The Case of MINUSMA
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Prioritization and Sequencing of Peacekeeping Mandates: The Case of MINUSMA JUNE 2020 Introduction The UN Security Council is expected to renew the mandate of the United Nations Multidimensional Integrated Stabilization Mission in Mali (MINUSMA) in June 2020. While Malian stakeholders have recently taken steps to implement provisions of the 2015 Agreement for Peace and Reconciliation in Mali, the country’s fragile social contract and deteriorating security conditions place pressure on national and international actors alike. On May 20, 2020, the International Following significant changes to MINUSMA’s 2019 mandate (UN Security Peace Institute (IPI), the Stimson Council Resolution 2480), including the addition of a second strategic Center, and Security Council Report priority, the upcoming mandate renewal negotiations offer council members organized a virtual workshop to the opportunity to take stock of progress on the UN’s stabilization efforts in discuss the mandate and political Mali and refine its strategic engagement with the country. strategy of the United Nations Multidimen sional Integrated Stabili - In this context, the International Peace Institute (IPI), the Stimson Center, zation Mission in Mali (MINUSMA). and Security Council Report organized a virtual workshop on May 20, 2020, These discussions are part of a to discuss MINUSMA’s mandate and political strategy. This workshop series of workshops that examine provided a forum for member states, UN stakeholders, and outside experts to how the activities included in peace share their assessments of the situation in Mali. The discussion was intended operations’ mandates can be better to help the Security Council make more informed decisions with respect to the prioritized, sequenced, and strategic orientation, prioritization, and sequencing of the mission’s mandate grounded in political strategy. This and actions on the ground. was the fourth consecutive year in The workshop’s discussions focused on recent developments in Mali and on which these partners convened the mission’s current mandate. They highlighted opportunities and challenges discussions in support of the for consolidating political reforms and implementing key provisions of the mandate negotiations on MINUSMA. peace agreement. The discussions also underscored the centrality of This meeting note was drafted MINUSMA’s support to the protection of civilians and the pursuit of a collaboratively by IPI, the Stimson stronger, Malian-led approach to promoting human rights and accountability Center, and Security Council Report. and strengthening state institutions. Participants reflected on MINUSMA’s It summarizes the main points raised stabilization role in a landscape filled with national and international actors in the discussion under the Chatham and discussed how it may take additional time for the UN to see gains from House rule of non-attribution and the shifts in the mission’s 2019 mandate. does not necessarily represent the views of all participants. The project Participants largely agreed that MINUSMA’s current mandate remains is funded with the support of the relevant but pointed to various pressing issues that should be resolved over government of Canada. the next mandate cycle to maximize the mission’s effectiveness. The mandate could better refine MINUSMA’s role in supporting the G5 Sahel Joint Force. Additionally, MINUSMA requires the budget and resources necessary to become more agile, as recommended in the secretary-general’s force adapta- 2 MEETING NOTE tion plan.1 Participants also proposed reinforcing importance of successfully completing the election existing provisions of the text to better contex - process. The new National Assembly is now tualize the UN’s engagement in the country over expected to play an important role in shaping the coming year, including by strengthening Mali’s constitutional reform agenda and in MINUSMA’s role as a political guarantor, pursuing a more consensual approach to reinforcing provisions on the protection of implementing the peace agreement. civilians, and focusing more on the mission’s support to human rights and accountability. While Recent efforts to boost women’s participation in the COVID-19 pandemic has forced MINUSMA Mali’s political processes represent another to adapt to new operational complexities, partici- tangible area of progress. The newly constituted pants did not feel that the Security Council needed National Assembly has forty female members, up to adjust the mission’s strategic orientation in from the fourteen who sat in the previous response. Assembly. This also brings Mali’s government closer in line with the 2015 law that mandated that women comprise at least 30 percent of the Conflict Analysis country’s legislative body. The successful convening in January 2020 of an inclusive, high- MINUSMA has spent much of the past year level workshop on ensuring the “full, effective adapting its engagements to align with the revised participation of women in the mechanisms 2 strategic priorities set forward in Resolution 2480. established by the agreement to support and The mission’s dual strategic priorities—supporting monitor its implementation” also led to the the implementation of the peace agreement and the appointment of six women to the monitoring stabilization of Mali’s center region—are at the committee (Comité de suivi de l’accord), in line core of its political engagement and support to with a Security Council benchmark.3 protection. These efforts are unfolding in an operationally complex environment that remains While these tangible results are positive, Malian one of the most dangerous facing a UN peace- women’s participation in peace and reconciliation keeping operation. processes remains limited, despite the govern- ment’s endorsement of international conventions Mali’s Political Situation such as UN Security Council Resolution 1325 (2000). For instance, women are currently excluded Mali’s peace agreement, signed in 2015, continues from transitional authorities in the northern to be regarded as the most comprehensive political regions such as Ménaka. Some participants framework for long-term stabilization. Although therefore called for a more concerted focus on many provisions of the agreement have not been gender inclusion in the implementation of the implemented, some major milestones have been peace agreement at the local level, with support achieved since the beginning of 2020. Participants from MINUSMA. highlighted that Mali’s Inclusive National Dialogue, a consultative, multi-stakeholder process Participants cautioned that the country’s social that concluded in December 2019, provided an contract remains fragile. One individual impetus to the implementation of key provisions of emphasized that low voter turnout for the elections the agreement, starting with the holding of parlia- and multi-city protests against the Malian mentary elections in March and April 2020. Constitutional Court’s confirmation of the election results may have an impact on the legitimacy of the Despite threats to the parliamentary elections new Assembly. Underlying social pressures and (underscored by the kidnapping of opposition grievances remain, which participants linked to political leader Soumaïla Cissé) and very low voter demonstrations across various sectors of Malian turnout, workshop participants affirmed the society over the past year. Some participants 1 UN Security Council, “Situation in Mali: Report of the Secretary-General,” UN Doc. S/2019/983, December 30, 2019, paras. 60–61. 2 UN Security Council Resolution 2480 (June 28, 2019), UN Doc. S/RES/2480. 3 Ibid., para. 4. Prioritization and Sequencing of Peacekeeping Mandates: The Case of MINUSMA 3 encouraged the Malian authorities to work toward counterinsurgency doctrine of the Malian Armed national unity and build confidence within civil Forces is needed, with the measure of success society. They underscored that maintaining switching from the number of insurgents killed to relative political stability will be necessary to the number of civilians protected. Finally, one undertake difficult political reforms, including the participant noted that most international support constitutional reforms foreseen by the peace for security sector reform in Mali had focused on agreement and the recommendations of the training and equipping the armed forces rather Inclusive National Dialogue. than developing the capacity of the Malian govern- ment to oversee them. State Authority and Legitimacy Security Conditions The Malian government remains unable to guarantee the security of the population Over the past year, security conditions across Mali throughout the country. Participants underscored have deteriorated due to increased cross-border that the lack of effective, inclusive, and accountable attacks across the region, alongside an upsurge in state institutions, and particularly of a security intercommunal violence. At the local level, presence, is a persistent challenge that exacerbates intercommunal violence spurred by competition threats to civilians, with one participant citing the between militias and self-defense groups persists, army’s departure from Ogossagou as a cause of the causing many casualties. In February 2020, the repeat attacks in the town in February 2020. The village of Ogossagou was attacked, eleven months vacuum left by the state has been filled by self- after a previous massacre of more than 160 people defense militias that are often aligned with ethnic that had prompted the UN