Catherine Barnes, Global Partnership for the Prevention of Armed Conflict (GPPAC)

E-mail: [email protected]
Preventing Armed Conflict:
Responses to the Secretary-Generals Report, In
Larger Freedom, and recommendations for the High-
Level Plenary eeting
!" April !##$
The Global Partnership for the Prevention of Armed Conflict welcomes the UN
Secretary-Generals report, In Larger Freedom, and stronly s!pports his observation
that" #The world m!st advance the ca!ses of sec!rity, development and h!man rihts
toether, otherwise none will s!cceed$ %!manity will not en&oy sec!rity witho!t
development, it will not en&oy development witho!t sec!rity, and it will not en&oy either
witho!t respect for h!man rihts$'
(
)e affirm the vital importance of f!lfillin the
promise of the *illenni!m +evelopment Goals and the need to develop a new lobal
consens!s on peace and sec!rity based on reconition that threats are interlin,ed$ )e
believe that this consens!s sho!ld be rooted in common dedication to promotin the
sec!rity of people" their physical safety, their socio-economic well-bein, respect for
their dinity and identity as individ!als and as members of comm!nities, and the
protection and promotion of their rihts and f!ndamental freedoms in their homes,
comm!nities, co!ntries and in the wider world$ The e-!al participation of women and a
f!ll interation of ender perspectives is necessary to achieve these oals$
%& a'ing the shift to prevention& Armed conflict is both a sinificant threat to
f!lfillin sec!rity, development and h!man rihts and, in t!rn, is partly ca!sed by the
fail!re to f!lfil these rihts$ *ember States sho!ld affirm the .responsibility to prevent
and commit to a plan to dedicate the necessary reso!rces, instit!tional reforms and
policies to act to the f!llest e/tent by all peacef!l means to prevent violent conflict
from emerin, escalatin or reocc!rrin$ Governments and 0G1s need to mainstream
prevention and constr!ctive conflict manaement as f!ndamental oals of their
sec!rity instit!tions and instr!ments, as well as of their other policies and
prorammes$ The international comm!nity sho!ld increase the effectiveness of less
intr!sive and less coercive preventive meas!res by devotin more commitment and
reso!rces to them$ *ember States need to a!thorise the necessary chanes to the
si2e and mandate of the Secretariat to tr!ly achieve a c!lt!re of prevention$
!& Prevention and peace()ilding re*)ires effective partnerships$ 1ver recent
decades, civilians have bo!rn the br!nt of wars and violent conflict$ *en and women
all over the world have responded to these challenes with creativity and dedication$
Civil society oranisations 3CS1s4 have a broad rane of roles from relief and
development, to comm!nity-b!ildin and local conflict resol!tion, to advocacy and
civic action, to nonviolent accompaniment$ CS1s have enaed in peacema,in by
promotin dialo!e and peacef!l resol!tion of conflict, as well as respondin to the
rehabilitation, healin and reconciliation needs of s!rvivors of conflict$ They are often
effective in creatin safe spaces where people from all parts of society can come
toether and wor, in meaninf!l ways toward a better f!t!re$ *any CS1 actors are
close to the conflicts that they see, to address$ This pro/imity affords them access to
information and insihts that others may not have$ 0n some sit!ations, CS1s are more
acceptable to armed and opposition ro!ps than representatives of overnments and
0G1s, allowin them to play a positive role$ 5!rthermore, civil society plays a
1
In Larger Freedom: Towards Development, Security and Human Rights for ll. Report of the
Secretary-General. 21 March 2005. A/59/2005
sinificant role in b!ildin tr!st and strenthenin networ,s so that this .social capital
can foster peace and development$
Governments have primary responsibility to protect civilians and prevent violence$ 6et
the comple/ity, scale and diversity of conflict mean that no sinle entity, on its own,
can ens!re peace$ Comprehensive networ,s of relationships and actions are needed$
CS1s sho!ld be seen therefore as complementin partners with val!able contrib!tions
to ma,e in providin information and analysis, policy development and advocacy,
stratey desin and proramme implementation$ Governments and 0G1s sho!ld help to
strenthen civil society capacities by providin both practical s!pport and reconition of
the leitimacy of CS1s, within a rihts-based framewor,$ CS1s active in peaceb!ildin
and conflict manaement sho!ld have formal stat!s with UN and 7eional
1rani2ations$ There sho!ld be mechanisms to enae f!lly and systematically with all
inter-overnmental deliberative bodies, incl!din with the UN General Assembly$ There
sho!ld be well-developed modalities for practical cooperation across the rane of tas,s
needed to promote sec!rity, development and h!man rihts$ Governments, the UN,
7eional 1ranisations and CS1s need to b!ild their capacities to wor, effectively
toether to respond to conflict and the conditions that ive rise to them$ All need to
reconise that s!stainable sol!tions re-!ire the active participation of local
comm!nities$
Cluster I Freedom from Want
+& ainstream conflict-sensitive approaches and pro-prevention strategies
into national strategies and all policy and planning frame,or's$ Poverty
eradication is essential to achieve h!man sec!rity and dinity$ 5!rthermore, poverty
and violent conflict are often intrinsically interrelated$ *any conflicts are deeply rooted
in social, economic and c!lt!ral disparities, especially in the conte/t of !ne-!al access
to economic and social power and reso!rces$ 8iolent conflict and war serio!sly erode
and impede development prospects$ Accordin to the *illenni!m Pro&ect report, of the
9: co!ntries f!rthest from achievin the oals, ;; are emerin from conflict$
Prevention and s!stainable peaceb!ildin are therefore necessary to achieve the
*illenni!m +evelopment Goals< f!lfillin the *+Gs can, in t!rn, address some of the
root ca!ses of conflict and promote h!man sec!rity$ )e therefore aree with the
Secretary-Generals call to overnments to commit themselves to implementin the
development consens!s and f!rthermore recommend the followin"
a4 Any comprehensive national stratey to meet the *+G tarets sho!ld aim to
narrow divides between ro!ps within the society and ens!re the e-!itable
provision of services and infrastr!ct!re$
b4 Common Co!ntry Assessments, UN +evelopment Assistance 5ramewor,s, and
Poverty 7ed!ction Stratey Papers are important instr!ments to address the
str!ct!ral ca!ses of conflict$ Conflict-sensitivity sho!ld therefore be incl!ded in the
policy development process for each co!ntry, reardless of whether it is or has
recently been associated with a crisis$
c4 The UN and overnments m!st ens!re effective participation in the plannin and
policy development process of those who will be affected by decisions, incl!din
women, yo!th, minorities and indieno!s persons, and those displaced by conflict$
d4 All these principles sho!ld apply to the Consolidated Appeals Process 3CAPs4, the
Post-Conflict Needs Assessment and the Transitional 5ramewor,$ These
framewor,s sho!ld incl!de protocols for assessin meas!res to promote h!man
sec!rity in order to strenthen a comprehensive approach to prevention and
peaceb!ildin$ CAPs sho!ld e/plicitly incl!de initiatives to promote .social
cohesion and .peaceb!ildin$ 1C%A sho!ld be enco!raed to f!rther develop
fle/ible modalities, s!ch as reional CAPS, in order to be proactive in respondin
to emerin sit!ations$
Cluster II Freedom from Fear
-& ./ Peace()ilding Commission and s)pport office& )e s!pport the Secretary-
Generals proposal for this new body to mobilise reso!rces and enable coherent and
s!stained peaceb!ildin thro!h information-sharin, plannin and monitorin$ The
Commission sho!ld proactively enco!rae *ember States and others to re-!est its
advice and assistance at any stae, incl!din before violence has emered, to red!ce
ris,s by strenthenin national capacities for peace$ A senior UN official, representin
the Secretary-General, sho!ld serve as a leadin catalyst for UN system coherence in
peaceb!ildin at all levels, incl!din for ris,-red!ction oriented preventive
peaceb!ildin$
a4 The Commission sho!ld have mechanisms to f!lly and systematically cons!lt with
relevant CS1s = especially those from affected comm!nities = to ens!re that
strateies are responsive to the lon-term needs of the society, in f!lfilment of
international norms$
b4 The peaceb!ildin s!pport office sho!ld have a dedicated staff of hihly -!alified
men and women with e/tensive practical e/perience in wor,in with conflict,
incl!din in facilitatin dialo!e$ 0t sho!ld have close cooperation with the
operational aencies of the UN, incl!din in the development and h!man rihts
fields, and reional oranisations$ 0t sho!ld enae proactively with CS1s,
especially those from the society to which peaceb!ildin s!pport is offered, and
develop partnership areements where relevant$ The wor, of the office sho!ld
interlin, with the rane of other reional and in-co!ntry instit!tional mechanisms
for conflict-related matters$
$& ./ Co)ntry 0eams roles in prevention and peace()ilding& The UN Co!ntry
Team sho!ld !se its convenin capacities to brin toether different sta,eholders to
analyse iss!es and develop strateies to proactively address problems that can lead to
tension$ 0t can enerate reso!rces and provide prorammatic s!pport to help
implement necessary meas!res$
a4 To do this effectively, there sho!ld be a focal point for prevention and peaceb!ildin
within the UN Co!ntry Team to channel effective information flows and be a catalyst
to help coordinate appropriate responses, possibly b!ildin on the role of UN+P
peace and development advisors$ S>he sho!ld foster a framewor, for enaement
with local civil society and serve as a lin, between overnments and CS1s wor,in
on prevention and peaceb!ildin$
b4 The 7esident Coordinator > S7SG can establish advisory co!ncils$ S!ch bodies =
comprised of women and men from different social ro!ps and possibly
representatives of overnment, local a!thorities and reional oranisations =
co!ld wor, toward the development of &oint strateies to promote social cohesion
and h!man sec!rity$ They wo!ld help to ens!re that the overall stratey adopted
by international actors is sensitive to local needs$ 0deally, these co!ncils wo!ld
model m!lti-sta,eholder dialo!e-based approaches for wor,in with tensions$ 0n
larer co!ntries, co!ncils co!ld be established in different reions, especially
conflict 2ones, to more effectively enae people o!tside the capital$ 0n co!ntries
at-ris, of escalatin conflict, these co!ncils sho!ld f!nnel early warnin
information, analysis and ideas, as well as strateies emerin from local
processes, into national and international deliberations$ )here relevant, s!ch
co!ncils co!ld serve as part of the architect!re to promote implementation of the
terms of peace areements thro!h independent monitorin and mediation, as
well as providin advice on peaceb!ildin strateies$
1& o(ilising early response$ *ember States sho!ld s!pport a more systematised
approach to collaboration between the UN, reional oranisations and CS1s, both at
head-!arters and in the field, in order to interate early warnin and early response
systems$ Strateies sho!ld involve ,ey sta,eholders and e/perts to share information,
strenthen &oint analysis, identify options and opport!nities, and implement
strateies$ Systems sho!ld draw on local ,nowlede, with CS1s involved in eneratin
ideas abo!t how best to respond, incl!din in ways that ma,e best !se of their
capacities$ Systems co!ld incl!de formal arranements for cooperation in capacity
b!ildin, data collection and analysis, and stratey development to ens!re that these
mechanisms draw on the !ni-!e ,nowlede and capacities of all relevant actors$
2& Preventive diplomacy and programmes$ Altho!h peacef!l disp!te settlement
is the most cost-effective and s!stainable method, mechanisms at the national,
reional and international levels are !nevenly-developed and often reactive to crises$
Greater priority is needed for non-military, non-coercive and cooperative forms of
early-stae preventive action$ This can incl!de facilitatin de-escalatory dialo!e and
areements to address so!rces of conflict$
a4 0ncreased priority, technical assistance and f!ndin are needed for national
capacity b!ildin for conflict manaement$ These can incl!de commissions of
in-!iry, national reconciliation commissions, and platforms for national dialo!e to
address larer systemic iss!es< as well as systems to address specific cases
thro!h alternative disp!te resol!tion 3mediation, omb!dsman and ad&!dication
services4 and state instit!tions, s!ch as the leal system$
b4 *eas!res to promote the peacef!l settlement of disp!tes !nder Chapter 80 of UN
Charter sho!ld be strenthened, with reater emphasis on preventive diplomacy
as specified in Article 9:$ This sho!ld incl!de sit!ations involvin non-state actors$
c4 UN Secretary-Generals ood offices role and capacities for preventive mediation
and early stae disp!te resol!tion sho!ld be strenthened by providin additional
reso!rces$ Staff e/perienced in conflict analysis and resol!tion can offer assistance
by" 3a4 cond!ctin analysis and developin proposals< and 3b4 mediatin >
facilitatin dialo!e at early staes of prevention, incl!din thro!h the !se of
sh!ttle diplomacy and other formal and informal meetins with leaders of
overnment and opposition factions > militant ro!ps$ They sho!ld maintain lin,s
with CS1s who have complementary capacities$
d4 0ncreased reso!rces are needed to provide access to e/pert assistance on ,ey
disp!ted s!bstantive iss!es and on confidence-b!ildin meas!res$ They can st!dy
the sit!ation, elicit views and ideas from sta,eholders, and offer advice on
principles, strateies and prorammes to address challenes$ There sho!ld be
mechanisms to provide strateically tareted f!ndin and assistance to rapidly
implement initiatives and prorammes to address ,ey concerns and b!ild
confidence$
3& )ltif)nctional Peace 4perations$ To enhance cooperation in impendin crisis
sit!ations, the UN sho!ld wor, with other relevant actors, incl!din local and
international CS1s, to &ointly analyse needs, form!late ob&ectives and strateies, and
develop appropriate operational str!ct!res for effective cooperation$ These capacities
can be enhanced thro!h &oint trainin, scenario plannin, and eval!ation$
a4 To ens!re that the mandate and concept of operation are appropriate to address
needs and b!ild on local capacities, pre-deployment assessment missions sho!ld
actively involve the UN Co!ntry Team and incl!de systematic processes of
cons!ltin with CS1s 3incl!din those close to the potential or act!al armed
parties4 both inside and o!tside the co!ntry$
b4 *andates m!st incl!de a commitment to ender e-!ality$ Gender e/perts and
e/pertise sho!ld be incl!ded at all levels and in all aspects of peace operations,
incl!din in technical s!rveys and the desin of concepts of operation, trainin,
staffin and prorammes$
c4 )e s!pport the Secretary-Generals proposal to create interloc,in system of
peace,eepin capacities so the UN can partner with relevant reional
oranisations and th!s increase rapid response capacity$ There sho!ld be coherent
and interated mandates and leadership of peaceb!ildin and peace,eepin
efforts, which often need to happen sim!ltaneo!sly or overlap$ Priority sho!ld be
iven to establishin mechanisms for cooperation and clear channels of
comm!nication amon national, reional and international oranisations wor,in
on peace, possibly thro!h the development of re!larised m!lti-trac, for!ms$
d) This system sho!ld interlin, with civilian peace services" teams of e/perts with
specialised s,ills who can be rapidly deployed in emerin crisis sit!ations to
s!pport local peacef!l actors and, where necessary, provide a protective
accompaniment for local people$ The UN sho!ld develop rosters of specialists and
wor, with e/istin services ma,e shared lists, ta,in into acco!nt the importance
of c!lt!ral and ender differences as a ,ey reso!rce of s!ch teams$
e4 Peace operations m!st ens!re the comprehensive protection of civilians and non-
combatants, incl!din from se/!al violence and e/ploitation$ The Secretary-
Generals .2ero tolerance policy on the behavio!r of peace,eepers sho!ld be
rioro!sly enforced and violators bro!ht to &!stice$
f4 Priority sho!ld be iven to increase the basic safety of local peace actors,
incl!din thro!h h!man rihts monitorin presences and protective
accompaniment, as well as !nified international condemnation of all violators and
prompt action to prosec!te those responsible$
4 Prorammes for disarmament, demobilisation, reinteration and reconstr!ction
sho!ld be f!lly reso!rced and tailored locally to meet the specific needs of women
and men, irls and boys$ ?ocal comm!nities m!st be actively involved in plannin
and implementation prorammes and help to ens!re that these processes
enhance development and other peaceb!ildin tas,s$
"& Peace processes$ People in war-affected societies are the main sta,eholders of
peace and sho!ld not be left o!t of peace processes between overnment and armed
ro!ps$ CS1s can enae in processes to identify and debate ,ey iss!es that sho!ld be
addressed in the neotiatin aenda and, as relevant, to deliberate s!bstantive
meas!res to address them, !sin a rane of modalities incl!din m!lti-sectoral for!ms
convenin diverse civil society ro!pins with opposin views$ The UN sho!ld
enco!rae and s!pport CS1 involvement and ens!re that there are mechanisms for
p!blic participation in neotiations over s!bstantive constit!tional and policy matters
related to the f!t!re of the co!ntry$ 0nternational mediators and special envoys sho!ld
be informed of relevant initiatives and the s!bstantive ideas enerated and, if
appropriate, participate in them$ 7eso!rces, s,ills trainin, and advisors, as well as
opport!nities to learn from peace processes elsewhere, sho!ld be provided to increase
the capacity to enae effectively$ This can incl!de trainin in neotiation and policy
form!lation, as well as in the s!bstantive iss!es that will be addressed in the tal,s$
7enewed efforts and practical commitments m!st be made by parties to conflict,
international mediators, and the donor comm!nity to ens!re that women are
represented e-!ally at the decision-ma,in level in neotiations$
%#& 5eapons$ *ember States sho!ld commit themselves to the least diversion of the
worlds reso!rces to weapons and military capacities 3Art$ ;@, UN Charter4, directin
reso!rces to development and prorammes to promote s!stainable peace$ They sho!ld
aree and comply with a proposed arms trade treaty for conventional weapons, f!lly
implement the proramme of action on small arms and liht weapons and other
meas!res for practical disarmament, and ma,e sinificant proress in eliminatin
weapons of mass destr!ction$
%%& Private sector$ *ember states sho!ld develop interated policies and strateies
to ma/imise positive contrib!tions the private sector to prevention and peaceb!ildin
and to minimise potential neative roles in drivin war economies$ This can incl!de
both meas!res for positive enco!raement and by strenthenin re!latory standards,
partic!larly to re!late cond!ct in at-ris, areas and the behavio!r of the e/tractive
ind!stries and private sec!rity companies$ The Sec!rity Co!ncil can develop .smart
sanctions on those who e/ploit or e/acerbate armed conflict for their own profit$
%!& C)lt)res of peace$ 7enewed attention and reater reso!rces are needed
implement UN General Assembly 7esol!tion GA>7AS>B9>;:9 and the Proramme of
Action on a C!lt!re of Peace$ )e appeal to the UN to ens!re that intra- and inter-
aency cooperation is ma/imised and for *ember States to f!lly implement it thro!h
ade-!ate policies and f!ndin$
%+& Allocate more financial reso)rces more effectively administered for
prevention, peace operations and peace()ilding$ This sho!ld incl!de f!ndin
streams both for fle/ible rapid response initiatives and for loner-term processes of
conflict-sensitive development and peaceb!ildin$ This sho!ld incl!de &oint appeals to
donors to s!pport interated prorammes of CS1s and international oranisations$ )e
s!pport the creation of a vol!ntary standin f!nd for rapid implementation of post-
settlement peaceb!ildin activities$
Cluster III Freedom to Live in Dignity
%-& Responsi(ility to protect sho!ld be p!rs!ed in accordance with international
law and in a consistent manner, as artic!lated by the 0C0SS Commission and by
criteria advocated the Secretary-General$ Any !se of force is only &!stifiable as a last
resort$ )e note the primary responsibility to prevent, alon with the responsibilities to
react and to reb!ild$
%$& Preventing the crime of genocide$ Afforts and reso!rces are needed to
implement Action Plan for the Prevention of Genocide$ The new Special Advisor for the
Prevention of Genocide sho!ld be s!pported with the necessary staffin and reso!rces
to be effective in f!lfillin his important role$
%1& Promote f)lfilment of international norms and standards (y strengthening
the ./ h)man rights system& *ember states sho!ld provide additional reso!rces
and political s!pport for the f!ll and consistent compliance with all h!man rihts
standards$ The principal m!ltilateral for!m m!st be made more effective and sho!ld
have re!lar sched!led reviews of the h!man rihts accomplishments, shortcomins
and capacity-b!ildin needs of all co!ntries in respect of all h!man rihts based on an
impartial, transparent and ob&ective assessment$ 0t m!st ens!re the contin!ed active
participation of NG1s and b!ild on independent monitorin proced!res$ Assistance
sho!ld be offered to strenthen domestic mechanisms to implement international
standards and to promote r!le of law enerally, incl!din by b!ildin on the wor, of the
1%C%7 and thro!h the proposed 7!le of ?aw Unit in a peaceb!ildin s!pport office$
Cluster IV Imperative for collective action: strengthening the
United Nations
%2& Strengthen the capacities of the ./s deli(erative organs for leadership of
prevention and peace()ilding and effective engagement ,ith civil society&
a4 The General Assem(ly sho!ld be revitalised, as o!tlined by the Secretary-
General$ 0ts s!bstantive aenda sho!ld ive prominence to developin and
areein a proramme of action for prevention, incl!din thro!h the
development of Peace and Sec!rity Goals to complement the *+GS$ 0t sho!ld
establish mechanisms to enae f!lly and systematically with civil society$
b4 The Sec)rity Co)ncil sho!ld implement the recommendations of the Cardoso
Panel to strenthen the Co!ncils enaement with civil society$ 0t sho!ld improve
the plannin and effectiveness of the Arria form!la meetins by lenthenin lead
times and coverin travel costs to increase the participation of actors from the
field$ UN co!ntry staff sho!ld assist in identifyin civil society interloc!tors$
Sec!rity Co!ncil field missions sho!ld meet re!larly with appropriate local civil
society leaders, international NG1s and perhaps others, s!ch as b!siness leaders$
Sec!rity Co!ncil sho!ld contin!e thematic seminars to disc!ss iss!es of emerin
importance to the Co!ncil that incl!de presentations by civil society and other
constit!encies as well as UN specialists, s!ch as special rapporte!rs$ The Sec!rity
Co!ncil sho!ld convene independent commissions of in-!iry after Co!ncil-
mandated operations$
c4 The 6conomic and Social Co)ncil sho!ld also be revitalised to strenthen its
leadin role in development and economic cooperation and lin,in the normative
and operational wor, of the UN$ AC1S1C sho!ld ive prominence to promotin
str!ct!ral prevention and h!man sec!rity as well as post-conflict peaceb!ildin$ 0t
sho!ld cooperate closely with civil society to develop both thematic and sit!ation-
specific responses$
%3& Strengthen cross-(order and regional capacities$ *any of the factors that
ca!se conflicts or that enable them to become deadly have lobal and reional
dimensions$ The UN is mostly operational at either the co!ntry or lobal level, with
only limited capacities to address the cross-border dimensions of reional conflict
formations$ Addressin these factors systematically re-!ires interated strateies$
Afforts sho!ld be made to develop or strenthen appropriate mechanisms that can
create strateies to address these concerns$ These can ta,e place !nder the a!spices
of a reional oranisation, !nder the UN, or as a &oint instr!ment, dependin on the
e/istin m!ltilateral arranements in the reion$ )here no s!ch oranisations e/ist,
the UN can convene relevant actors$ Consistent with the s!bsidiarity principle, the UN
sho!ld fill in aps in a complementary and additive manner$ There sho!ld be a hih
priority on enain local and reional CS1s and networ,s and to e/plore mechanisms
for onoin cooperation and partnerships$ )here e/istin reional oranisations are
more closed, the UN can open space for CS1 involvement$ 5!ndin streams sho!ld be
available for 3s!b-4reional level initiatives$
%"& ainstream and integrate lon-term > .deep str!ct!ral prevention into the
wor, of A?? aencies, departments, and prorammes$ The mandates and policies of
all f!nctional aencies, prorammes and departments sho!ld contrib!te to prevention
and peaceb!ildin$ Aach sho!ld have a policy for enain civil society on these
matters$ *onitorin and reportin re-!irements sho!ld identify how they contrib!te
toward a .c!lt!re of prevention and efforts to wor, with CS1s$ %!man
reso!rces sho!ld be developed thro!h conflict resol!tion trainin alon with
ender and h!man rihts trainin to b!ild capacities and enable reciprocal
mainstreamin$ There sho!ld be increased strateic coordination across the
system$ This sho!ld incl!de f!lly interatin the ,nowlede and f!nctions of
the h!man rihts machinery with the peace and sec!rity machinery and the
wor, of the UN +evelopment Gro!p$ Anhance instit!tional learnin thro!h
re!lar eval!ations of how the UN as a whole system responded to specific
conflict sit!ations, !sin incl!sive and acco!ntable eval!ation practices that elicit
views from those in the conflict-affected society, amon others$