The World As It Is and the World As It Should Be

A FORUM FOR PEACE AND SECURITY IN THE 21ST CENTURY SEPTEMBER 2013 BUILDING PEACE 2 PREVENTING DEADLY CONFLICT

The World As It Is and The World As It Should Be

Interview with United Nations Deputy Secretary-General Jan Eliasson

SEPARATE TRACKS, EARLY WARNING, EARLY THE BUSINESS OF COMMON GOALS: RESPONSE: LESSONS PREVENTING ARMED PREVENTING GENOCIDE FROM SRI LANKA CONFLICT AND CONFLICT BUILDING PEACE 2 PREVENTING DEADLY CONFLICT A FORUM FOR PEACE AND SECURITY IN THE 21ST CENTURY

3 A Letter from the Editor-in-Chief 26 Early Warning, Early Response: Lessons from Sri Lanka ON THE GROUND Madhawa “Mads” Palihapitiya

4 Playing Fair: Using Sports to 30 The Business of Preventing Avoid Conflict in Nigeria Armed Conflict Michael Olufemi Sodipo Angela Rivas Gamboa

6 Letting the Other In: Conflict PROOF OF IMPACT Prevention in Myanmar Emma Leslie 32 Overcoming Obstacles to Peace Laurel Miller 8 Bringing Up the Child: Local Conflict Prevention Mechanisms NOTES ON POLICY 6 in Kenya Alice Wairimu Nderitu 34 The Atrocities Prevention Board: An Experiment in Genocide INTERVIEW Prevention Systems Andrea Bartoli 12 The World As It Is and The World As It Should Be: Interview with 36 Reminders of the Promise: Civil United Nations Deputy Secretary- Society and the Responsibility to 12 General Jan Eliasson Protect Melanie Greenberg Don Deya

FEATURES REVIEWS

17 Separate Tracks, Common Goals: 38 Documentary Film Review: Preventing Genocide and Conflict “A Whisper to a Roar” Lisa Schirch Julia Roig

21 21 A Living Reality? The 40 Book Review: Responsibility to Protect and the “Give Peace a Chance” Prevention of Genocide and Mass Darynell Rodriguez Torres Atrocities Alex J. Bellamy BY THE NUMBERS

24 Beyond the Last Resort: The US 41 Conflict Prevention Facts Military and Conflict Prevention Janine Davidson

Dear Reader,

In many areas of our lives, we under- a government and armed groups to main- stand that an ounce of prevention is worth tain the peace, as occurred in Myanmar. In a pound of cure. In medicine, we talk Nigeria, preventing violence starts on the about ways that we can watch our diet and playground, thanks to a sports project that blood pressure to avoid problems later. In brings together children from various reli- highway safety, we talk about using seat gious and ethnic groups and teaches them belts and air bags to prevent injury. The how to deal with intercultural prejudices same is true for building peace. There are and different values. Private companies many ways to prevent a conflict from esca- operating in Colombia have invested in lating to violence, but these efforts are not conflict prevention initiatives to sustain documented nearly enough, nor are they and grow their businesses. held up as successes for other communities, policymakers, or funders to emulate. Despite current armed conflicts that plague This issue of Building Peace focuses on our world, there are powerful alternatives creative interventions, from individual, to war and violence. Thanks to the dedi- community, and governmental points of cated and relentless efforts of peacebuilders view, designed to prevent deadly violence. across the globe, we are increasingly able to understand the roots of deadly violence Just as one medication cannot cure and better equipped to prevent future every illness, there is no one-size-fits-all conflicts. As always, we encourage you approach to conflict and violence preven- to contact us with your own reactions and tion. Successful prevention requires a deep ideas to Building Peace. contextual understanding—at the human, social, economic, and political levels. Warmly, Armed with this local awareness and the critical skills to train, advocate, mediate, Jessica Berns or build coalitions, peacebuilders around Editor-in-Chief the world are uniquely positioned to appre- Building Peace ciate the underlying causes of tension and assess which tools or strategies will be most effective in fostering peace and preventing conflict from erupting.

In this issue, you will learn about successful violence prevention initiatives. These efforts are sometimes designed and implemented by traditional peacebuilders (e.g., educators and trainers) and other times are the work of actors one might not normally designate as peacebuilders (e.g., private sector companies). For instance, a nongovernmental organization mediates between

September 2013 3 ON THE GROUND NIGERIA PHOTO: SODIPO

PLAYING In May 2004, I survived a violent riot Brutal ethno-religious violence has been in Kano, a city in northern Nigeria. common in Nigeria since the country Young men swarmed through the streets of returned to civil rule on May 29, 1999. my neighborhood, burning and destroying Given Nigeria’s heterogeneous society, randomly in retaliation to the ethnic with people of diverse ethnic, linguistic, violence in Yelwa and Shendam in central and cultural backgrounds, competition for FAIR Nigeria. I was attacked simply because I socioeconomic resources is acute. This am not an indigene of Kano. I have lived in competition heightens ethnic identities so Using Sports to Kano for twenty-eight years, but because much that community loyalty takes prece- I hail from southwest Nigeria teenagers dence over national loyalty. Democracy Avoid Conflict in turned terrorists burned down my home has offered Nigerians a channel to vent Nigeria and car. their frustrations with unfulfilled expectations and question whether Nigeria should I know how deep the wounds are on all remain a unified country. But ethnic poli- by Michael Olufemi Sodipo sides in Nigeria, how deeply rooted preju- tics still threaten Nigeria’s sovereignty dices are in people, yet I can still hardly and territorial integrity, due largely to the believe the attacks occurred. Instead of self-aggrandizement of a few politicians. seeking revenge, however, I sought peace. The sociopolitical situation for minorities I asked why young people harbored so and settlers (i.e., nonindigenes) continues much hatred and had so little hope for their to worsen. own futures, and I vowed to do something that would make a positive difference. The On May 27, 2006—Children’s Day in Peace Initiative Network, an organiza- Nigeria—the Peace Initiative Network, in tion that focuses on peacebuilding, is my partnership with the British Council, inau- contribution toward a peaceful world. It gurated the Peace Club project for young arose from my intense desire to do my part people in northern Nigeria to promote in finding solutions to the crises and devel- dialogue and understanding through peace opmental challenges confronting Africa education and sports. The project brings and Nigeria in particular. young Muslims and Christians, indigenes

4 BUILDING PEACE As the children learn to be creative together and to think inclusively, adults from different ethnic groups now they often assume the role of the invite each other to christening ceremo- facilitator themselves. nies, weddings, and funerals, which was not common before.

The Peace Club project for young people and settlers, together using sports to bridge with intercultural prejudices and different in Nigeria shows how sports can be used

PHOTO: SODIPO the divides among them. The club started values. Every dispute and activity ended in to promote peace. But sports can clearly with 50 members—30 boys and 20 girls— a discussion in which participants contrib- cause conflict as well, so a sports- proj from 7 high schools in Kano. Currently uted to its resolution. In other words, the ect’s success depends greatly on how it is the club has over 8,000 members from learning process would not have existed designed. Well-designed sports activities 60 schools in 4 Nigerian states. In 2009 without the conflicts. As 17-year-old club that incorporate the best values of sports it received support from Generations For member Yusuf Ibrahim responded during a and peacebuilding principles—such as Peace (GFP), an organization in Jordan. project assessment, “Before attending this acceptance, cooperation, inclusion, respon- program I used to hate Christians. But now, sibility, respect, and trust—help build the The project team chose Kano as the loca- I have learnt through Peace Club to love values and communication skills people tion for Peace Club’s pilot project, training and appreciate them.” need to prevent and resolve conflicts in young people from both religions and their own lives. When integrated prop- diverse ethnic groups as peer educators Most conflicts in Nigeria are in fact not erly with other community programs and and coaches—not for athletics but for a religious or ethnic; they are given ethnic services, sports initiatives can also connect new system of thinking. Young people or religious expressions for political participants to resources that help them in are taught to think and act as global citi- reasons. But such expressions were very this process, such as health services, educa- zens—to question ethnic stereotypes visible in our project, due in part to the tion, and employment opportunities or and prejudices. Since schools, especially influence of certain sociocultural and reli- assistance in starting a small business. To in Kano, are separated by gender and gious teachings that reinforced stereotypes enable a sports program to unleash its full ethnicity, the Peace Club also promotes a and prejudice among the students. For positive potential, coaches must monitor constructive approach to religious, ethnic, example, a child who loses the ball during and guide its activities effectively. gender, and linguistic diversity. a game might begin insulting another ethnic group. Addressing the problem Michael Olufemi Sodipo is the founder Peace Club members meet once a week. immediately prevented the conflict from and project coordinator of Peace Sessions usually begin with a game of escalating. Initiative Network, a nongovernmental soccer, basketball, or volleyball. When organization (NGO) that focuses on the game turns unfair—for example, if the In addition, the Peace Club offers skills for peacebuilding and good governance ball is not passed to younger children or breaking down prejudices and mistrust of based in Kano, Nigeria. to girls—the facilitator pauses the game. the parents—many of whom initially did The children then come together and think not want their children to participate in the about how to change the rules of the game project. Peace Club facilitators do a great to make it more inclusive and fairer. They deal to build trust among members. The may include more girls and decide, for youth also independently plan intercultural example, that a goal scored by a girl earns activities within communities such as field double the points. As the children learn trips and “town hall meetings”—interfaith to be creative together and to think inclu- dialogues in which parents, community sively, they often assume the role of the leaders, and religious groups participate. facilitator themselves. The program’s influence on parents has been one of its most exciting successes, In the project’s early stages, physical fights though the change is not as great as it is would break out at times among students among the children, who have developed from different backgrounds. But these close friendships. Peace Club programs conflicts brought important issues to the have revived old acquaintances among table for dialogue, such as how to deal parents that the crisis had destroyed, and PHOTO: SODIPO

September 2013 5 ON THE GROUND MYANMAR PHOTO: TAROTASTIC

LETTING THE OTHER IN Conflict Prevention in Myanmar

by Emma Leslie

Kyoko Okumoto, a well-respected with establishing a peace process. At of Myanmar’s generals. Its leadership— Japanese peacebuilder, once said to the time, CPCS had been working in myself included—agonized for two days me, “I firmly believe that to be an Myanmar for a decade to strengthen its over the right response. In the end, we effective peacebuilder you need to peace infrastructure (and ability to estab- decided to suspend our fears, make a be able to trust.” By trust she did not lish peace), even as the country had been psychological shift, take a risk, and accept mean a blind, naïve faith in whomever or beset by a series of civil wars and strug- U Aung Min’s invitation to engage on a whatever comes along; she meant a will- gles for ethnic and subnational autonomy. more official level, supporting peace nego- ingness, across cultures, faiths, political Amid the diverse actors drawn into the tiations. Despite our reservations about affiliations, and gender, to allow the other complex conflict, the center identified a affiliating ourselves with government offi- in—that is, to suspend all our prejudices lack of political analysis, strategic plan- cials, initial meetings with the minster and and stereotypes. Such trust requires us ning, knowledge of comparative cases, and other representatives revealed a surprising to show our vulnerabilities to people we strong leadership as significant challenges level of government commitment to estab- might not ordinarily reveal them to, in to creating a durable peace in Myanmar. lishing peace. U Aung Min’s personal order to demonstrate that we have flawed Over the years, the organization has involvement in the conflict had become humanity in common. This means entering worked extensively to address these chal- a catalyst for change, convincing him of into a place of insecurity and entrusting lenges by supporting civil society leaders, the need to end the decades-long bloody our host or guide to lead us and take care organizing and leading training programs armed conflict in Myanmar. Recognizing of us. This position of cultural humility is to strengthen local peacebuilders’ knowl- his own lack of experience and skills in the foundation of peace work , allowing edge, skills, and potential, and forming a peacebuilding, U Aung Min had humbly practitioners to connect with people on network of peace practitioners to promote approached CPCS, among other long-term a basic level that is both informative and sustainable peace in the country. peacebuilders in Myanmar, for assistance insightful in shaping effective peace prac- in developing an effective peace process. tices and programs. Corruption and nepotism among top officials in Myanmar’s government further Once we agreed to work alongside the In December 2011, the Centre for Peace fueled the country’s social fragmenta- government to support the emerging peace and Conflict Studies (CPCS) was invited tion and conflict, requiring CPCS to process, CPCS had to adapt to the continu- to meet Minister U Aung Min, a former conduct its work discreetly. It thus was ously evolving context of conflict in the general and minister for railways in extremely daunting when the organiza- country. The peace process began by estab- Myanmar whom the president had tasked tion was invited, by name, to meet one lishing ceasefires between the Myanmar

6 BUILDING PEACE government and several armed groups, confidential information. This meant As we entered into relationships with armed requiring us to move our work from inside working in a vacuum, but CPCS believed groups like the ABSDF, our reputation as a Myanmar to the Thai-Myanmar border, this decision was crucial to building a solid trusted organization spread throughout the where many of the groups were based. relationship of mutual trust. country, granting us access to a number of Furthermore, the organization needed to more isolated and neglected armed groups build new relationships with these groups, While the grand plan worked in theory, that the official peace process had - over which were deeply suspicious of anyone progress was initially slow. One of CPCS’s looked or failed to include. Our extensive affiliated with the regime, even as they first programs was a workshop for the experience working in the country for moved into negotiations. This put CPCS at All Burma Students Democratic Front the past decade has placed us in a unique a disadvantage in two respects: First, as we (ABSDF), an armed group that had been position to forge further relationships had entered the peace process initially at fighting against the government since with a diverse group of stakeholders in the invitation of the Myanmar government 1988 and had no previous relationship Myanmar’s peace process, including civil and had worked inside Myanmar for over with CPCS. The ABSDF had requested society organizations, government offi- a decade, we were perceived as being pro- the training on the recommendations of cials, and various armed groups. With the regime. We were also accustomed to saying other armed groups, but they were, under- assistance of long-time supporters of peace Myanmar and Yangon, terms commonly standably, hesitant and reserved during the in Myanmar, CPCS has become a key link associated with the regime, whereas border workshop’s first day. Few people spoke or among these stakeholders, connecting groups maintained the names Burma and were willing to participate. To address the individuals committed to establishing a Rangoon. Second, CPCS’s previous focus lack of trust among group members, CPCS durable peace in a strained and fragmented society. The organization has helped establish a platform for peace in the country, This position of cultural humility is laying the groundwork for the development of an effective peace process. the foundation of peace work. Having worked with civil society groups that suffered under a corrupt and ineffec- tive government, CPCS had significant on civil societies meant the organization worked hard to establish an open approach, reservations about accepting the govern- lacked significant knowledge about the making it clear that ABSDF members did ment’s invitation to enter official peace situation near the border, including the not have to release any information they negotiations. In the end, though, we backgrounds of and dynamics between the did not feel comfortable sharing. Instead, learned that implicit in peacebuilding was armed groups there. CPCS would continue to share information the willingness to allow others in, despite and support the ABSDF in initial peace cultural, faith, or political affiliations. The only way to establish any kind of talks, facilitating candid discussions of the When the time came, CPCS realized that relationship with the armed groups at the groups’ needs, demands, and aspirations to it had to practice the same principles of border, we decided, was to be completely develop a coherent approach to negotiating cultural humility it was advocating. This honest and open. Total transparency about with the government. CPCS also offered meant dispelling our prejudices, accepting our past analysis, work, and motivations workshops that focused on expanding our insecurities, and placing some trust would be crucial. We needed to reveal all media and political analysis skills and in the government’s commitment. Our of our conversations with the government provided leadership development training. experience in Myanmar has taught us the so there would be no secrets or suspicions Over time, CPCS mentored and advised value of an open approach and the impor- from other parties. We had to explain the ABSDF as they navigated negotiations tance of trust in fostering relationships that clearly that CPCS was a completely with the government, maintaining an open allow for more effective peace practices neutral entity, aiming to work with both the approach to build trust. The ABSDF even- and programs. government and armed groups to achieve tually reciprocated, laying the foundations a just and lasting peace for Myanmar. To for a deeper and more valuable relation- Emma Leslie is the director of the Centre prove CPCS’s goodwill and neutrality in ship that has led to more effective and for Peace and Conflict Studies (CPCS) in supporting negotiations, we did not demand open negotiations between the ABSDF and Cambodia, whose mission is to strengthen information from armed groups but gave the government. strategic intervention into armed conflict them the space to decide when to release in Asia.

September 2013 7 ON THE GROUND KENYA

BRINGING UP Local Conflict Prevention Mechanisms THE CHILD in Kenya by Alice Wairimu Nderitu

The Elder Community we knew appeared before the elders. We learned that Waigwa the cobbler was a wife Growing up in Kenya’s beautiful rural beater and that Baba Kim, the church elder, areas, I was fascinated by the power of had taken away his brother’s land. Each the elders, a group of old wise men sitting elder had to make an individual decision under a tree delivering judgment on matters on what to do with the wrongdoers. To vote concerning the community. Everyone in favor of a verdict, he would lay down respected the decisions they made. Curious his staff, hewn from the branches of the children would sneak up the tree under very tree we were hiding in. I grew up in which the elders sat and observe them mete a place where crime hardly existed, thanks out justice to adults in their communities. to these elders. What fascinated me most, When I turned eight, my older brother gave as I clung to a branch, were the discussions me a unique present—only after warning on peaceful coexistence that underlined me not to tell anyone. He took me up with each decision and the respect for the him into the branches of a tree one day just elder community. There were no women before the elders sat under it. We eaves- elders, however. Women appeared only to dropped on this and several occasions give evidence, like my grandmother, who afterwards, hiding among the leaves during unlike many of the elders could read. My school holidays. Day in and day out, adults brother told me sternly that there were no

8 BUILDING PEACE postcolonial governments and the unequal commissioner, fully conscious that the In 2013, distribution of resources. The country had privileged position could influence the peace became become a nation of ethnic communities course of Kenya’s history towards peace drawn apart by their differences and that between ethnic communities. everyone’s saw little in common with each other. The Agenda Four Commissions discharged business in Kenya was like a pressure cooker, and the their mandates, delivering a new constitu- Kenya. lid blew off following the contested election, among other far-reaching changes. tion results of 2007. The unprecedented Tangible reforms were visible in the judi- violence in 2007 and 2008 shocked the ciary and criminal justice agencies. women elders because making peace was world. More than 1,300 Kenyans were not women’s business. I wanted to be an killed and 600,000 displaced. Kenya stood The Real Test: A Peaceful 2013 elder, but I was a girl. naked, her ethnic communities exposed for Election what they were: products of competitive Electoral Violence in Kenya electoral politics occasioned by the lack of The real test, everyone knew, was going requisite institutional reforms, exclusion, to be a peaceful March 2013 election. When I left home for other, more turbulent and unresolved intercommunal mistrust Kenya had successfully brokered peace parts of Kenya, I was constantly uneasy and tensions. The criminal justice agen- elsewhere, ushering in the Transitional about the inability of Kenyans to peace- cies could not cope, and communities once Federal Government (TFG) in Somalia and fully coexist. Violence marred Kenya’s again began, in the age-old tradition, to the Comprehensive Peace Agreement for electoral process in 1992, when multi- rely on elders. the Government of Sudan and the Sudan party politics were reintroduced. The Rift People’s Liberation Movement. However, Valley was particularly hit. At that time, Enter Kofi Annan putting in place a peace infrastructure studying at the University of Nairobi, I proved to be difficult. Criminal justice was very conscious of the changes taking The violence brought Kofi Annan to agencies were still struggling to book many place in the country and participated in Kenya. He led mediation efforts that low-level perpetrators of the 2007–08 demonstrations against state action. The resulted in the Kenya National Dialogue postelection violence. Victims were living violence recurred in the next election year, and Reconciliation (KNDR) Agreement, side by side with perpetrators in the same 1997. But election year 2002 witnessed which prioritized the role of Kenyans areas without any recourse to law. Peace the peaceful transition from an authori- themselves in preventing and resolving in these circumstances meant ensuring that tarian president to the National Rainbow the consequences of violent conflict. violence did not recur, even in the absence Coalition (NARC) government. Hope Independent government institutions, of justice. Community elders took up the abounded. Kenyans were polled as the named the Agenda Four Commissions after peacekeeping role with zeal. most optimistic people on earth. the KNDR fourth agenda, were created. These included the Commission of Inquiry Between 2008 and 2013, Kenyans mobi- However, tensions continued to simmer into the Post Election Violence (CIPEV), lized extensively for peace. The country below the surface as the NARC govern- the commission investigating the 2007 made every possible effort, with the NCIC ment failed to deliver on the promise of a general elections; the National Cohesion at the forefront of government work. Faith- new constitution, as well as other prom- and Integration Commission (NCIC); the based organizations, nongovernmental ises, as fast as expected. Kenya had gotten Commission of Experts on Constitutional organizations (NGOs), the entire education away with the illusion of being a country Review (CoE); the Interim Independent system, and the private sector all preached at peace surrounded by countries that had Electoral Commission (IIEC); the Truth, peace. It was clear that the country had experienced conflict—Rwanda, Uganda, Justice, and Reconciliation Commission been to the edge of the cliff and was afraid Sudan, Ethiopia, Eritrea, and Somalia. (TJRC); and the Interim Independent of what it had seen there. Kenya’s peace masked issues that succes- Boundaries Commission (IIBC). The only sive governments had not been able to one of these bodies that was permanent Uwiano Platform for Peace solve, resulting in ethnic animosities and was the NCIC, which was mandated to differences between communities. These promote peaceful coexistence. Through a One of the most effective platforms issues included forced alienation and rigorous appointment process conducted for peace was Uwiano—Kiswahili for appropriation of land by the colonial and by Parliament, I joined the NCIC as a cohesion—which brought together the

September 2013 9 ON THE GROUND ON THE

10 PHOTO: AFROMUSING electoral violence. one-and-a-half yearsafterthe2007–08 Agenda FourCommissions’ work,barely that werestillunresolved,despitethe huge achievement considering the tensions mass violence,butUwianopreventedit—a in the2010referendum,everyoneexpected get it. When Kenyansfacedtheballot box radio, anyKenyanwhoneededhelpcould campaign, includingtextmessagingand response. Through anextensivemedia strategy knownasearlywarningand Kenyans toreportthreatsofviolence—ina Uwiano steppedintothegap,allowing the builduptoreferendumin2010, but didnotknowwhomtotell. Thus, in violence wouldbreakoutin2007–08 Many Kenyanslatersaidthat they knew in anewconstitution. tested inthe2010referendumthatushered and inthefactthatithadbeentried Uwiano’s strengthlayinitspartnerships society networkofmorethan500NGOs. Management, Conflict the police,andPEACE-NET, acivil on Committee Programme, the National Steering NCIC, theUnitedNationsDevelopment BUILDING PEACE interventions to stop a conflict before it became violent. These meetings addressed before conflict a stop to interventions meetings betweenelders,toensurequick phone systemforintra-andinterethnic grant providedfundsthroughthemobile tion orsecuritymeasures. A rapidresponse issues orlocations;othersneededmedia required radio messages directed at specific nated forurgent action.Someofthe cases dissemi and verified, analyzed, received, four-hour desk,wheretextmessageswere someone whodoes.Uwianoranatwenty- of Kenyanshavecellphonesorknow report tensionsandincidents,as90percent running afreetext-messagingplatformto peace monitorsthroughoutthecountryand Uwiano’s keystrategiesincludeddeploying Boundaries CommissionandUN Women. into itsstabletheIndependentElectoral humanitarian agencies.Italsobrought its coordinatedresponsetoinclude Uwiano upped its game, strengthening Leading up to the March 2013 election, there. hadseen it what of was afraid and cliff the of to edge the hadbeen country The - - mobilizing ofgangsandmilitia, hate speechleadingtoethnicincitement, Uwiano handledinformationthatincluded the eldership. Uwiano insisted thatwomenbeincludedin to mediateanytensions at thelocal level. Uwiano asinter- andintraethnic mediators communities, alsohadbeentrainedby meetings, already highly respected in their ethnic differences. The eldersat these previously undiscussedissues,suchas Faith-based andcivilsocietyorganizations private sector, aheadofthe2013elections. by nontraditionalactors,suchasthe Thousands ofpeaceefforts werelaunched Multiply Peace Efforts dents andreducingtensions. messages perdayforestallingviolentinci received, atitspeak,anaverageof5,000 destruction of property. The organization

- dedicated considerable time. Energy was rights actors is necessary for peace and poured into long-term peace and cohe- justice. Including women and youth in sion efforts, such as peace education, elders’ decision-making processes is as nationwide drama and music festivals on essential as a collaboration of state and cohesion, and NCIC’s curriculum reviews nonstate actors toward peaceful coexis- in educational institutions to ensure all tence. Community social contracts that ethnic communities were included. There address real issues, such as sharing water was an amazing convergence of peace- sources and keeping peace during elec- builders and human rights activists toward tions so that schools and markets remain a peace agenda. open, will ensure a peace that can hold after elections. The elders under the tree, The peace equation was complicated by dispensing indigenous justice through the International Criminal Court’s indict- traditional dispute resolution mechanisms, ment of six Kenyans, two of whom have are as useful as is equipping community- since been elected to office as president level service providers, such as nurses and and deputy president. The peace process teachers, with skills on conflict transfor- was, however, considerably boosted by the mation. As they dispense medicine and peace campaign political actors conducted. classroom knowledge, they too can work NCIC ensured that all presidential candi- toward peace. Dialogue as well as penal- dates signed on to the Kenya Kwanza ties that target politicians, urging them (Kenya First) charter, pledging not to to desist from hate speech and build on engage in or fund violence. NCIC brokered diversity rather than ethnic differences, social contracts between conflicting are essential, as is constant messaging communities, forming a team of Kenyan through all media about the peace divi- goodwill ambassadors with the gravitas to dends of a nonviolent election. The state reach all Kenyans. One of the ambassadors must provide security and citizens in turn set up a mediation team, the Concerned must observe the rule of law. Citizens for Peace, consisting of a group of elders with direct access to all the presiden- A Kiswahili proverb says that giving birth tial candidates. Working to support them, is not difficult; bringing up the child is. Uwiano shuttled with the elders between Kenya has given birth to a fragile peace. the candidates. I constantly felt like I was How can we sustain it? That is the task up in the tree with my brother again—again Kenyans must now work toward. as a witness of the process, not a decision maker. I was therefore pleasantly surprised Alice Wairimu Nderitu is a commis- when two of the elders officially asked me sioner of Kenya’s National Cohesion to join them as an elder. The violence had and Integration Commission, the Joan. created space for the previously unimagi- B. Kroc Institute for Peace and Justice nable in Kenya: a woman at the elders’ Woman Peace Maker of the year 2012, peace table. In 2013 peace became every- and co-chair of the Uwiano Platform one’s business in Kenya. for Peace.

This Child, the Kenyan Peace

In future elections, a peace infrastructure such as Uwiano that is inclusive and links national to community structures and processes is crucial to preventing violence in Kenya. A meaningful convergence of peacebuilding and human

September 2013 11 INTERVIEW

THE WORLD AS IT IS AND THE WORLD AS IT Interview with United Nations SHOULD BE Deputy Secretary-General Jan Eliasson

by Melanie Greenberg

12 BUILDING PEACE an Eliasson is one of the world’s foremost diplomats and experts on peacebuilding. He was appointed Deputy Secretary-General of the United Nations in March 2012. He served as minister of foreign affairs of Sweden, chair of Water Aid/Sweden, member of the UN Secretary-General’s Advocacy Group of the JMillennium Development Goals (MDGs), special envoy to Darfur, Sudan, President of the sixtieth session of the UN General Assembly, and the Secretary-General’s personal representative for Iran/Iraq. Mr. Eliasson was the first UN Under-Secretary-General for Humanitarian Affairs and was involved in operations in Africa and the Balkans. He has taken several initiatives on landmines, conflict prevention, and humanitarian action.

Alliance for Peacebuilding president and chief executive officer Melanie Greenberg interviewed Mr. Eliasson in June 2013 at the UN headquarters in New York about his experiences with conflict prevention over the course of his rich and varied career.

Melanie: What is successful conflict the crisis. In spite of the apartheid sanc- This is proving to be difficult, not least due prevention? tions that were in place, we used major to the divisions within the UN Security ports in South Africa and sent in water Council. Meanwhile the situation on the Jan: We hardly ever hear about successful drilling equipment as well as other forms ground is turning ever more complicated, conflict prevention, because violent of humanitarian assistance needed. As taking on religious and sectarian tones. We conflict defused by diplomacy is often a result, very few lives were lost. Very need a preventive strategy that contains not considered as newsworthy. Have you few know about this operation. We spent humanitarian elements, financial elements, ever seen headlines in the press saying a hundreds of millions of dollars, opened up political support, and diplomatic measures disaster did not occur? During my time railroads, and even set up a World Food within and outside the country. It will show as minister of foreign affairs of Sweden I Programme office in Johannesburg. I am that prevention is not an academic exer- worked intensely to put conflict preven- extremely proud we did it. cise and that it can be a truly operational tion on the international agenda. But I concept. And we—you at the Alliance found that it was difficult to get support for Another example is the preventive deploy- for Peacebuilding and we at the United

PHOTO: UNITED NATIONS preventive measures because people don’t ment of UN peacekeepers in Macedonia in Nations—have a joint interest in identi- want to deal with something that is not 1995, which was very important in order fying those operational concepts. an immediate danger. We are stuck in the to stop the horrible conflict in the Balkans short term. Unfortunately, we don’t often from spreading. Melanie: How can we coordinate hear of many examples of successful crisis those operational concepts among prevention, but there are a few. Now, I am extremely concerned that all of us working on these issues the horror in Syria will spread to Jordan and agree on a common purpose? In 1991-92, Southern Africa suffered one and Lebanon. It is critical that we find a Interview with United Nations of the worst droughts in its history. Eleven political solution to the crisis in Syria. countries were threatened by starva- Deputy Secretary-General tion and we had a month before it would become a huge humanitarian crisis. At My job as well as yours at the Alliance Jan Eliasson the time, I was Under-Secretary-General for Humanitarian Affairs and Emergency for Peacebuilding is to reduce the gap Relief Coordinator at the United Nations between the world as it is and the and we worked with sub-regional organizations in Southern Africa to avert world as it should be.

September 2013 13 INTERVIEW

Jan: There is a growing realization that the the attackers, bragging about it, went after the 2007-2008 elections. In many ways price paid for not acting early is extremely those who survived in the hospital and held the 2008 post-election crisis in Kenya high. When the vibrations on the ground the staff and patients hostage, the horrific is a good example of diplomatic action are ignored, when human rights violations incident received some attention. But when under the responsibility to protect (R2P) go on and we wait for the conflict to turn you see more of such crimes against civil- doctrine. Many lives were saved thanks into a civil war, then the price paid in terms ians all over the world, you tend to become to early action. Secretary-General Ban of lives, money, and the reputation of inter- indifferent. We simply close our eyes. Ki-moon took diplomatic steps to address national organizations is enormous. When the violence by encouraging mediation I was mediating between Iraq and Iran in Melanie: How can we raise people’s efforts by former Secretary-General Kofi 1980-86, within a year we had a proposal sensitivity again to allow for more Annan, who travelled there in January for a solution, but both sides swept it aside. effective prevention? 2008 with a negotiation team known as the Seven years later, almost the same proposal African Union Panel of Eminent African was accepted in Resolution 598. By then, Jan: It is not enough to just issue a state- Personalities. The United Nations provided however, approximately 700,000 people ment or condemn the act. We have to reach mediation support and worked closely had been killed and three million had out to political and religious leaders and with Mr. Annan on the ground. At the end become refugees and internally displaced assign responsibilities to stop such horrors. of February 2008, a negotiated settlement people. And, of course, hatred between The most important contribution that was reached through the National Accord Shiites and Sunnis had become deeper and diplomats and international civil servants and Reconciliation Act. After the crisis Mr. continues to persist in the region. can make to improve the world is to start Annan commented, “under R2P, force is thinking operationally and preventively. last resort. Political and diplomatic inter- The current situation in Syria is the same. vention is the first mechanism. And I think A year ago, we talked about setting up insti- If the Security Council also acted jointly we’ve seen a successful example of its tutions. Today, we are talking about the risk and in unison on threats to international application.” of another wave of violence erupting after peace and security, that would be a great a so-called military victory. This concern step forward. The Security Council is Today the United Nations is increasing its has come too late, because the hatred consumed—understandably, because the mediation support teams and now also has has worsened and the death toll is now crises are so many—by the fires that are standby units that are being deployed in around 100,000. To speak about recon- already out there. But the Council should several situations. They work very effec- ciliation after so many have been killed be there at the first signs of smoke when tively and I hope that their efforts will have is much more difficult. I hope that reason the arsonist reaches for the match. helped stabilize the situation in Kenya on a and logic will lead us to giving preventive more permanent basis. action higher priority. It requires not only Melanie: What do you think about mobilization of political energy and Kenya, which has been held up as Melanie: That is a very interesting resources of UN Member States but also another modern success of preven- civil society story as well. There was civil society support. tion during the 2013 presidential a lot of coordinated action looking election? for a real leverage point, recognizing Unfortunately, people have almost become that we could not do everything numb to frequent unacceptable horrors. Jan: That’s a good example. We were throughout the whole country. When a suicide bomber blew up a bus on the brink of a huge tragedy that could carrying young women in Pakistan and have been worse than the aftermath of Jan: Yes, civil society plays a very important role. When I was in Somalia in 1992 during the worst part of the civil war, I remember how important civil society and NGOs were in terms of early warning. Ultimately, effective prevention is We got information from areas with the about picking up the early signs of worst fighting and the worst risks of things getting very serious. At the time I devel- conflicts, before the situation escalate. oped a very close relationship with civil society. In the area of mediation there are also, of course, Track II initiatives—which

14 BUILDING PEACE There is a growing realization that the price paid for not acting early is

PHOTO: UNITED NATIONS extremely high.

you, Melanie, have also been involved conducting negotiations on the humani- at the border. We know how much mass in—where civil society can play a crucial tarian mandate in the United Nations. killings hurt the UN’s reputation. But this role, especially in civil war situations. reputational cost is less important than the Sometimes governments are concerned Then the R2P concept returned in a more fact that so many people are suffering and about bringing in international organiza- elegant form of dealing with the issue: paying the price for states not having that tions or another government because it It stated that if sovereignty is so impor- right balance between respect for sover- might look like they are giving legitimacy tant—which it is—does it not imply that eignty and respect for solidarity. to what they call terrorists or separatists. the state has a responsibility to protect its In these cases, the civil society and NGO own population from genocide or mass Melanie: It seems that the choice track is important. The Carter Center in killing? The answer is yes! But what is to is very stark: Either we intervene Georgia has done important work in that be done when a state can’t protect its own or we don’t, and it is often talked spirit. Professor Peter Wallensteen at population? That’s when the international about in military terms. Uppsala University in Sweden, and you community has the responsibility to inter- also, Melanie, have done similar work in vene. The intention was, and still is, that Jan: While Chapter VII of the UN Charter this area. R2P serves a preventive purpose. and the option of using sanctions and military force are important for the cred- Melanie: What are your thoughts The Libya debate, however, has put a ibility of the UN and the credibility of about the links between R2P and strong emphasis on R2P in military terms the Security Council in particular, I still prevention? and Security Council actions. The discus- claim that Chapter VI [Pacific Settlement sion largely focused on whether the Libya of Disputes] is underutilized. We need to Jan: They are certainly linked. I experience had hurt the concept so much make better use of Article 33 [of Chapter remember the origin of R2P. We were that we would not be able to apply it in the VI], which is music to my ears: “The discussing humanitarian intervention in future. However, the thematic debate on parties to any dispute, the continuance of the early 1990s, when Bernard Kouchner, R2P held at the UN General Assembly in which is likely to endanger the mainte- of Médecins Sans Frontières, brought up September last year was encouraging as it nance of international peace and security, the issue of ingérence humanitaire [right confirmed that Member States still largely shall, first of all, seek a solution by nego- to humanitarian intervention] to stop a support the concept. I have hope that the tiation, enquiry, mediation, conciliation, humanitarian crisis from turning into concept will be alive and used in the future. arbitration, judicial settlement, resort to ethnic cleansing and genocide and that in regional agencies or arrangements, or the worst cases, we should have the right to Ultimately, effective prevention is about other peaceful means of their own choice.” act. It was rejected, wholesale, by Member picking up the early signs of conflicts, How often do we do this? States who saw it as a threat to their before the situation escalates. Solidarity sovereignty. At the time, in 1991, I was with human beings in need does not stop

September 2013 15 INTERVIEW

Melanie: Were you pleased with whereas the problems are interrelated. In goals for the future and to pursue peace, the Report of the High-Level Panel terms of the post-2015 process, the degree development, and human rights at the same of Eminent Persons on the Post- to which we will be able to go into details time. That is where peacebuilding comes in 2015 Development Agenda and on the peace and security side is difficult to as such an important concept. the emphasis there on peace as a say. Member States are focused primarily primary goal? on core development challenges and on Melanie: How can our peacebuilding formulating a post-2015 Development community best collaborate with Jan: The High-Level Panel underlines the Agenda, which is concrete on eradicating the UN to prevent conflict? basic UN formula that was first formu- poverty and on sustainability. The Report lated at the 2005 World Summit: There is of the High-Level Panel on the Post-2015 Jan: I believe that we need to strike a no peace without development and there is Development Agenda laid out a clear vision balance between idealism and realism. no development without peace. And there and was well received. We are now in the My answer to those who criticize the UN is no lasting peace or development without process of collecting inputs from various is that the UN is as strong as the Member respect for human rights. other sources, including from consultations States want it to be. The UN is a reflection in the field, from Jeffrey Sachs’ Sustainable of the world as it is, whether you like it or When I was in Darfur, I saw that you need Development Solutions Network, from the not. Democracy is not everywhere, human all three at the same time to have a lasting UN’s Regional Economic Commissions, rights violations take place, wars and huge effect on peace and development. There from the task forces, from all corners. inequalities persist. But if we forget the was no harvest because of the fighting and UN Charter, if we forget the Universal the brutalization of the war led to increased As a next step, the secretary-general will Declaration of Human Rights, if we forget hatred. A couple of years after the 2005 deliver his report to the General Assembly what our work and the world should be, World Summit Outcome Document’s at a High Level meeting on September then we have failed. My job as well as emphasis on the interrelationship between 25, 2013. Then Member States will bring yours at the Alliance for Peacebuilding is peace, development, and human rights, I all these elements together and point the to reduce the gap between the world as it saw in Darfur how all this translated on the direction forward in the same, inspiring is and the world as it should be. It is rele- ground; you simply have to work with all and mobilizing, way as the Millennium vant for the UN and for the Alliance for three dimensions at the same time. This is a Development Goals (MDGs) did. The Peacebuilding. This is what we are fighting huge challenge for the UN because it means MDGs are one of the great success stories for, every day. that we have to break down a lot of walls of the UN. They have had a very mobi- to work effectively. When I have meetings lizing effect, permeating national planning on the post-2014 situation in Afghanistan, processes in many countries, and have I include the political and humanitarian been a very important driving force to departments, peacekeeping, UNDP, the fight poverty. We need something similar human rights office, all the elements. Only for 2015 but in a much more complicated when we take this holistic approach can we world. We have to think about climate do the job right. change, migration, and urbanization—in the future 60 percent of humanity will be Melanie: How can all the actors living in cities, putting tremendous pressure involved in conflict prevention on infrastructure, not least sanitation and best work together, including the water. But there are also positive trends: peacebuilding and development This is the century when women will take communities? the place they should have had in history. We have also seen an explosion of informa- Jan: We have much work to do to bring tion and communication technology, which down institutional walls. At the UN, but offers enormous power to mobilize and also in the European Union and in national share knowledge. Combined with improve- governments, we work through minis- ment in education, it is a very positive tries, which are structured in vertical silos, force. It is therefore crucial to define these

16 BUILDING PEACE FEATURES

SEPARATE TRACKS, COMMON GOALS Preventing Genocide and Conflict

by Lisa Schirch

Whether through quiet resolve or few points of contact between the field response requires understanding why the vocal outrage, the chorus of people of conflict prevention and the rapidly two fields, which share such common goals, saying “never again” to genocide growing field of genocide prevention. The have developed so differently. Ultimately, and mass atrocities is growing. fields have separate academic centers, preventing mass violence requires building Many in the field of conflict prevention and separate nongovernmental organizations a cohesive prevention strategy that draws peacebuilding remember when they took (NGOs), and separate government and UN on the impressive strength of both fields. this oath to prevent or reduce violence and initiatives. Impressive strides are being its devastating effects. made every day in each field, especially A Brief History of Two Fields in conflict assessment and mitigating the Two fields of professional practice are drivers of deadly violence. Why do these The field of conflict prevention and peace- addressing the complex problem of mass fields continue to work on parallel tracks building is at least three decades old, violence. Genocide prevention, or mass rather than merging their efforts? Why is with large, well-established NGOs and atrocities prevention, focuses on stop- there so little exchange between experts hundreds of university programs dedi- ping outbreaks of deadly violence and and practitioners? cated to it. Following the early lead of punishing perpetrators. Conflict preven- NGOs and academics, about fifteen years tion, or peacebuilding, focuses on The questions become more important ago, the United Nations began referring resolving the underlying drivers of conflict as the US government seeks to develop a to its own work as conflict prevention and that lead to genocide. Both fields are unified approach to preventing mass atroc- peacebuilding. Today the United Nations rooted in a firm commitment to human ities around the world, with the Atrocities has a robust peacebuilding architecture, rights and a desire to reduce violence. Yet, Prevention Board and an emphasis on including work in preventive diplomacy, perhaps surprisingly, despite this common conflict prevention in both the military economic development, governance, peace set of values and commitments, there are and the State Department. Such a unified education, and related efforts that together

September 2013 17 FEATURES

illustrate the growing UN commitment to The fields’ different frameworks have created conflict prevention. Likewise, countries such as the United Kingdom, Kenya, and serious misunderstandings between them, Ghana are developing their own conflict which in turn have prevented collaboration. prevention initiatives. In 2010 Secretary Hillary Clinton announced that conflict prevention was the “core mandate” of the masses of civilians are slaughtered, refu- to have kept academics and practitioners US State Department. The 2012 Human gees flow across borders, and murderers apart. Some of the tensions between the Security Report identifies these new wreak havoc on regional stability and fields are due to misunderstanding. Others conflict prevention and peacebuilding livelihoods. America’s reputation suffers, reflect real differences in experience and efforts as a key factor in the decrease of and our ability to bring about change is values. violent deaths in the last twenty years. constrained, when we are perceived as idle Still, far less is spent on preventing than on in the face of mass atrocities and geno- Criminal Justice versus Conflict reacting to violent conflict. cide. Unfortunately, history has taught us Resolution that our pursuit of a world where states do In comparison, fewer NGOs and academic not systematically slaughter civilians will Conflict prevention and genocide preven- programs have focused on genocide and not come to fruition without concerted and tion efforts share similar goals of reducing mass atrocities prevention. Holocaust coordinated effort. violence, but their very different concep- survivors and their allies have kept the tual frameworks create many gaps between dream of “never again” alive since World Despite the growing political rhetoric the fields. Genocide prevention, rooted War II. After the Rwandan genocide and supporting atrocities prevention, little in the values of human rights, empha- mass atrocities in the former Yugoslavia, progress has been made in translating these sizes using traditional criminal justice academics such as Harvard’s Pulitzer new stated policies into practical measures processes to hold perpetrators accountable Prize–winning Samantha Power, whom with adequate resources. And the new and training international attention on the President Barack Obama recently nomi- commitments to preventing mass atroci- specific deplorable acts of leaders who are nated as US ambassador to the United ties and genocide come with significant inciting genocide. Under this framework, Nations, drew attention to genocide— challenges. the idea of compromise or negotiation with in her words, “a problem from hell.” In perpetrators of violence can be suspect. the last decade, new NGOs such as Save In Syria and Mali, policymakers have Darfur have used savvy media strategies faced immense challenges in translating By contrast, the conflict prevention field to build political will to intervene in these their commitments into action partly due arises from a conflict resolution frame- worst-case scenarios. to the unintended repercussions of inter- work, which emphasizes identifying the vening in Libya. International efforts to underlying drivers of conflict in a society These new policy initiatives indicate implement R2P were criticized for moving and working with all stakeholders to deter- a growing international consensus to beyond a mission to protect civilians in mine legitimate grievances and inclusive prevent mass atrocities and genocide. At Libya toward a mission to change the governance models. Under this framework, the United Nations, the principle of the regime. Observers accused the interna- focusing only on the actions of perpetra- responsibility to protect (R2P) articulates tional intervention of failing to adequately tors, without addressing the dynamics that the limited conditions under which the report on civilian casualties caused by led to violence in the first place, seems international community should intervene intervening forces and to monitor Libya’s incomplete. Most conflict prevention when a government is unable or unwilling hefty weapons stock, which now is desta- experts view coercive criminal justice or to protect its own citizens from mass bilizing neighboring Mali. the use of force as necessary in some cases. atrocities. In 2011 President Obama issued But far too often for those in the conflict Presidential Study Directive 10 for US The field of conflict prevention is largely prevention field, real, principled diplomacy policy, which stated: absent from the planning for new policy and robust, skilled negotiation and media- initiatives to prevent mass atrocities and tion and restorative justice approaches are Preventing mass atrocities and genocide genocide. The divisions between conflict never given a chance. is a core national security interest and a prevention and genocide prevention go core moral responsibility of the United beyond the historical paths described here; The fields’ different frameworks have States. Our security is affected when important conceptual divisions also seem created serious misunderstandings between

18 BUILDING PEACE them, which in turn have prevented collab- coercive legal mechanisms—such as the potential atrocities could be better identi- oration. A prominent genocide scholar International Criminal Court (ICC), which fied through close collaboration between described conflict prevention as a culture names, blames, and shames individual conflict prevention and genocide preven- that treats all parties in a conflict as perpetrators of mass atrocities—or on mili- tion experts. morally equivalent, where practitioners tary intervention. The international human pursue peace at any price, even when there rights community and activists aiming to Genocide prevention experts rightly criti- are credible threats of violence, tending to stop mass atrocities in Uganda worked to cize the conflict prevention community believe that prevention ends when violence obtain an ICC warrant to arrest Ugandan for lacking an atrocities prevention lens begins. This is a caricature of the conflict rebel leader Joseph Kony. Local Ugandan while assessing a conflict. Assessments prevention field: No conflict preven- religious leaders and NGOs expressed developed by the conflict prevention tion expert would suggest that all groups dismay at this effort, as the ICC ruling and peacebuilding field have not focused in conflict are morally equivalent or that came just as years of careful work at a explicitly on preventing mass atrocities, in peace should be pursued at any price. The peace process including Kony were coming part because the field has tended to see these concern regarding moral equivalence could to fruition. The ICC had not consulted with expressions of mass violence as developing derive from a belief that talking to perpe- Ugandans trying to stop the violence, and within the context of structural or direct trators confers legitimacy onto them. This the top-down ruling seemed to both ignore violence. Conflict assessments currently is also a concern of the conflict prevention and undermine bottom-up peacebuilding examine the dynamics of structural community. Conflict prevention experts efforts to stop mass atrocities. violence and institutional abilities, local have noted that perpetrators may use diplo- peacebuilding capacity, and the broader matic efforts as a distraction. Conflict prevention scholars and practi- international context, as well as specifi- tioners tend to be skeptical of coercive cally looking at the individuals and groups Conflict prevention methods, including mechanisms as short-lived, unsustainable, driving the conflict and their motives and negotiation and mediation, require talking and leading to unintended consequences, means to carry out mass violence. Conflict directly to perpetrators in order to better though they do not rule out that there is a prevention broadly analyzes the political understand their motivations and to time and place for coercive legal or secu- economy of conflict and contestations explore options for ending the violence. rity-sector involvement as part of a larger of power and governance that often fuel Mediators who talk to perpetrators of conflict prevention strategy. A coordinated intrastate genocide and mass atrocities. atrocities are not condoning the perpetra- approach grounded in both genocide and Its scholars bring complex understandings tors’ actions. Diplomacy and dialogue do conflict prevention holds promise for joint of identity and the psychology of conflict. not imply justification for a perpetrator’s research as well as a better balance of Its practitioners attend to the psychosocial acts. But conflict prevention experts advise persuasive and coercive measures to ward challenges of trauma healing and the effect that maintaining communication or diplo- off violence. of trauma on the brain and cognitive func- matic channels with all stakeholders, even tioning, which are central to their approach those perpetrating atrocities, is essential. In Differing Approaches to Conflict to conflict assessment. weighing the costs and benefits of commu- Assessment nicating with perpetrators, most conflict Genocide scholars articulate analytical prevention experts believe the benefits Genocide and mass atrocities happen often, frameworks similar to those found in tend to outweigh the costs. but not always, during an armed conflict. the conflict prevention literature. But in Mass atrocities occur within a context of policy circles, the genocide prevention Balancing Coercion and Persuasion structural violence—the systematic use community has tended to focus on specific of policies, institutions, and cultural prac- perpetrators rather than underlying struc- In practice, policymakers’ responses tices that result in disabilities and deaths tural causes or the psychological and to genocide and mass atrocity preven- of certain groups. Specific structural identity dimensions driving conflict. Other tion have tended to focus more on conditions and early warning indicators of genocide and mass atrocities researchers

A coordinated approach grounded in both genocide and conflict prevention holds promise for joint research as well as a better balance of persuasive and coercive measures to ward off violence.

September 2013 19 FEATURES

Kenya, which prevented electoral violence in 2008 and 2013, respectively. Genocide prevention and conflict prevention should work together to design whole-of-society approaches that engage not only state

PHOTO: ADAM JONES, PH.D. PHOTO: ADAM JONES, PH.D. structures but also community and mid- level society leadership to prevent and respond to genocide. point to the uniquely horrific level of violence, the distinct patterns of structural In Mali, opponents of the international Next Steps and direct violence that lead up to mass intervention cited each of these concerns. killing, and the specific motivations for In Cambodia, documents suggest that US As political leaders figure out how to turn committing genocide. attempts to stop or slow the Khmer Rouge the concepts of genocide and mass atroci- through a military bombing campaign only ties prevention into policy and action, The differences in the fields’ assessments built momentum for the regime’s subse- the lessons learned from conflict preven- need not contradict. Assessment methods quent genocide. tion could save both time and effort. New are more likely useful for preventing both genocide and mass atrocities initiatives conflict and mass atrocities if the fields Conflict prevention and development are reaching out to the conflict prevention engage in greater dialogue with each other researchers consistently find that good community for greater dialogue and discus- about their complementary foci. Robust, intentions often can have destructive and sion. At the same time, conflict prevention multistakeholder, ongoing conflict assess- counterproductive effects. In response to practitioners and scholars should pay ment is essential to both conflict and decades of lessons learned, the field of closer attention to the momentum in geno- genocide prevention, and currently, there conflict prevention has developed -exten cide and mass atrocities prevention and is not enough quality data collection and sive assessment tools to identify and learn from and work with people with a comparative triangulation of information avoid unintended effects. Widespread specific focus on atrocities prevention. to improve planning for either. training in conflict sensitivity and do-no- harm methodologies have affected how Lisa Schirch is founding director of the Identifying Potential Negative conflict prevention and peacebuilding Alliance for Peacebuilding’s program Consequences organizations plan to reduce potential on human security, where she connects consequences. Working together, the two policymakers with global civil society In the rush to act, policymakers may be fields could better anticipate and prepare networks, facilitates civil-military tempted to intervene without adequately to mitigate potential second- and third- dialogue, and focuses a peacebuilding assessing the potential for negative order effects, particularly in military lens on current policy issues. Schirch is consequences. Experience suggests that interventions. also a research professor at the Center interventions to stop mass atrocities may for Justice and Peacebuilding at Eastern Including the Whole of Society in Mennonite University. ››cause significant civilian casualties, Prevention

››undermine longer-term efforts to foster Recent genocide prevention policy initia- democratic governance, tives seem to favor a top-down approach, emphasizing the need for ICC prosecu- ››infuse a surplus of weapons into a tion or military intervention. The field of region that then falls into the hands of conflict prevention has learned that preven- insurgents in neighboring countries, tion works best when leaders at all levels causing regional instability, and of society communicate and coordinate with each other to prevent and respond ››fuel a narrative that colonial powers to crises. Such whole-of-society conflict want to extract resources and impose prevention has developed into well- political dominance on smaller countries. tuned infrastructures linking civil society, government, and military in Ghana and

20 BUILDING PEACE PHOTO: UNITED NATIONS

A LIVING REALITY? The Responsibility to Protect and the Prevention of Genocide and Mass Atrocities

by Alex J. Bellamy

At the 2005 World Summit, the four informal dialogues in the UN General UN General Assembly unani- Assembly. The Security Council has mously adopted the concept of referred to R2P in two thematic resolutions responsibility to protect (R2P). on protecting civilians in armed conflict World leaders agreed that they each had and a presidential statement on preventive to protect their own populations from diplomacy. The principle has also appeared genocide, war crimes, ethnic cleansing, in Security Council resolutions on the situ- and crimes against humanity; that they ations in the Democratic Republic of the should encourage and assist others to Congo, Burundi, Darfur, Libya, Côte fulfill their own responsibilities; and that d’Ivoire, Yemen, South Sudan, and Mali. they should respond in a timely and deci- Given this track record, it is easy to agree sive fashion. In the annals of international with Secretary-General Ban Ki-moon that diplomacy it was a rare moment of unity R2P is a concept “whose time has come.” and clarity in setting out the responsibilities of governments and the international Preventing genocide, war crimes, ethnic community to protect people from these cleansing, and crimes against humanity— crimes. Member States agreed to continue that is, genocide and mass atrocities—lies considering measures to implement R2P, at the heart of R2P. With the global fixation and the concept has been the subject of on questions of armed intervention, it is

September 2013 21 FEATURES

often forgotten that R2P includes a specific the affairs of sovereign states. World leaders state-based threats. Missions in both these commitment to prevent these crimes and explicitly insisted that R2P implementa- countries are focused on preventing geno- their incitement. In the long term, the prin- tion be consistent with the UN Charter and cide and mass atrocities and protecting cipal measure of the concept’s success existing international law. States seem to vulnerable populations. Most recently, should not be evidence of more effec- have understood this. Despite the contro- the UN special adviser on the preventive armed interventions (though that is versy created by the North Atlantic Treaty tion of genocide played an important part certainly part of the equation) but rather Organization (NATO)–led intervention in in international efforts to ensure that the the overall reduction of crises involving Libya, the Security Council has referred 2013 elections in Kenya did not result in the crimes or their imminent risk. to R2P more frequently in the two years mass bloodshed. The early signs are that since Libya than it did in the prior five these efforts proved helpful. These cases Implementing R2P to prevent genocide years, showing that the council’s under- suggest that preventing genocide and mass and mass atrocities involves a comprehen- lying commitment to R2P is not swayed by atrocities is becoming a living reality in the sive range of efforts to reduce underlying differences in the principle’s implementa- work of the United Nations and its regional sources of risk, build national resilience tion in specific cases. partners, even as abject failure to prevent to these risks, and prevent the escala- mass atrocities in Sri Lanka and Syria are tion of crises and conflicts into violence It is telling that the R2P concept has been reminders that much work remains to be against civilian populations. The strate- most effective as a guide for noncoer- done. gies required for prevention are, in many cive means of preventing genocide and respects, similar to those associated with mass atrocities. Although the precise The civil war in Sri Lanka ended in 2009 peacebuilding, human rights action, and contribution the concept made to the stem- with the killing of approximately 40,000 conflict resolution. Addressing underlying ming of postelection violence in Kenya Tamil civilians. A UN inquiry found that risk involves challenging discrimination in 2007–08 is disputed, African Union many may have died due to war crimes in all its forms, addressing inequalities, mediator Kofi Annan explicitly framed or crimes against humanity committed and dealing with past crimes and injus- his largely successful actions through predominantly by government forces. tices. Building national resilience involves R2P. The Economic Community of West This prompted serious questions about establishing and maintaining the rule of African States (ECOWAS) and the United the United Nations’ own actions during law, reforming national security, estab- Nations employed a similar strategy to the crisis. The resulting inquiry was lishing accountable institutions that can equally good effect in response to the damning. As the most influential Member resolve disputes legitimately, and ensuring 2009 crisis in Guinea, where international States were unwilling even to discuss the human rights. Preventing the escalation of action helped prevent further escalation. crisis, basically because they supported crises can involve mediation, preventive In Yemen, the Security Council used R2P the elimination of the Liberation Tigers of diplomacy, and even targeted sanctions to to remind the government of its protec- Tamil Eelam (LTTE or Tamil Tigers), and deter would-be perpetrators. The prevention responsibilities and create impetus as UN staff in Sri Lanka were subjected tion of genocide and mass atrocities is for a negotiated transition of authority. In to harassment, the report found that the thus complex and multifaceted, involving South Sudan and Mali, the United Nations United Nations remained largely silent in partnerships between local actors and has employed R2P to galvanize interna- the face of concerns about civilian protec- international agencies, and there is no one- tional assistance to states struggling to tion in order to secure the cooperation size-fits-all approach to it. protect their populations from nonstate and of the Sri Lankan government, which it

Amongst others, some officials in the United Nations and European Union have Syria should be seen as raised concerns about the potential for R2P to weaken existing prevention efforts. pointing to two areas where These focus on the potential militariza- more work is urgently needed. tion of the work and fears that political controversies connected to R2P might undermine the progress already made. Such concerns should be addressed. But R2P does not change—or seek to change— rules governing the use of force, nor does it expand any entity’s authority to interfere in PHOTO: UNITED NATIONS

22 BUILDING PEACE It is easy to despair of R2P in the face of The R2P concept has been most the Syrian situation; some commentators effective as a guide for noncoercive have done so, declaring “R2P RIP.” But that ignores the real progress made else- means of preventing genocide where. Rather than being cause for despair, Syria should be seen as pointing to two and mass atrocities. areas where more work is urgently needed. First is the need to further strengthen, widen, and deepen global consensus on needed for humanitarian access. It found enhancing protection, such as the United R2P and the prevention of genocide and that the UN leadership was divided and Nations Development Programme (UNDP) mass atrocities. If strengthened, the values sent inconsistent messages, that senior Bureau for Crisis Prevention and Recovery that gave rise to R2P might develop into a UN figures undermined casualty estimates and the development of real-time evalua- global culture of nonindifference to mass that the United Nations itself reported, and tions of protection responses at the United human suffering. Second, researchers and that the UN country team was unsuited Nations High Commissioner for Refugees practitioners need to understand what tools to operate in a conflict environment. No (UNHCR). Finally, the secretary-general might be used, especially by civil society, senior UN officials assumed responsibility has acknowledged the problems uncovered to prevent violence and protect communi- for protecting Tamils. with respect to the organization’s response ties when official channels are blocked. to the crisis in Sri Lanka and has estab- Research on how communities prevent Set against a backdrop of, at best, apathy lished a process to review further options atrocities locally, how they protect them- from most Member States, the UN for reform. These reforms should improve selves, and how international civil society experience in Sri Lanka is a tale of an UN capacity to prevent genocide and mass might support them is gathering pace, but organization still not fully configured for atrocities and deserve support. much more is needed to develop and drive its protection responsibilities. The crisis effective strategies. predated the secretary-general’s first R2P However, for all the progress made by report. Much has changed in the United fine-tuning UN institutional arrangements, Alex J. Bellamy is professor of inter- Nations since 2009 and further changes the tragedy of Syria is a reminder of the national security at the Griffith Asia are afoot that should make the organiza- lingering power of power politics. One of Institute, Griffith University, Australia, tion better able to anticipate and respond the United Nations’ first steps in imple- and nonresident senior adviser at the to protection crises. First, the United menting R2P was to establish a capacity International Peace Institute, New York. Nations now has an Office for Genocide for early warning and assessment of situ- Prevention and R2P (OGPRtoP) charged ations likely to give rise to genocide and with monitoring situations and providing mass atrocities. In one of his many pleas early warning advice. The office is also to the Security Council, the secretary- working to train government and UN offi- general recalled with no satisfaction that cials in prevention, sensitize UN country everything that had come to pass in Syria teams, and publicly remind leaders of since the first days of the protests there was their responsibilities. Second, the United predicted in advance. More than 130 states Nations is establishing a single crisis in the General Assembly have signaled center responsible for observing cases, their displeasure at the Security Council’s pooling resources, providing consolidated performance on Syria, and a solid majority advice to leadership, and ensuring that the in the council favors collective action, organization responds with a single voice. showing that R2P is simultaneously Third, the organization is beginning to galvanizing and is being galvanized by grapple seriously with the mainstreaming a significant shift in international values of R2P, and the prevention of genocide in favor of humanitarianism and human and mass atrocities, across its activities— rights. But that will be little comfort to a move the secretary-general called for the families of the victims or millions in 2009. Fourth, several UN agencies are displaced in Syria and other sites of mass developing their own policies and tools for atrocities around the world. PHOTO: UNITED NATIONS

September 2013 23 FEATURES

BEYOND AHERAM PHOTO: JAY THE LAST RESORT

The US Military The military’s role in preventing War deterrence, in which the United violent conflict is often misunder- States’ lethal nuclear arsenal, capable of and Conflict stood. Civilians, policymakers, and ensuring the near-total destruction of the practitioners have argued that the military Soviet Union, was kept on constant alert to Prevention should have little to no role in prevention, prevent the Soviets from conducting a first a perspective that reflects concerns about strike. Interagency coordination for this by Janine Davidson the continued imbalance in resources arrangement meant letting diplomats talk between the Departments of Defense and about how ready the military was while State, as well as the potential militarization the military trained and positioned itself of US foreign policy. These concerns are overtly for retaliation. The very last line of legitimate, but they fail to appreciate the diplomacy was the president’s red phone, very real role the military has and can play through which, it was hoped, the leaders of in prevention activities and thus dismiss the two superpowers might avoid miscal- a key element in the diplomat’s toolkit. culation and lower tensions at the eleventh The military need not lead an integrated hour. In this tense but stable arrangement, approach to prevention, but it is a crucial the diplomatic toolkit was contingent on aspect of it. The responsibility to protect the military one, and the civilians in charge often requires real military options, as intimately understood military capabilities part of the bargaining kit and as the last and plans. resort to stopping the killing. This article builds on John Agoglia’s call for a more Today, although deterrence is still at play holistic approach to conflict prevention against threats such as North Korea and and suggests how the military can be better Iran, evolving norms and the changing integrated into more enlightened strategies nature of war mean an additional focus for preventing conflict and instability. on preventing general instability and mass atrocities against civilians. The military From Deterrence to Prevention: The understands that there are no easy military Military’s Historical Role tactics for stopping genocide in its tracks or reversing a spiral of violent instability. Traditionally, the military’s role in preven- In such missions, the enemy is not always tion was to be ready to prevail in all-out clearly identifiable and is often chaos war. This was the essence of classic Cold itself. Experts still debate over the point

24 BUILDING PEACE at which an intervening force might have impeccably, long-term engagement can If the military is prevented the Rwandan genocide, but mili- spread shared norms concerning profes- tary planners generally feel that the longer sional civilian-led militaries that respect brought into the one waits, the harder and bloodier the solu- human rights and the rule of law. Today, game only after guns tion might be. military officers from around the world attend the US Naval Postgraduate School have been raised and For a holistic approach to prevention, and the National War College, where the bullets have begun civilian and military planners should curriculum focuses on professionalization consider the following roles the military and civil-military relations. These values to fly, intervention might constructively play in prevention. are evident in Chile and El Salvador, will be bloody and PHOTO: JAY AHERAM PHOTO: JAY which are now said to be “security success will be Planning exporters” in multinational peacekeeping missions abroad. uncertain. As Neil Levine discussed in the first issue of Building Peace, the US government Negotiating has begun to develop more systematic THE LAST RESORT processes for identifying potential crisis In some countries, military officers may for maximum and realistic effect to present spots to inform decision making. For have a more prominent political status vis- a credible threat and decision makers will Levine’s “extended warning list” of coun- à-vis civilian leadership, compared with have already thought through options. tries where crisis is not imminent, the our own democratic models. In such cases, military’s existing planning and war- US military officers may have more influ- Fighting gaming processes could be of great value ence engaging their counterparts than US if implemented through a more systematic civilian officials might with theirs. The Actually deploying the military is the last interagency planning group. In the current military-to-military engagement discussed and worst option. If the military is brought process, which is implemented only above also can forge professional relation- into the game only after guns have been occasionally for highly sensitive threats, ships among officers who serve as lines raised and bullets have begun to fly, inter- military planners develop worst-case of communication in impending crises. vention will be bloody and success will be scenarios well in advance of the outbreak During the 2011 uprising in Egypt, senior uncertain. The military will argue, rightly, of hostilities and present them to deci- US military officers engaged directly with against a small-footprint deployment to sion makers as table-top exercises. This Egyptian military leadership to encourage limit risk. If an intervention scenario has methodology allows planners and policy- protection of civilians. Of course mili- not been run in civil-military table-top makers to think through the potential paths tary relationships alone cannot guarantee exercises, that option might seem extreme to conflict and identify prevention and long-term democratic transitions or perfect to civilians who hope to avoid large mili- response options. It can also help senior outcomes, but from a crisis prevention tary interventions. But we cannot be naïve leaders prepare for crisis decision making perspective, they offer valuable leverage. about the numbers of troops and lethal by prodding them to think through various tactics needed to stabilize chaos and stop options calmly. Deterring violent actors.

Shaping As hostilities become imminent, preven- The military can and should have a role in tion options become limited. When forces prevention well before a conflict begins. When conflict breaks out in a country, are already on the move, as they were Rather than separating civilian from mili- poorly trained and unprofessional security in Benghazi, they may be stopped only tary means, good civil-military planning forces can enflame the violence or commit through force or the threat of force. Thus, for prevention should consider military atrocities. Thus military-to-military diplomats attempting to convince aggres- processes and capabilities in all phases. engagement is key to extended preven- sors to turn back need to understand and tion. The US military’s approach has update Cold War theories of deterrence, Dr. Janine Davidson is assistant professor evolved greatly since the Cold War, during and civilians engaged in such messaging at at George Mason University’s School of which US trained militaries were accused the highest level need to clearly compre- Public Policy. She is a former Air Force of atrocities and coup attempts. Although hend realistic military options. Practicing pilot who recently served as deputy assis- it is probably impossible to guarantee that scenarios in table-top exercises will pay tant secretary of defense for plans in the every troop or aid worker will behave off, as forces will have been prepositioned Pentagon.

September 2013 25 FEATURES

EARLY WARNING, EARLY RESPONSE Lessons from Sri Lanka

by Madhawa Palihapitiya

Most community-based violence Soon after the signing of the 2002 Cease- can be prevented if the right infor- Fire Agreement (CFA) to end a three-decade mation is delivered to the right long civil war between the government of stakeholders, at the right time, in Sri Lanka and the Liberation Tigers of the right format, enabling the stake- Tamil Eelam (LTTE), the Foundation for holders to take the right actions. Co-Existence (FCE) implemented a citizen- Early warning that leads to preventive based conflict early warning system for the action is effective in reducing commu- volatile eastern province. The violence in nity-based violence, especially cyclical this region started when 14 crosses in an violence. Using local knowledge is crucial eastern town were destroyed. Religious for early warning and response to be violence soon became communal violence successful at the community level. The and spread throughout the three districts in early warning system developed in Sri that province. The violence there was so Lanka shows that community-based early severe that it threatened to derail the entire warning and response can be successful in peace process. Experts later realized that preventing violence from escalating. the violence could have been prevented and the threat to the CFA averted had the communities used an early warning

26 BUILDING PEACE system that systematically collected, veri- The FCE early warning system strongly field monitoring by the early response fied, and conveyed early warning signs for emphasized early intervention. It was a unit. This unit was pivotal in generating preventive action. unique symbiosis of an information center, early warning and early response through an early response unit, and a group of continuous interaction with local actors. The FCE early warning system was a highly motivated field staff (see Figure 1) The unit monitored a broader range of “third-generation early warning system”— and included youth leaders, journalists, indicators than the database. Some of them the first such system to be developed and local politicians, and community mobi- bordered on intelligence, such as informa- used exclusively by local actors within a lizers. The information center collected tion on rebel artillery positions and fuel conflict zone. Unlike the first and second daily reports of both conflicts and coop- collection for arson attacks. generations of early warning systems, eration efforts from field staff, verified and whose actors and approaches originated coded the information, and transformed Due to the fluid nature of the conflict in outside the conflict region, third genera- it into data that was entered into the FCE Sri Lanka, a considerable amount of infor- tion systems relied heavily on local Early Warning (FCEWARN) database for mation collected became inaccurate by expertise and comprised local actors who analysis and forecasting. the time it was written into reports for monitored, evaluated, and implemented formal dissemination. This challenge was activities within the zone. Statistical indi- The FCEWARN combined data analysis overcome through stringent verification cators of violence and also peace were with field staff analysis and continuous processes. Multiple field staff or social developed to analyze and predict the tendency for violence. These indicators were designed at the local level by communities themselves, unlike the country-level Figure 1: indicators that first and second generation Example of early warning systems relied on. In addi- community-based tion to monitoring newspapers, websites, intervention and other public media, the third generation early warning system developed in Sri Lanka monitored handbills, hate speech, and other highly localized events while also relying on daily situation reports from highly trained field officers.

Statistical indicators of violence and also peace were developed to analyze and predict the tendency for violence.

September 2013 27 FEATURES

Figure 2: Main components of FCE early warning system and their interaction

networks observed the same situation, to staff and others. The FCE coordinated LTTE seizure of tractors from Muslim and warning signals sent to stakeholders with other stakeholders, including bilat- cultivators. By working directly with the through text messages or telephone calls eral and multilateral agencies (if present). government, security forces, law enforce- were analyzed and disseminated as they The effectiveness of each response was ment, and community and religious were received. evaluated to identify potential areas for leaders, FCE harnessed their combined improvement. The process concluded with capacities to prevent violence. For each early warning signal, the FCE staff debriefing and reflective practice (see selected appropriate response mecha- Figure 2). Initially, the interspersing of ethno- nisms; identified additional stakeholders specific cities, towns, and villages (a to receive the warning; and chose the The FCE early warning system was Tamil village situated next to a Muslim appropriate methods to communicate the successful in preventing conflict from village, which was next to a Sinhala warning (e.g., phone calls or text). Then, intensifying in the area. For instance, FCE village), particularly in the eastern prov- the FCE identified the human and - mate early interventions, including face-to-face ince, proved challenging. During times of rial resources needed for response and negotiations, convinced military leaders conflict, this interspersing made informa- developed timelines for intervention, to refrain from escalating communal tion collection and early action difficult which involved defining the desired early violence and also quickly defused cata- as violence would erupt on the borders of response outcomes and assessing the risk lysts for communal violence, such as the these villages, making them inaccessible.

28 BUILDING PEACE Integrated technology in the hands of local actors, coupled with their determination to prevent violence, can carry citizen-based early warning to greater heights.

Access roads would be cut off, and each Civil society actors implementing early group would patrol the boundaries of its warning systems during all-out war must own village. Over time, however, FCE find novel ways to collect and verify infor- acquired accurate information and cred- mation while still maintaining the safety of ibility to mobilize interventions by hiring their staff. If warring sides do not respond locals from these different villages. to early warnings and are perpetrators of FCE explained the principles of early violence, appropriate international actors warning and violence prevention to these need to be engaged to put pressure on local stakeholders and conducted trainings in actors to protect civilians. Today, new negotiations theory and mediation skills. technologies are advancing information The formation of formal interethnic and/ collection, verification, and dissemina- or interreligious committees, which we tion for citizen-based early warning. These termed coexistence committees, assisted include crowdsourcing, open-source tremendously in this effort. spatial data platforms, technology for remote imaging, mobile technology, and Unfortunately, as the war escalated, field big data analysis as well as low-tech monitoring became increasingly difficult methods like high-frequency radio. Such to the detriment of community-based early integrated technology in the hands of local warning and response. Entire communi- actors, coupled with their determination to ties were under threat as the two armies prevent violence, can carry citizen-based engaged in all-out war. Communities were early warning to greater heights. displaced, disturbing the cohesion and integrity that is crucial for early warning Madhawa “Mads” Palihapitiya is the and early action. Information collection associate director of a research institute became a highly sensitive issue as both at the University of Massachusetts Boston. warring parties considered it intelligence He is the former director of programs at gathering. The safety of the field officers the Foundation for Co-Existence in Sri and community-based networks were at Lanka, where he engaged in high-risk risk. Before the war escalated, warring mediation and violence prevention efforts, parties were amenable to an extent to including co-creating a state-of-the-art FCE’s activities to reduce violence, but conflict early warning and early response once the war was in full swing, both sides system during the civil war in Sri Lanka. cared more about military victory than about civilian casualties. As the fog of war set in, information became less reliable and preventive response thus diminished. PHOTO: JAMES_GORDON_LOSANGELES

September 2013 29 FEATURES

THE BUSINESS OF PREVENTING

Preventing armed conflict might rendering business activities unsustain- ARMED seem like a task only state agen- able. Thus it is in companies’ best interests cies and civil society organizations to care about and work toward preventing are interested in, but businesses conflict, though it is not always clear what CONFLICT in conflict-prone areas are equally, a company can contribute to preventing if not more, interested in it. Armed conflict effectively. conflict imposes additional costs on by Angela Rivas Gamboa companies, which might not be evident, The role of businesses in not only particularly if a company has been oper- preventing but also generating armed ating in a conflict-ridden area, such as conflict has become increasingly apparent. Colombia, for many years. Armed conflict As companies working in complex envi- clearly creates difficulties for companies ronments all over the world have found, worldwide and challenges their capacity buying commodities from areas with a to secure the transactions necessary for strong presence of illegal armed groups, business. The presence of illegal armed exacerbating internal divisions within groups can significantly hinder compa- locals, or hiring services in areas where nies from transporting personnel, buying extortion is rampant can escalate, or even goods, accessing facilities, constructing generate, conflict. Firms should, therefore, infrastructure, delivering products, and conduct their operations with an awareness even hiring employees—all common of these concerns. Their managerial strat- activities in business operations. Armed egies should include an assessment of the conflict also impedes local economic effects of business activities on conflict growth, political stability, socioeconomic dynamics, consultations with key stake- development, and good governance, holders to understand their expectations

30 BUILDING PEACE and concerns about armed conflict, identi- fication of risks related to armed conflict, The role of businesses in not only policies on armed conflict, and procedures preventing but also generating to implement such policies. For example, in the mining and energy sectors in Colombia, armed conflict has become there is a general shift in the way in which companies assess risks and impacts, as well increasingly apparent. as important changes in the way in which they handle and manage them.

However, adapting practices to prevent and nongovernmental organizations. Challenges include selling the idea armed conflict and integrating them into Collaboration among different parties is internally and gaining employees’ and business operations, though critical, is widely acknowledged as key to successful executives’ willingness to work on conflict not enough. Certainly it is not the only interventions. Such collaboration can prevention, identifying initiatives that are way a company can contribute to conflict take a variety of forms—from multistake- more relevant to a company’s activities prevention, and stakeholders increasingly holder initiatives focused on certifying and places of operation, and building the expect businesses to engage more visibly conflict-free commodities to public-private capacities to develop and carry out conflict in this task. The experience of companies partnerships aimed at assisting vulnerable prevention initiatives. in Colombia shows at least two approaches populations. However, this collective work on this front: The first, narrow, approach is not always smooth and requires effort to External obstacles often relate to lack focuses on working with specific popula- secure constructive interactions. Choosing of legitimacy of either the initiative or tions who are vulnerable to armed groups. the right mode of interaction between the actors involved, lack of security for Initiatives include preventing illegal companies and other actors depends those involved in the initiative, inability armed groups from recruiting youth and greatly on the nature of the conflict, as of other actors to effectively carry out the supporting the socioeconomic reintegra- well as the characters of the parties and the initiative’s activities, and the effects of tion of former combatants to avoid the ways in which they have interacted with conflict dynamics on the given initiative. recurrence of violence. In contemporary each other in the past. As such, there are Challenges thus include designing conflict Colombia, the latter is more common: no models, in the strict sense of the term, prevention initiatives in a way that secures Colombia’s reintegration agency (ACR) that can be followed, but certain elements their legitimacy, identifying and engaging has engaged a number of companies to have proved to improve a collaboration’s legitimate partners to carry out the initia- contribute to the ongoing disarmament, chances of success. To begin with, the tive, avoiding security risks by either demobilization, and reintegration process. agendas and strengths of each actor should working on initiatives that no actor sees as The second, broad, approach focuses on a be identified and built upon, allowing a direct threat or staying away from areas specific territory and seeks to provide the enough time to foster trust. The initiative that armed groups still control, developing needed conditions for security and sustain- should be designed in a way that benefits capacity-building strategies so all part- able peace there. Through Peace and all parties involved. These are elements, ners can perform as expected to secure Development Programs civil society orga- rather than parts of a single model, that the initiative’s success, and adjusting nizations and companies have committed companies should bear in mind and adapt the initiative based on shifting armed to securing peace and socioeconomic to their initiatives accordingly. conflict dynamics. development in a given territory. Even though conflict prevention is in busi- Despite these challenges, engaging in In contemporary Colombia, compa- nesses’ best interests, companies can face conflict prevention initiatives is not only a nies seeking to effectively contribute to both internal and external obstacles when wise decision for companies operating in conflict prevention and sustainable peace- engaging in such initiatives. Internal obsta- conflict-affected areas but also a critical building need to adopt both the narrow cles include apprehension over engaging element in securing the sustainability of and broad approaches (i.e., conduct opera- in initiatives pertaining to armed conflict business operations. tions without exacerbating or generating and peacebuilding, as well as the lack conflict as well as secure conditions for of clarity on why the company should Angela Rivas Gamboa is the head of the peace at the local level). In doing so, engage in such initiatives. Further obsta- Business, Conflict and Peace Building companies can benefit from working with cles could make it difficult to effectively Program at Fundación Ideas para other actors, such as government agencies carry out conflict prevention initiatives. la Paz (FIP).

September 2013 31 PROOF OF IMPACT

OVERCOMING OBSTACLES TO PEACE

by Laurel Miller

In a new RAND Corporation study of our study, we employ the term nation- nation-building—Overcoming Obstacles building to describe operations conducted to Peace: Local Factors in Nation- by external civilian and military author- Building—we analyze the impediments ities that employ armed force—by that local conditions pose to interventions deploying foreign troops, armed foreign aimed at stabilizing conflict-affected areas. police, or both—together with other levers Previous RAND studies of nation-building of influence to promote enduring peace in over the past decade focused on external conflict-affected areas. interveners’ activities. Our new work shifts the focus to internal circumstances, We examined in depth six societies: first identifying the conditions that give Cambodia, El Salvador, Bosnia and rise to conflicts or threaten to perpetuate Herzegovina, East Timor, Sierra Leone, them and then determining how external and the Democratic Republic of the Congo. and local actors have or have not been able We also analyzed a larger set of twenty to modify or work around them to promote major post–Cold War nation-building enduring peace. interventions. We assessed the risk of renewed conflict at the onset of the inter- The set of activities that we label nation- ventions and subsequent progress along building corresponds closely to those to five dimensions: security, democratiza- which the term peacebuilding—preferred tion, government effectiveness, economic by the United Nations and other organiza- growth, and human development (which tions and analysts—is applied. The terms measures changes in health and education state-building and peace operations are as well as income levels). also often used to capture similar international engagements in establishing We found that changing many of the peace, rebuilding shattered societies, and specific conditions that fueled conflict preventing the recurrence of conflict. For often is infeasible in the time-frame of

32 BUILDING PEACE nation-building operations. But we also the warring parties’ consent to an interna- Overall, our findings suggest the impor- found that such changes are not essential tional intervention was very closely related tance of setting realistic expectations. to achieving the primary goal of nation- to success in establishing enduring peace. Those involved in nation-building opera- building—that is, establishing enduring All but one of the seventeen missions that tions should not expect to quickly lift peace. In most of the countries that have enjoyed consent (the exception being the countries out of poverty and create liberal experienced nation-building interven- peacekeeping operation in the Democratic democracies. They also should not be tions in the past twenty-five years, conflict Republic of the Congo) led to peace, swayed by a negative stereotype of nation- has not recurred and there has been whereas none of the three nonconsensual building that does not recognize its signal improvement in the other dimensions we peace-enforcement missions (Afghanistan, achievements in the great majority of cases. assessed—in some cases, considerable Iraq, and Somalia) did so. These more realistic expectations should improvement—even where it cannot be guide the development of nation-building said that the intervention reengineered In our six in-depth case studies, the strategies and implementation plans, as social relations or otherwise fully resolved regional or global situations had a profound well as the appreciation of outcomes. the causes of conflict. effect in fomenting or sustaining violence, and changing those situations was crucial Laurel Miller is a senior policy analyst at The countries that were better off to begin to ending the conflicts. The international the RAND Corporation, where she focuses with, institutionally and economically, community succeeded considerably in on foreign policy and national security were better off at the end of nation- altering the geopolitical sources of conflict issues. She is a principal co-author of building interventions than were those in each of the six cases, but it could not Overcoming Obstacles to Peace: Local that had greater limitations at the start. substantially weaken the hold of patronage Factors in Nation-Building (RAND Nevertheless, almost all countries were networks that were competing for wealth Corporation, 2013), which is available for meaningfully better off than when the and power. These networks often were free download at www.rand.org. operations began. Most post–Cold War coopted into power-sharing arrangements, interventions have been followed by which produced peace and even some improved security, some democratization, modicum of democracy, but they could significant economic growth, and modest almost never be persuaded to support insti- improvements in human development and tutional and policy reforms that would government effectiveness. These outcomes curb their own rent-seeking capacity. have been achieved, in most cases, with only a modest commitment of interna- For example, international pressure on tional military and civilian manpower the leaderships of Serbia and Croatia and economic assistance. The measurable compelled them to persuade their proxies improvements we document for the twenty within Bosnia to make peace, but the post–Cold War nation-building operations power-sharing governance arrange- suggest benchmarks by which to measure ments in Bosnia that were integral to the progress in future operations. peace settlement have persistently been dysfunctional. In Sierra Leone, the UN Our study shows that three factors most peacekeeping operation gained traction influence the establishment of sustainable after the United Kingdom stepped in to peace: gaining local consent; neutralizing suppress insurgent elements and after the the interference of outside actors, including international community helped stabi- neighboring states; and mitigating lize neighboring Liberia, but the deeply the influence of entrenched patronage entrenched patronage system has been an networks. Nation-building operations that obstacle to strengthening Sierra Leone’s have enjoyed local consent and regional state institutions. support almost always have achieved peace. In the twenty cases we examined,

September 2013 33 NOTES ON POLICY

THE ATROCITIES PREVENTION BOARD Because remembrance An Experiment in without resolve is a hollow gesture. Genocide Prevention Systems Awareness without action changes nothing. by Andrea Bartoli In this sense, “never again” is a challenge to us all—to pause and to For nearly two years the US govern- diplomacy, dedicating resources and look within. ment has been developing a comprehensive foreign assistance to support preventive interagency strategy to help prevent mass capacities, incorporating genocide preven- —President Barack Obama, April 23,

atrocities and genocide. This policy tion and response into national policy 2012, US Holocaust Memorial Museum PHOTO: WHITE HOUSE experiment includes creating the Atrocities guidance and planning, developing mili- Prevention Board (APB) within the White tary doctrine and training on protection of House’s national security apparatus, along civilians and prevention of genocide, and with equipping federal agencies with new helping to create an international network capacities and tools for preventing atroci- for information sharing and coordinated ties. While still a work in progress, the action to prevent genocide. At the same time, a new international geno- effort marks an important step forward in cide prevention architecture was emerging, shifting the stance of the US government A number of incoming officials were starting with the 2004 Stockholm confer- and the international community from personally engaged in the aftermath of the ence on genocide prevention. On that willful neglect, which meant intervention Rwandan genocide and were long-time occasion UN Secretary General Kofi Annan came too late in Rwanda and Bosnia, to advocates of a more responsible US role announced the establishment of the post of coordinated action to help prevent future in addressing mass atrocities. Meanwhile, special advisor on genocide prevention, genocide and mass atrocities. a growing coalition of human rights, a role that Juan Mendez, Francis Deng, humanitarian, peacebuilding, and faith- and now Adama Dieng have performed so The recent US policy developments on based organizations organized around the far. UN Member States and international atrocities prevention trace their roots to the GPTF report and began a concerted advo- organizations began expanding and devel- Genocide Prevention Task Force (GPTF), cacy effort to ensure key recommendations oping a more active role in early warning led by former secretary of state Madeleine were implemented. The Obama admin- and response. Argentina, Switzerland, and Albright and former secretary of defense istration began to dedicate high-level Tanzania organized regional gatherings. A William Cohen, and the efforts of many to attention to mass atrocities prevention, growing number of states began to address translate the rhetoric of “never again” into implementing important components of genocide prevention and the responsi- practical reality. In late 2008, as the Obama the GPTF recommendations, including bility to protect. Training programs such administration prepared to take office, the appointing a national director for war as Engaging Governments in Genocide bipartisan task force released its report, crimes, atrocities, and civilian protection Prevention introduced more government which included a robust list of recommen- in the White House national security staff officials around the world to genocide dations for improving US capacities to and adding mass atrocities for the first time prevention. New civil society initiatives help prevent genocide: assessing risks and to the intelligence community’s annual focused on strengthening community resil- triggering action through early warnings, assessment of security threats. ience to help avert mass violence and heal engaging before a crisis erupts, halting and after atrocities. All these activities called reversing escalation through preventive for synergy.

34 BUILDING PEACE On August 4, 2011, the White House happening in these directions, but it has broader confines of a complex and often released Presidential Study Directive been slow in coming and will not satisfy conflicting US foreign policy agenda. It (PSD) 10, which emphasized that geno- all critics. will face the ongoing challenges of the cide and mass atrocities prevention was prevention paradox—that we can prevent a national security priority and moral However, the seemingly bureaucratic only what we know—and the difficulties responsibility and stated clearly that “in changes the APB has focused on are of policy prioritization and interagency the face of a potential mass atrocity, our critical steps forward. The board meets coordination. But it is a crucial effort that options are never limited to either sending monthly and includes senior representa- can support and be part of the emerging in the military or standing by and doing tives of the Departments of State, Defense, broader global regime for genocide nothing.” The directive mandated the Justice, Treasury, Homeland Security, and prevention. Atrocities prevention is ulti- creation of the APB to address emerging Intelligence, along with USAID, the US mately a collective enterprise that uses threats and coordinate a comprehensive Mission to the United Nations, and the and generates learning and produces good strategy for atrocities prevention. Agencies Office of the Vice President and national practice through experimentation, verifica- across the US government were charged security staff. It looks at specific country tion of results, and further improvement. with reviewing their own capacities for cases that may be at risk of atrocities and The APB attempts to move US policy from atrocities prevention, identifying gaps and seeks to take an upstream approach on moral outrage to evidence-based decision challenges, and developing focused work situations that may not otherwise get high- making. Data on human rights violations, plans to improve their capabilities. From level attention. Rather than operating in the arms trade, hate speech, demographic this review came a number of specific initia- crisis mode on situations that have already trends, economic patterns, and early

PHOTO: WHITE HOUSE tives, including improved civilian surge escalated to mass atrocities and high-level warning must be collected and interpreted capacity in the State Department, an inno- policy attention, such as Syria, the APB properly, consistently, and transparently. vative Tech Challenge by the US Agency is undertaking the apparently mundane Policies and investments need to follow for International Development (USAID), but long-neglected work of trying to what works. Doing so requires not only new doctrine and training on mass atroc- address crises before they erupt. It is taking mustering greater political will to face ities prevention in the Department of prevention seriously. emerging threats before violence erupts but Defense, and new Department of Treasury also the slow and steady work of research sanctions against third-party enablers. The APB is also changing how the US and learning, policy development, program government works at an interagency design and implementation, and resource A year later at the US Holocaust Memorial level and how resources are spent. It has investments to support capacity-building Museum, President Obama announced the helped ensure dedicated US investments in at the local, national, regional, and inter- establishment of the APB and the devel- prevention efforts in Burma, Kenya, and national levels. opment of a US strategy to prevent mass Central Africa. It has established itself as atrocities and genocide. He recommitted a forum for interagency engagement and The APB’s work is often not high-profile the United States to striving for a future coordination in identifying and mobi- and may be difficult to measure. It is where there is a “place for dignity for lizing US resources on emerging atrocities neither a panacea for genocide prevention every human being,” and to making this threats. And, perhaps most promising of nor a merely bureaucratic exercise. Rather, “the work of our nation and all nations.” all, it has begun to institutionalize atroci- it is an experiment that deserves the atten- ties prevention into “the DNA of the US tive examination and critical support of all The APB has now been up and running for government.” On May 1, 2013, the White who are committed to transforming “never over a year. Some have criticized it for not House released a fact sheet outlining prog- again” from persistent promise into prac- being more out front on the Syria crisis and ress since PSD-10, and an executive order tical reality. for working behind a shroud of secrecy. on atrocities prevention is expected in the The criticism has been intense especially months ahead. A new national intelligence Andrea Bartoli is dean of the School among academics and some sectors of estimate identifies specific situations of for Conflict Analysis and Resolution at civil society and is worthy of debate. The concern for mass atrocities threats. George Mason University, where he previ- APB has not been adequately transparent, ously served as director of the Institute and it needs to find clear ways to measure The United States is both leading and for Conflict Analysis and Resolution from and demonstrate the real effects of its work learning as the APB begins its work. 2007 to 2011. He works primarily on on changes in its behavior and policies in The APB will not be perfect and its peacemaking and genocide prevention. specific situations. A shift does seem to be efforts will still be undertaken within the

September 2013 35 NOTES ON POLICY

REMINDERS OF THE PROMISE Civil Society and the Responsibility to Protect

by Don Deya

In 2005 governments worldwide indifferent in the face of the most horrific made a historic commitment to crimes was meant to prevent governments prevent and halt genocide, war from using sovereignty to shield their crimes, crimes against humanity, massacres of their own populations. For and ethnic cleansing by unanimously the first time, states acknowledged that agreeing to the responsibility to protect these four crimes—no matter the location, (R2P). Enshrined in the UN World Summit perpetrator, or circumstances—constitute Outcome Document, R2P affirms that the threats to international peace and security state holds the primary responsibility for and thus require action. protecting populations from mass atrocities and that the international community R2P offers a comprehensive framework must assist states in fulfilling these obliga- to prevent and halt atrocities, prioritizing tions, as well as respond in a timely and nonmilitary responses and emphasizing decisive manner when a state fails to do so the use of diplomatic, legal, economic, or is in fact the perpetrator of the crimes. and humanitarian measures to protect This agreement for states to not remain populations. If nonmilitary means are

36 BUILDING PEACE CITIZENS

PRIVATE inadequate, the use of force can only be GOVERNMENT undertaken collectively, with Security SECTOR Council authorization and in accordance with the UN Charter.

Prevention sits at the core of R2P, but what does this mean in practice? An CIVIL SOCIETY effective strategy for prevention is likely two-pronged. Stakeholders at the local, national, regional, and international levels must first strengthen their institu- Driven by the belief that working in an unprecedented framework to guide tional capacities to prevent and respond to coalitions can strengthen civil society states in using noncoercive and coer- crimes—for example, by ensuring national efforts, the International Coalition for the cive measures to prevent, respond to, and constitutions are inclusive and represen- Responsibility to Protect (ICRtoP) was rebuild after mass atrocities. More often tative, judicial institutions are free and created to amplify the voices of these than not, however, the greater danger is not fair, early warning systems are equipped groups around the globe and ensure that that governments will intervene improp- to recognize indicators of impending organizations from all regions and sectors erly but that they will not act at all. Our atrocities, and human rights monitors and inform R2P implementation nationally failures to stop atrocities in Sri Lanka, the mediation teams have the required training and internationally. This global move- Democratic Republic of the Congo, and and resources. Second, they must garner ment now exceeds sixty organizations Syria show the continuing need to make the political will to react rapidly when undertaking a vast array of activities. this norm a living reality. populations are threatened. They are engaging with diverse religious communities to facilitate local dialogue, Civil society can and must address the Civil society plays an invaluable and providing legal support to judicial insti- challenges by continuing to strive tire- multifaceted role in encouraging and tutions to prevent impunity for crimes, lessly—through ongoing initiatives as inspiring governments to improve their working with governments to establish well as new and innovative strategies— abilities to protect and build the political national atrocities prevention architec- to prevent mass atrocities. It must remind will to act. Local groups often have unique ture, encouraging officials to take into states that they already made the commit- and detailed knowledge of internal devel- account risks of atrocities as they develop ment to protect their populations from opments in countries facing potential or domestic policies, calling on governments these crimes and convey that it is a ready current atrocities, as well as the ability to curtail the illegal transfer of small arms partner as they work to uphold their prom- to mobilize their respective governments, and light weapons, and organizing public ises. publics, and media. Other organizations and private opportunities to highlight the may work in places with otherwise limited roles of nongovernmental organizations, Don Deya is the chief executive officer activity and can bring an atrocities preven- policymakers, security sector and media of the Pan African Lawyers Union, an tion lens to their research and reporting. representatives, lawyers, and others in umbrella association of African lawyers Civil society can also share expertise and atrocities prevention. and law societies based in Arusha, lessons learned across regions and subre- Tanzania. He is chair of the International gions to develop nuanced policy options The past decade has seen growing support Coalition for the Responsibility to Protect for prevention. These experiences and for R2P and stronger determination in all and the chairperson of the Board of the analyses all contribute to the collective parts of the world to prevent atrocities. Centre for Citizens’ Participation in the international effort to protect populations Even so, there are still those who believe African Union. from atrocities. that R2P will only ever be a permis- sion slip for military intervention and who do not understand that the norm is

September 2013 37 REVIEWS FILM REVIEW

A WHISPER TO A ROAR Director: Ben Moses

by Julia Roig In a globalized world, when leaders and the courage and commitment needed in Asia make a declaration, it is to break the cycle of power, impunity, almost immediately heard in the and corruption within their governments. Americas. Likewise, social activism and While each country’s leader held legiti- ideas can spread rapidly across borders, macy at the beginning of his rule, the as the Arab Spring recently demon- movie shows how the governance struc- strated. While it is easy for ideas to spread, ture succumbed to a paradigm of violent immense differences among cultures affect oppression and corruption. Additionally, A their implementation for social change. Whisper to a Roar highlights how, through social networks and instant global commu- The 2012 filmA Whisper to a Roar, written nication, people are refusing to abide by a and directed by Ben Moses and produced by system that represses them. As the famous Appleseed Entertainment, draws powerful phrase from the 1976 film Network goes: parallels between five vastly disparate They are as mad as hell, and they’re not nations—Ukraine, Venezuela, Egypt, going to take it anymore. Malaysia, and Zimbabwe—yet skillfully refrains from overstretching the similari- Footage from each of the five countries is ties, allowing the viewer to appreciate presented alongside interviews with the the context of each story. In each country, people who were personally involved— A Whisper to a Roar examines a recur- from student leaders to heads of state—in rent theme regarding the power of people the conflicts, allowing the audience to expe- to work together for democratic change rience the angst firsthand. Historic videos

38 BUILDING PEACE of rallies in each of the countries and For this reason Partners for Democratic A Whisper to a Roar calls for all to continue speeches made by the leaders and key Change (Partners) works to arm demo- helping democratic transitions in Ukraine, figures at the time are shown through the cratic activists with democracy-building Venezuela, Egypt, Malaysia, Zimbabwe, reflections of the same individuals today. tools beyond protests. Building lasting and elsewhere, so their stories can end with This juxtaposition of past and present peace and democratic institutions requires the establishment of vibrant and peaceful allows the viewer to connect to each coun- that all people have a say in decisions that democracies. try’s struggle, though it also demonstrates affect their lives, including those who may the film’s bias as a piece of activism, meant not agree with one’s visions. Structures and Julia Roig is the president of Partners to instill outrage that leads to support for processes for governance beyond regime for Democratic Change, an international democratic activists. change are critical. Our work throughout organization that works through a global the world helps to prevent such violent network of professionals to support local Peaceful protests steeped in outrage backlash from occurring because citizens leaders and create partnerships that can unfortunately also lead to violence. are trained to strategically intervene in the transform conflict, strengthen democratic Missing from this movie is, in the system and resolve their issues without institutions, and achieve sustainable immortal words of Paul Harvey, the rest resorting to force. For example, in Yemen, development. She oversees the DC-based of the story—the “now what?” History has Partners is holding citizen dialogues on Partners team and provides technical shown us that those invested in the status the constitution-writing process to help and strategic leadership to the global quo will do everything in their power to them actively shape their government. We network of twenty Partners affiliates that silence those challenging it. That is exactly work directly with local civil society orga- make up Partners for Democratic Change what we see in each case study examined. nizations, connecting activists throughout International (PDCI). In Venezuela, when Hugo Chavez felt the Middle East so they can provide each threatened by individuals’ voting habits, other with support and advice on peaceful he nationalized the media along with many change. In Latin America, we have galva- other aspects of society and criminalized nized civil society to be more active in peaceful student protest. Robert Mugabe converting the Inter-American Democratic in Zimbabwe used the military against his Charter into a relevant advocacy tool for own citizens to retain his power. Malaysian democracy in the region. In West Africa, prime minister Mahathir Mohamad wanted we are training civic leaders in partici- to consolidate his power, and when his patory governance mechanisms and colleague Anwar Ibrahim questioned the transparency. Through methods like these, legality of his finances, Mahathir had him in partnerships with civil society, busi- arrested. In Egypt, Hosni Mubarak arrested ness, and governments, Partners empowers anyone who opposed him. Ukrainian presi- voices for transparency, participation, dent Leonid Kuchma allegedly had his and the rule of law to prevent a recur- political challenger, Viktor Yushchenko, rence of the transitional violence that the poisoned in an attempt to remain in office. film highlights. A Whisper to a Roar does a good job of documenting the extreme need for demo- A Whisper to a Roar educates its audience cratic transition in these countries but stops about acts of democratic courage in five short of presenting the long hard road to countries, serving as forces for change in democracy after the autocratic regime violent and destructive contexts. Most of is ousted. When individuals rise up and the stories presented in A Whisper to a speak out, they are met with violence, and Roar are not over yet, however. Partners in the rare case of success—as in the over- believes that we should continue to throw of Hosni Mubarak—the country is support local leaders beyond their protest forced into a power vacuum for which it is movements, helping them to build coali- not prepared. tions and collaboratively advocate for an inclusive society that together can build and rebuild democratic institutions.

September 2013 39 REVIEWS BOOK

GIVE PEACE Authors: A CHANCE David Hamburg and Eric Hamburg by Darynell Rodriguez Torres

When we talk about giving some- the Carnegie Corporation in New York, thing a chance, we usually mean where he established and co-chaired with giving it an opportunity. But chance Cyrus Vance the Carnegie Commission on can also refer to the probability or likeli- Preventing Deadly Conflict. hood of something happening. In Give evolved into a diplomatic initiative that Peace a Chance, David A. Hamburg and The book takes us through what the authors helped ease tensions during the Cold War. Eric Hamburg—father and son—use both see as the pillars of prevention: education, meanings. The book’s title is taken from early warning, democracy, development, The need to develop mechanisms to over- the famous John Lennon song, asking for human rights, and arms control. The come in-group bias and promote intergroup an opportunity to use nonviolent means to discussion of each one of these pillars cooperation is a persistent theme. Issues resolve conflict. This book is not so much involves entertaining personal anecdotes such as health—a common value appreci- a plea to end ongoing conflicts but an involving famous scientists, politicians, ated by all—can be used as an instrument analysis of how to prevent mass violence diplomats, and civil society leaders from to promote collaboration, enhance inter- before it erupts. It thus offers an elabo- all corners of the world. Of the six pillars, action, and build confidence among rate response to the question of what we Hamburg especially emphasizes education: different groups. According to Hamburg, can do to reduce the chances for violence “There is a sense in which this whole book “a strong constituency for preventing and increase the chances for peace. This is about education,” he says. Along with deadly diseases has emerged. This has led is done in the form of a personal and, at the need to educate children and the youth, to improved rates of immunization, better times, intimate conversation with David he stresses the need to educate leaders, not diet and exercise practices, reduced ciga- Hamburg, making the book compelling only those active in politics but also those rette smoking, and in turn, to diminishing and easy to read for a nonexpert audi- in other sectors of human societies, giving the casualties of a variety of diseases.” He ence, while offering insights for seasoned them the skills to understand the nature of suggests we could use a similar approach conflict prevention and peacebuilding conflict and minimize disputes. According to preventing armed conflict by addressing practitioners. to Hamburg, these educated leaders will social vulnerabilities and risk factors that be key to developing constituencies for could lead to violence. This is an idea Hamburg is a distinguished scholar in preventing armed violence. worth giving a chance to. the field of medicine. His work originally focused on stress research but evolved Hamburg sees the practice of conflict Darynell Rodriguez Torres, is the program into the study of human aggression. This prevention as the process of identifying manager for policy and advocacy at the led him into the study of human evolu- valued common goals and fostering Global Partnership for the Prevention tion, for which he set up a research station collaboration among different actors of Armed Conflict (GPPAC). His work in Tanzania with Jane Goodall to observe to reach those goals. In that sense, the is focused on strengthening cooperation the behavior of chimpanzees. From this whole book appeals to the idea of not only between GPPAC members and poli- experience, Hamburg gained insights into strong multilateralism but also multiactor cymakers from governments, regional group thinking and the causes of intergroup collaboration to achieve greater peace and international organizations, and the aggression. Since then, his work has been security. A good example is Hamburg’s United Nations to provide inputs for devoted to identifying tools and mechanisms own experience developing a program to shaping conflict prevention and peace- to reduce the probabilities of outbreaks foster exchanges among scientists from the building strategies. of mass violence. For fifteen years he led United States and the Soviet Union, which

40 BUILDING PEACE Conflict Prevention Facts COSTS OF WAR BENEFITS OF PREVENTION

The cost of a typical, seven-year civil war in a low-income country % FEWER CASUALTIES 64.2 Largely because90 of better conflict prevention and resolution efforts, 90% fewer people were killed in violent armed conflicts throughout $ billion the first years of the 21st century than during each year of the 1990s

in savings $ $12.8 BILLION per year 8.12 Programs to reduce the risk of civil war by 10% through international aid or prevention of relapse into conflict could reap $12.8 billion in TRILLION savings per year The global cost of violence in 2010 is estimated to have been more than $8.12 trillion % Reducing violence by just 25% would have saved the global economy over $2 trillion in 2010 CONFLICT PREVENTION TIMELINE 65 SAVINGS The term “Preventative Diplomacy” is used for the first time by UN Secretary-General Using a conflict prevention 1960 Dag Hammarskjöld rather than conflict management approach would have saved the international TWO International Alert, one of the first conflict community 65% in expenditure TRILLION 1985 prevention nongovernmental organizations (NGOs), on major conflict interventions is established throughout the 1990s DOLLARS

Post–Cold War conflicts in Yugoslavia and Rwanda help shift thinking towards the importance of RECOMMENDATION 1990s conflict prevention strategies

UN Secretary-General Kofi Annan delivers a speech HYBRID APPROACH titled “Development Is the Best Form of Conflict 1999 Prevention” at the World Bank A combination of improved policy and increased aid can reduce conflict risk by around 28% over a period of 5 years

Secretary of State Hillary Clinton highlights conflict prevention as a major focus of US policy in her 2010 Quadrennial Development and Diplomacy Review DEFINITION OF CONFLICT PREVENTION

“Actions, policies, procedures or institutions undertaken in particularly vulnerable places and times in order to avoid the The parties to any dispute, the continuance of which is likely threat or use of armed force and related forms of to endanger the maintenance of international peace and security, coercion by states or groups as the way to settle the political shall, first of all, seek a solution by negotiation, enquiry, mediation, disputes that can arise from the destabilizing effects of economic, conciliation, arbitration, judicial settlement, resort to regional agencies social, political, and international change.” or arrangements, or other peaceful means of their own choice. – Michael Lund, author of Preventing Violent Conflicts: – Charter of the United Nations, Article 33 of Chapter VI: A Strategy for Preventive Diplomacy Pacific Settlement of Disputes September 2013 41 Building Peace is published every six months (March and September) and in between dynamic new content is added to the Building Peace website. Subscribe free of cost to Building Peace and its interim web updates. Please visit www.buildingpeaceforum.com to subscribe.

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