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Security Council Istanbul Retreat: Strengthening Cooperation Between the Security Council and Regional Organizations

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Security Council Istanbul Retreat: Strengthening Cooperation Between the Security Council and Regional Organizations Security Council Istanbul Retreat: Strengthening Cooperation between the Security Council and Regional Organizations JUNE 2015 Introduction The role, relevance, and influence of regional and subregional organizations in the area of international peace and security have increased in recent years. This development of regional multilateralism, or mini-multilateralism, is On April 11–13, 2014, the government reflected in the growing interaction between regional organizations and the of Turkey and the International UN Security Council, and in calls for a reassessment of this evolving dynamic, Peace Institute (IPI) co-hosted the its opportunities and challenges. fifth Istanbul Retreat of the United Nations Security Council in Istanbul, The UN Charter unequivocally established the Security Council as the Turkey. The retreat gathered mem - principal organ charged with the maintenance of international peace and bers of the UN Security Council, as security. However, the charter also foresaw a role for “regional arrangements” well as current chairs and high-level officials of a number of international with respect to the peaceful settlement of disputes and their contribution to and regional organizations to exa - the maintenance of peace and security, with the explicit understanding that mine how the Security Council and such efforts are subordinate and made known to the Security Council as regional organizations may more stipulated in Chapter VIII of the charter. effectively work together on issues concerning international peace and Official discussions within the Security Council concerning this interplay security. In an off-the-record setting, began in 2003, when the council held its first open debate on its relationship discussions sought to build on with regional organizations in the maintenance of international peace and existing mechanisms for strength - security. 1 Since that date, multiple council debates have been held on this ened cooperation between the UN Security Council and regional organi - subject. In 2005, the council adopted its first resolution on cooperation zations on areas of conflict preven - between the UN and regional and subregional organizations, Resolution tion, peace operations, counter - 1631. 2 More recently, in July 2014, the council passed Resolution 2167, which terrorism, and humanitarian crises, highlights partnership and cooperation between the UN and relevant regional with particular emphasis given to 3 prevention. and subregional organizations in peacekeeping operations. In August 2013, the council issued a presidential statement stressing the importance of contin - This meeting note synthesizes the uing to develop effective partnerships between the UN and regional organiza - key themes and ideas for enhanced cooperation that emerged from the tions, highlighting the role of regional and subregional organizations in the retreat, the latter of which are peaceful settlement of disputes, including through conflict prevention, summarized in the Annex. The confidence-building and mediation efforts, as well as peacekeeping and meeting note was drafted by postconflict peacebuilding worldwide. The presidential statement also Margaret Williams, a policy analyst at IPI. It is not verbatim and reflects expanded space for cooperation with regional organizations on thematic the rapporteur’s interpretation of issues such as women, peace, and security; children and armed conflict; the meeting, not necessarily the counterterrorism; and the rule of law. views of all of the participants. The Security Council’s relationship with specific organizations, including IPI owes a debt of thanks to its many the African Union (AU), the Organisation of Islamic Cooperation (OIC), the generous donors. In particular, IPI would like to thank the government of Turkey, the Permanent Mission of 1 Security Council Report, “Update Report No. 3: The UN and Regional Organisations,” September 18, 2006, Turkey to the United Nations, and available at www.securitycouncilreport.org/update-report/lookup-c-glKWLeMTIsG-b-2071503.php . the Nigerian presidency of the 2 UN Security Council Resolution 1631 (October 17, 2005), UN Doc. S/RES/1631. 3 UN Security Council Resolution 2167 (July 28, 2014), UN Doc. S/RES/2167, available at www.securitycouncilre - Security Council in April 2014, for port.org/atf/cf/%7B65BFCF9B-6D27-4E9C-8CD3-CF6E4FF96FF9%7D/s_res_2167.pdf . making this project possible. 2 MEETING NOTE League of Arab States, the European Union (EU), between the council and regional and subregional and the Organization for Security and Co- organizations: interpretation of Chapter VIII; operation in Europe (OSCE), has also been the comparative advantage, impartiality, and steps for subject of the body’s open debates, briefings, and shared intervention; and strengthening communi - high-level meetings, with several calling for the cation. establishment of dedicated high-level channels of INTERPRETATION OF CHAPTER VIII communication between regional organizations Regional and subregional organizations have and the council. played a role in sustaining cease-fires and peace As of today, the council maintains relations with processes; addressing emerging and chronic regional organizations through several means and regional challenges; and maintaining the peace in formats. Organizations, such as the EU and the regions following the departure of the international OSCE, regularly brief the council. Since 2007, community. However, a practical understanding of members of the council have held annual meetings the different mandates, history, capacity, and legal with the council’s AU counterpart, the Peace and imperative of regional and subregional organiza - Security Council, alternating between their respec - tions has yet to be achieved. Given the real tive headquarters. Operationally, the cooperation possibility of overstretch for the council, revisiting between the UN and regional organizations is quite Chapter VIII of the UN Charter has become varied, ranging from the multiyear, jointly led increasingly relevant to better understand the hybrid peacekeeping operations between the AU division of roles between the council and “regional and the UN, to the less institutionalized, more ad arrangements.” Not all matters of peace and hoc operational engagement with regional organi - security warrant the council’s attention, or its zations on specific topics, such as organized crime. intervention. A stronger working knowledge of As organizations try to keep pace with rapidly Chapter VIII, as well as the extraordinarily varied evolving international peace and security composition of regional and subregional organiza - dynamics, a more comprehensive and practical tions that exist, may significantly enhance the understanding is needed of the relationship and effectiveness of cooperation for peace among the opportunities for cooperation between the council members of the international community. and regional organizations, with their varied COMPARATIVE ADVANTAGE, structures, mandates, and capacities. This IMPARTIALITY, AND STEPS FOR understanding remains an imperative even more so SHARED INTERVENTION today, as nearly twenty years have passed since then Regional organizations can be quite effective in secretary-general Boutros Boutros-Ghali laid down conflict prevention and resolution in situations the UN strategic vision for this interaction in the beyond the immediate interest of larger powers. Supplement to an Agenda for Peace. Yet, as regional Regional organizations also often have the compa - organizations develop both an interest and an rative advantage of shared geographic location and ability to lead efforts to secure peace and stability, cultural affinity. However, such proximity may doctrinal and operational divergence has started to bring with it political interests, raising questions of emerge, whether the issue is supply of troops, impartiality and neutrality, as has been the case in logistics, funding, or leadership. South Sudan. Likewise, council action (e.g., in Against this backdrop, the government of the Libya) or inaction (e.g., in Burundi) can be often Republic of Turkey, in collaboration with the viewed as an expression of certain political interests International Peace Institute, held an informal of more powerful states. retreat of the council in April 2014 to think Therefore, it would be valuable to further explore creatively about inter-organizational dynamics and and develop strategies for shared interventions to opportunities for strengthened cooperation in both ease concerns that they are primarily political conflict prevention, peace operations, counterter - tools of regional and/or international powers and rorism, and humanitarian crises. Throughout the to prevent the internal political dynamics of either sessions, the following crosscutting themes were the council or regional organizations from judged as relevant to strengthened cooperation adversely affecting the design or implementation of Security Council Istanbul Retreat 3 a mission. However, certain situations have shown which nonstate armed groups, criminal actors, and that regional organizations and the council are not violent extremists operate within and across always able to make the same policy choices. In the borders and regions, developing effective recent crisis in Ukraine, for example, the EU and mechanisms to prevent armed conflict or a relapse NATO chose to levy sanctions (at the urging of into violence has become imperative. Proactively their more powerful member
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