From Confidence Tricks to Confidence Building: Resolving Conflict in the OSCE Area

From Confidence Tricks to Confidence Building: Resolving Conflict in the OSCE Area MAY 2011 This meeting note was prepared by On April 3, 2011, the International Peace Institute (IPI) convened in its Vienna Walter Kemp, Director for Europe office a meeting to discuss confidence-building measures in the OSCE area. The and Central Asia, with assistance meeting's participants included representatives of the OSCE’s participating from Ian Hrovatin and David states, executive structures, and Parliamentary Assembly, as well as interna - Muckenhuber, all of IPI Vienna. tional experts. Discussions were held under the Chatham House Rule of It is based on written and oral nonattribution. contributions made by participants at a workshop on confidence- Background building measures in the OSCE area. It reflects the rapporteur's interpre - The Organization for Security and Co-operation in Europe (OSCE) was a tation of the discussions and does pioneer in introducing confidence- and security-building measures (CSBMs). not necessarily represent the views For example, it did so in the 1986 and 1994 Vienna Documents, which have of all other participants. since been updated. These measures are designed to improve transparency Sharpening its international profile and predictability in achieving disarmament, and to build trust between and broadening its reach to Europe parties, in order to reduce tensions and avoid the use of force. CSBMs have and beyond, IPI announced the been instrumental in reducing tensions in, for example, Southeastern Europe establishment of its new Vienna office in September 2010. and the South Caucasus. IPI has had a forty-one-year partner - However, the nature of conflict has changed. Inter-ethnic disputes, ship with Austria, manifested by the intrastate conflicts, and low-level, multicausal conflicts (e.g., concerning annual Vienna Seminar that brings language, education, use of symbols, and power-sharing) are replacing the together policymakers, academics, more traditional interstate conflicts, which were previously the domain of and military experts to discuss highly centralized political and military commands. Economic issues and pressing issues of peace and transnational threats are also having an increasing impact on stability. security, and to explore ways of improving the global system of As the causes and types of conflicts change, so too must the responses. There conflict prevention and risk manage - may be occasions when nonmilitary confidence-building measures (CBMs) ment. can play a key role in reducing tensions. Examples include people-to-people An independent, international, not- contacts; joint solutions to humanitarian problems; cultural, educational, and for-profit think tank, IPI was sports exchanges; and joint economic projects. Such measures should be founded in 1970 in New York and considered as part of a cumulative process to increase confidence and build since its inception has occupied understanding between communities. This is vital for preventing conflict and offices across from United Nations fostering postconflict rehabilitation. headquarters. The Vienna office is During the Corfu process (initiated in 2009 to strengthen the effectiveness the first that IPI has created outside of the OSCE), OSCE participating states on several occasions discussed the of New York. need to strengthen confidence-building measures. For example, in the context IPI owes a debt of thanks to its many of enhancing the role of the OSCE in early warning, conflict prevention, and generous donors, particularly resolution, there was a call for the organization to pay more attention to CBMs Austria, Liechtenstein, Lithuania, and the United States, whose among affected communities. CBMs were also discussed in the context of 1 support made this publication further developing the OSCE’s cross-dimensional approach to security. possible. 1 See OSCE, Interim Report Summarizing Proposals Put Forward Within the Corfu Process , OSCE Doc. CIO.GAL/117/10, July 2, 2010. 2 MEETING NOTE In the Astana Commemorative Declaration of Confidence building is inherently about creating December 2, 2010, OSCE participating states the right context for peace processes to be reaffirmed their commitment “to strengthen successful. By changing relations and behavior, one security, trust and good-neighborly relations can create a new context for resolving a conflict. among our States and peoples.” They also Following this logic, CBMs are about steps that can recognized that the OSCE “continues to provide a give your opponent confidence in you as a reliable, unique forum” for “promoting open dialogue, accountable, and trustworthy interlocutor. preventing and settling conflicts, building mutual The underlying premise is that small steps are a understanding and fostering co-operation.” necessary means to foster an improved political Furthermore, they acknowledged “the climate and lead to further steps, agreements, and, Organization’s significant role in establishing ultimately, cooperative relations. However, CBMs effective confidence- and security-building are not about package resolutions to conflicts, but 2 measures.” about measures to change the climate in which What are CBMs? How are they different from, these more complex and fundamental issues can be and complementary to, CSBMs? How can they be negotiated. more effectively applied in the OSCE area? This was It was observed that communication is an the focus of a workshop hosted by IPI on April 3, indispensible, but not sufficient, component of 2011. The meeting was held on the eve of the “5+2” building trust and confidence. Other essential negotiations—involving Moldova, Transdniestria, ingredients are political will and interlocutors who the three mediators (Russia, Ukraine, and the demonstrate integrity, act with predictability, and OSCE), and two observers (the United States and remain consistent in their policies. the European Union)—which are designed to CBMs should come from the bottom up as well as promote the settlement of the Moldovan- the top down. Indeed, the former can stimulate the Transdniestrian conflict. This meeting report latter. Several years after a conflict, people on either reflects the discussions during the workshop. side of the divide may no longer know each other. What are CBMs? Cooperation in the spheres of education, trade, culture, sport, or tourism can bring people back The first panel looked at CBMs in general, together, and create new bonds that overcome old including lessons learned and examples from misunderstandings. Joint research and study tours international experience. can also open up new channels of thinking and ways of communicating. Civil society can be the The first speaker characterized CBMs as “an vanguard for stimulating such people-to-people essential element of repairing any distorted contacts. relationships by de-demonizing the other.” He underlined the challenge of changing the historical Such contacts are most beneficial when they perception and narrative of each party to the address real daily needs; for example, cooperation conflict. among fire departments, police, and people dealing with humanitarian issues or natural disasters. In Another speaker said that effective confidence this way, small, practical steps at the community building is about demonstrating a commitment to level can create a public climate conducive to seeing the other side receive a dividend. In doing higher-level political cooperation. so, the credibility of the demonstrator is enhanced and there is greater confidence that current and Events can trigger CBMs, even unintentionally. future commitments will be fulfilled, thereby Examples include sports diplomacy (like the recent creating a positive or beneficial spiral in relations. India-Pakistan cricket match during the World Thus, confidence building is about honoring Cup and the Armenia-Turkey football match) and agreements, so that deeds and not just words can be natural-disaster diplomacy, leading to support taken seriously in order to reshape relationships. programs in situations after earthquakes or 2 Astana Commemorative Declaration , 2010, available at http://summit2010.osce.org/sites/default/files/documents/444.pdf . 3 tsunamis, as was the case between Turkey and A participant explained how the purpose of Greece and between Indonesia and Aceh. CBMs changes over time. In the short term, they In some cases, a political gesture may create the aim to arrest an escalating crisis before the outbreak opening for reconciliation. As one speaker pointed of major violence or to stabilize an immediate post- out, gestures of political will that signal positive ceasefire situation. In the medium term, CBMs are intent can be a significant contribution to meant to increase contact and trust between conflict confidence building. He stressed that one should parties and socialize them into a new approach to not underestimate the power of symbolism to shift addressing their dispute. In the long term, they can perceptions and change the way opponents see one play a crucial role in paving the way to, and another, because symbolic acts can demonstrate sustaining, a meaningful conflict settlement. that a party is prepared to take seriously the The case of Northern Ireland was cited: for interests, concerns, and grievances of its current or example, a joint declaration in 1993 by the British erstwhile opponent. and Irish prime ministers gave essential commit - One example is Willy Brandt in 1970 kneeling at ments to the conflict parties

Load more