their mandates. Some are said to remain active for “transparently political

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reasons”. One example is the United Nations Truce Supervision Organization in the

Middle East,, which has been operational since 1948. UNTSO did not prevent war in

1956, 1967, or 1973. It has arguably not been effective in normalizing the regional

relations of Israel, and the political situation of the region is consistently as tense as it

was when the mission was deployed 70 years ago. More examples of longstanding

PKOs that have yet to improve their delegated issues are The United Nations Military

Observer Group in India and Pakistan (1949), The United Nations Peacekeeping Force

in Cyprus (1964), The United Nations Disengagement Observer Force (1974), The

United Nations Interim Force in Lebanon (1978) and notably, The United Nations Interim

Administration Mission in Kosovo (1999). Despite UNMIK having largely fulfilled its

mandate, the US mission to the UN has stated that “the only reason we continue to meet

with this regularity has nothing to do with the security situation in Kosovo—it has to do

with politics.”

Arguably, the aforementioned missions remain valuable as long as their surrounding

conflicts remain in stasis rather than deteriorate. However, no matter how complicated

the conflict is, UN forces cannot be expected to substitute for governments’ domestic

capacity indefinitely.

Quagmire

On a related note, peacekeeping forces often create “quagmires”, or “awkward, complex,

or hazardous situations”. Unguided goals and exit plans result in billions og dollars being

lost and diminished attention to the deeper socio-economic problems a given mission is

meant to be alleviating. In Haiti, for example, the last instance of armed conflict was

more than 10 years ago. A UN force of over 4,500 members remains, and instead of

improving the ongoing issues there, the interim Haitian prime minister stated that “the

country is facing serious social and economic difficulties.” Another example is the 2013

decision to send a mission of 10,000 soldiers to Mali that found itself unprepared to

engage in counterterrorism. As a result, 56 have already been killed and more are

predicted to die.

Another clear cause of quagmire is the UN’s (arguably immoral) entanglement with

unethical leaders that are uncommitted to societal or political change, for ex. in the

United Nations Organization Stabilization Mission in the Democratic Republic of the

Congo. Such relationships potentially fortify these leaders’ positions within their

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countries and does little to protect civilians and demand some sort of criteria in the kinds

of regimes that peacekeepers are asked to fight for. Should this continue, contempt

towards UN peacekeeping will undoubtedly rise.

Civilian Protection

In 2014, a study found that out of eight UN peacekeeping operations with a mandate of

protecting civilians, 80% of report of violent attacks against civilians were not reported as

having been responded to by peacekeepers. Between August 2012 and April 2013, the

spokesperson for the African Union–United Nations Mission in Darfur (UNAMID)

presented leaked information that the mission was underreporting attacks on civilians

and peacekeepers, and in some cases even concealing them.

Environmental Management

UN deployments can have unintended, yet significant environmental impacts in their

region, ranging from resource depletion, to emissions by large vehicles and camps, to

soil contamination. Quality environmental management can actually contribute to peace

and security in a region. Thus, next to curbing climate change, it is imperative that

missions adequately manage their contributions to potential ecological destruction.

Sexual Exploitation and Abuse

From rape to forced prostitution of women, girls and boys alike, UN personnel have been

repeatedly and for many years been accused of sexual exploitation. In recent years, this has

occurred in Bosnia, Burundi, Cambodia, Congo, the Democratic Republic of the Congo, Guinea,

Haiti, Kosovo, Liberia, Sierra Leone, and Sudan. While some consider this pattern to have

improved considerably in recent years, these perceived developments could be results of

underreporting. Another factor is that fear of retribution and the unlikelihood of receiving

assistance disempower victims from coming forward. In 2005, a report from West Africa

indicated that identifying perpetrators posed great difficulty, since the victims (naturally

traumatized and often poorly educated) could not identify their attacker. Even so, allegations of

sexual abuse that are reported and registered have been rising year by year, indicating that

perhaps the problem of underreporting is improving. Nonetheless, the UN continues to fail to

respond to these allegations, with most UN staff assuming that another agency will take

responsibility in addressing the issue.

Finance

Lack of funding can present a substantial difficulty hindering PKOs from successfully

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executing their mandates. For the past few years,however, the peacekeeping budget

requirements have been sinking. This is due both to the closing of various missions and lower

demand for air operations (air operations make up 10% of the budget). Improved efficiency in

areas such as environmental management, updated technology, and shared services have

allowed costs to be lowered. There are, however, other cost pressures that emerge as a result

of reimbursements to countries that contribute troops or police forces and staffing costs. A study

by the United Nations and World Bank has found that more effective prevention could save up

to $70 billion a year.

Achieving more efficient peacekeeping / conflict prevention

To attain sustainable peace, any UN or multinational operation must concentrate on the

root causes behind conflicts and work to prevent these instead of merely reacting to them once

they occur. There are several ways in which initiatives by the UN can improve to become more

effective from the beginning.

Prerequisites to effective peacekeeping / conflict prevention

In the UN, many countries have recently stressed that any reforms must pay attention to

the needs of African states and should cooperate with the African Union to deliver on the

various needs of these states to adequately settle disputes. Another point that was

voiced last year was the requirement for a more defined system of accountability and the

avoidance of overlapping functions. Peacekeeping should also continue to focus on

strengthening development capabilities to prevent conflict from arising in the first place.

Another point was the standardization of medical care within missions and implementing

new technological innovations to assist in an operation’s efficiency.

Major Countries and Organizations Involved

UN Peacebuilding Fund (PBF)

Founded in 2015, the UNPBF provides funding to more than 120 projects in 25

countries. The body is an essential component in supporting countries which are emerging from

conflict and further supports operations working on post-conflict stabilization to strengthen any

relevant institutions and authorities.

Department of Peacekeeping Operations (DPKO)

The Department of Peacekeeping Operations is the primary body in charge of planning

and overseeing peacekeeping missions and communicates between the Security Council, the

parties in conflict and troop or financial contributors. Its four main offices deal with political and

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strategic policymaking, expertise and guidance on the rule of law, military deployment, training,

and evaluation.

UN Peacebuilding Commission (PBC)

The Peacebuilding Commission is an intergovernmental advisory body tasked with

supporting efforts to achieve peace in conflict-ridden regions. It is used by Member States as a

platform for coherent decision-making and works in conjunction with both the General Assembly

and Security Council. It is seen as one of the UN’s most valuable tools in sustaining peace.

Peacebuilding Support Office (PBSO)

The Peacebuilding Support Office was established in 2006 to assist the Peacebuilding

Commission. It is involved in many organizational, preparatory and analytical work and holds a

unique role in coordinating the UN pillars of peace and security and development and human

rights. There have been proposals to make its role more central in the architecture of UN

peacekeeping and security.

United Nations Board of Auditors

The Board of Auditors was established in 1946 to provide for accountability and

transparency in the UN. Their task is to provide information about the state of UN funds and

programs as well as independent assessments on the use of Member States’ funds. The Board

presents its findings through the the Advisory Committee on Administrative and Budgetary

Questions.

UN Department for Political Affairs

The UN Department for Political Affairs oversees special political missions and monitors

and assesses global political developments. Thus, it holds a crucial role in detecting potential

conflict and in devising potential responses.

Regional Bodies

The following regional bodies have themselves worked towards conflict prevention and

resolution:

1) African Union Peace and Security Council (PSC)

2) African Standby Force (ASF)

3) Continental Early Warning System (CEWS)

4) South African Development Community (SADC)

5) Economic Community of West African States (ECOWAS)

6) Association of Southeast Asian Nations (ASEAN)

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7) The Pacific Island Forum

8) Organization of American States (OAS)

9) High Commission for National Minorities within the Organisation for Security and

Cooperation in Europe (OSCE)

10) Arab League

11) Gulf Cooperation Council

Financial Contributors

The United States of America has been the UN’s largest financial supporter since its

founding in 1945. In combination with its status as a P5 member in the Security Council, the

USA holds a lot of leverage in pressuring the UN to reform and proposing them itself. Below,

find a list of the top 7 financially contributors to UN peacekeeping:

1. United States (28.57%)

2. China (10.29%)

3. Japan (9.68%)

4. Germany (6.39%)

5. France (6.31%)

6. United Kingdom (5.80%)

7. Russian Federation (4.01%)

Troop Contributors

Responsibility to contribute troops to peacekeeping has shifted to become more

regional. Below, find a list of the current top 5 troop contributors to UN peacekeeping:

1. Ethiopia (8,326)

2. India (7,471)

3. Pakistan (7,161)

4. Bangladesh (6,772)

5. Rwanda (6,146)

Timeline of Events

Date Description of event

1948 UNTSO launched as first UN peacekeeping mission to observe

and maintain the ceasefire during the Arab–Israeli War

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1992 Foundation of the UN Department of Peacekeeping Operations

December 20, 2005 Founding of UN Peacebuilding Commission with the passage of

A/RES/60/180 and S/RES/1645

October 16, 2017 The United Nations Mission for Justice Support in Haiti

(MINUJUSTH) is launched, raising the amount of active

peacekeeping missions to 14 and the UN’s field personnel in

peacekeeping to 110,000

Relevant UN Treaties and Events

● Review of the United Nations Peacebuilding Architecture, 12 May 2016, (A/RES/70/262)

http://www.un.org/en/development/desa/population/migration/generalassembly/docs/glo

balcompact/A_RES_70_262.pdf and 27 April 2016, S/RES/2282

https://undocs.org/S/RES/2282(2016)

● Report on Peacebuilding and Sustaining Peace, 18 January 2018, (A/72/707–

S/2018/43)

https://reliefweb.int/sites/reliefweb.int/files/resources/SG%20report%20on%20peacebuil

ding%20and%20sustaining%20peace.As%20issued.A-72-707-S-2018-43.E.pdf ● Measures to address sexual exploitation and abuse by UN peacekeepers, 11 March

2016, (S/RES/2272) http://unscr.com/en/resolutions/doc/2272

● Secretary-General’s report on special measures for protection from sexual exploitation

and sexual abuse (documents A/72/751 and A/72/751/Corr.1).

● Overview of the financing of the United Nations peacekeeping operations: budget

performance for the period from 1 July 2016 to 30 June 2017 and budget for the period

from 1 July 2018 to 30 June 2019, 28 February 2018 ( A/72/770)

http://undocs.org/A/72/770

● Board of Auditors’ report on United Nations peacekeeping operations for the financial

year ended 30 June 2017 document A/72/5 (Vol.II)

● United Nations peacekeeping operations for the financial year ended 30 June 2017

(document A/72/756)

Previous Attempts to solve the Issue

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Since 1948, the peace operations of the UN have taken steps towards modernization

and integration. Once again, there must be a larger commitment to preventing problems in the

first place rather than simply reacting to them.

Sexual Exploitation and Abuse

The past three Secretary-Generals have all stressed the implementation of a “zero-

tolerance policy” concerning sexual exploitation and abuse. There exists a Special Coordinator

tasked with improving the UN’s response to such crimes. She emphasizes that problems exist

within all areas of the organization and highlights the importance of a better framework to report

such allegations. The rights and dignities of victims must be safeguarded, impunity must be

eliminated, and there must be larger efforts towards education and outreach. The Special

Coordinator commended the contingents that refrain from appointing commanders to the field

that do not have prior peacekeeping experience, as well as the performance of daily

unannounced checks within the operation. Another effort to raise accountability has ben

restrictions on contingent members to wear civilian clothes outside and wander around the local

markets or villages. In nearly all missions, there are now Conduct and Discipline Teams with

similar goals. Troops are required to undergo trainings and briefings on behavior and conduct,

and the UN has indicated that compensation to contributing nations can be withheld should their

soldiers be found to be exploiting others. Another improvement has been efforts to identify the

identities or nationalities of the alleged perpetrators.

Peacekeeping

One proposal in the UN to increase the efficiency and lessen the bureaucracy around

peacekeeping has been to merge the Department of Political Affairs with the Peacebuilding

Support Office into a new body named the “Department of Political and Peacebuilding Affairs”.

Merging missions to the department of peace operations was another proposal, as was better

use of umoja.

Possible Solutions

Sexual exploitation

Put simply, UN Member States must adequately discipline their personnel and ensure

proper punishment. There must also be greater focus on misbehavior by civilian staff members

working in conjunction with the UN mission. More solutions could be leveling unequal gender

ratios of mission personnel and providing better welfare and more recreation for troops. In

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general, peacekeepers lack protection that could have effects on patterns of sexual abuse, as

well as on environmental management. The deployment of gender and child protection advisers

could also help improve the situation. Administratively, better frameworks for reporting and

accountability will be necessary.

Peacekeeping

Many of the issues within peacekeeping missions require better levels of accountability,

from underperformance to contributing states failing to investigate or discipline their troops. One

suggestion has been barring such states from providing troops or receiving reimbursements.

UN privileges and immunities have often stood in the way of accountability. Many administrative

measures, such as improving communication between the Department of Political Affairs and

DPKO, pre-deployment training on standards of conduct, practicing budgetary discipline, cross-

cutting issues, increased independence of the Office of Internal Oversight, and a better

delegation of authority within missions could all improve efficiency and integration. There must

also be work in improving coordination among different missions and between Headquarters

and the field. Consideration to enhance the role and raise the capacity of the Peacebuilding

Support Office may also be worthwhile. Steps likely also must be taken to decrease

dependence on troop contributing nations, as this perceived violation of national sovereignty

may deter them from contributing troops in the future, or even cause their withdrawal. More

efficient and integrated peacekeeping must have the ability to “do les with less”.

Conflict Prevention

The most straightforward approach to improving preventive operations would be to

reassess the asymmetry between resources allocated to peacekeeping and those allocated to

prevention, as this investment could save a lot of money in the long term. In conflict prevention,

it is important to incorporate analyses of local contexts and the conditions that may allow conflict

to arise. Building infrastructures for peace should be the top priority.

Environmental management

Utilizing modern technology, such as renewable energy sources, is imperative in

reducing the environmental footprint of peacekeeping missions. When a transition occurs, it has

often been the case that personnel do not receive necessary briefings on environmentally

conscious practices within the operation. Improved oversight and checks on such practices are

necessary to monitor progress in ecological conservation. Another measure may be the sharing

of aircraft among missions.

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Bibliography

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De Carvalho, Gustavo, and Adriana Erthal Abdenur. “Getting Clear about Conflict Prevention at

the UN.” Global Peace Operations Review, Peace Operations Review, 7 July 2016,

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at-the-un/.

KFC. “United Nations Peacekeepers: Which Countries Provide the Most Troops and Funding?”

Best Delegate, Best Delegate, 10 Jan. 2017, http://bestdelegate.com/united-nations-

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Reform.” Heritage.org, The Heritage Foundation, 3 Aug. 2016,

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demand-reform#_ftn13.

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“Special Political Missions: Supporting Conflict Prevention, Good Offices and Peacemaking.”

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and Press Releases.” United Nations, United Nations, 15 May 2018,

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Appendix/Suggested Reading

I. “United Nations Conflict Prevention and Preventive Diplomacy In Action.” Un.org, United

Nations Department for Political Affairs,

www.un.org/undpa/sites/www.un.org.undpa/files/Booklet_200618_fin_scrn.pdf.

II. Usden, Rebecca, and Hubertus Juergenliemk. “History of UN Peacekeeping.”

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Globalgovernance.eu, Global Governance Institute, Oct. 2012,

www.globalgovernance.eu/wp-content/uploads/2015/02/GGI-Factsheet-History-of-UN-

Peacekeeping_October2012.pdf.

III. Maertens, Lucile, and Malkit Shoshan. “Greening Peacekeeping: The Environmental

Impact of UN Peace Operations.” Ipinst.org, International Peace Institute, Apr. 2018

https://www.ipinst.org/wp-content/uploads/2018/04/1804_Greening-Peacekeeping.pdf.