We the peoples of the United Nations determined to save succeeding generations from the scourge of war, which twice in our lifetime has brought untold sorrow to mankind, and to reaffirm faith in fundamental human rights, in the dignity and worth of the human person, in the equal rights of men and women and of nations large and small, and to establish conditions under which justice and respect for the obligations arising from treaties and other sources of international law can be maintained, and to promote social progress and better standards of life in larger freedom, and for these ends to practice tolerance and live together in peace with one another as good neighbours, and to unite our strength to maintain international peace and security, and to ensure, by the acceptance of principles and the institution of methods, that armed force shall not be used, save in the common interest, and to employ international machinery for the promotion of the economic and social advancement of all peoples, have resolved to combine our efforts to accomplish these aims.

UN Peacebuilding: an Orientation We the peoples of the United Nations determined to save succeeding generations from the scourge of war, which twice in our lifetime has brought untold sorrow to man- kind, and to reaffirm faith in fundamental human rights, in the dignity and worth of the human person, in the equal rights of men and women and of nations large and small, and to establish conditions under which justice and re- spect for the obligations arising from treaties and other UN Peacebuilding: an Orientation sources of international law can be maintained, and to pro- mote social progress and better standards of life in larger freedom, and for these ends to practice tolerance and live together in peace with one another as good neighbours, and to unite our strength to maintain international peace and security, and to ensure, by the acceptance of principles United Nations and the institution of methods, that armed force shall not Peacebuilding Support Office be used, save in the common interest, and to employ in- September 2010 ternational machinery for the promotion of the eco- nomic and social advancement of all peoples, have re- solved to combine our efforts to accomplish these aims.

2 TABLE OF CONTENTS

Foreword Section I: the scope of peacebuilding • Definitions and concepts 5 • The political context of peacebuilding 5 • Essential features of peacebuilding 5 • Phases of peacebuilding 6 • Peacebuilding’s relation to conflict prevention, peacekeeping, peacemaking, humanitarian and development assistance 8 • The most frequent needs 12 • Setting peacebuilding priorities 12 • The need for conflict sensitivity 14 • Challenges of peacebuilding 16

Section II: planning for peacebuilding • International community planning processes 27 • Constraints to effective planning 29 • International and regional actors involved in peacebuilding 29 • Women’s participation in peacebuilding 30

Section III: resources for peacebuilding • The UN’s peacebuilding architecture 37 • The UN Peacebuilding Fund 37 • Other sources of funding for peacebuilding 39 • Support from the Peacebuilding Support Office (PBSO) 43

Annex I: Th e evolution of peacebuilding: key UN definitions and related concepts 44 Annex II: List of Acronyms 50 By Judy Cheng-Hopkins, Much of the paper is based on the Report of Assistant Secretary-General for Peacebuilding the Secretary-General on Peacebuilding in the Support Immediate Aftermath of Conflict of June 2009, which addressed peacebuilding throughout the Building peace in countries emerging from conflict UN system. The focus of that report was the first is a huge, complex undertaking. It involves a myriad two years after the main conflict ends: a crucial of different players. Its very definition is the subject window of opportunity to get early peacebuilding of vigorous debate. Those of us who work as activities underway, yet one which the international peacebuilders are therefore faced every day with community has too often missed. But peacebuilding the question: how do we build sustainable peace? is not restricted to that early period. This paper recognizes, therefore, that peacebuilding is typically This paper aims to bring some clarity to the a much longer-term process. The Peacebuilding perspective of the peacebuilder, especially the Fund, for example, can support peacebuilding for UN peacebuilder. It is not an academic study of several years after conflict has ended. peacebuilding, nor does it offer definitive solutions to its problems. Instead, it contains practical Peacebuilding involves a great number and variety guidance on how to deal with the recurring of stakeholders – starting with the citizens of the challenges of planning, programming, prioritization countries themselves where peacebuilding is and resources. To enhance its practical relevance, underway. It is neither a purely political, security nor the paper contains many examples of real life developmental process, but one that must bring peacebuilding, its mistakes as well as its successes. together security, political, economic, social and These are lessons shared by our UN colleagues human rights elements in a coherent and integrated who carry out peacebuilding in the field. They way. This paper, therefore, is a collective endeavour, illustrate how the principles described in this paper developed by PBSO in conjunction with many other apply in actual peacebuilding situations. parts of the UN system engaged in peacebuilding, whose contribution I gratefully acknowledge. This paper is aimed at UN and other practitioners who may have wide experience in other areas but who are relatively new to peacebuilding, particularly partners of the UN Peacebuilding Support Office (PBSO), such as those working with the Peacebuilding Commission or

FOREWORD implementing Peacebuilding Fund projects.

1 Launch of the ‘Sport for Peace’ Programme aimed at promoting reconciliation and development in Liberia. This cultural performance was part of the ‘Sport for Peace’ soccer tournament launch. © UN Photo/Eric Kanalstein

3 Definitions and concepts country concerned, based on national ownership, and should comprise a carefully prioritized, There are many possible definitions of peacebuilding sequenced, and therefore relatively narrow set of The scope of peacebuilding and varying opinions about what it involves. The activities aimed at achieving the above objectives.”3 term itself first emerged over 30 years ago through the work of Johan Galtung, who called for the The political context of creation of peacebuilding structures to promote peacebuilding sustainable peace by addressing the “root causes” of violent conflict and supporting indigenous The initial post-conflict period in most countries is capacities for peace management and conflict characterized by significant insecurity and political resolution.1 uncertainty. Peace processes can advance, but Peacebuilding became a familiar concept within they also often suffer periods of regression. Many the UN following Boutros Boutros-Ghali’s 1992 countries are governed by transitional political report, An Agenda for Peace, which defined arrangements until after the first post-conflict peacebuilding as action to solidify peace and elections, when newly elected representatives have avoid relapse into conflict. In 2000, the Brahimi assumed their executive and legislative functions. Report defined it as “activities undertaken on the So the success of peacebuilding depends in part far side of conflict to reassemble the foundations on the political decisions of those involved (national of peace and provide the tools for building on and local governments, communities, donors, the those foundations something that is more than just UN itself), in part on effective leadership (by national the absence of war.” The UN’s understanding of governments and within the UN), and on resources peacebuilding has continued to evolve ever since. 2 like human capital or donor financing. The Secretary-General’s Policy Committee has described peacebuilding thus: “Peacebuilding Essential features of involves a range of measures targeted to peacebuilding reduce the risk of lapsing or relapsing into National ownership conflict by strengthening national capacities at all levels for conflict management, and to Peacebuilding is primarily a national challenge S ect i o n I lay the foundations for sustainable peace and and responsibility. It is the citizens of the countries development. Peacebuilding strategies must be where peacebuilding is underway, with support coherent and tailored to the specific needs of the from their governments, who assume the responsibility for laying the foundations of lasting peace. National ownership is essential to success. 1 Three approaches to Peace: Peacekeeping, Peacemaking, Peace- building, Johan Galtung, 1976 2 See Annex: the evolution of peacebuilding 3 Decision of the Secretary-General’s Policy Committee, May 2007

5 National capacity Assessment or Strategic Assessment) in- cluding analysis of conflict drivers and risk. National capacity development must be central to all international peacebuilding efforts from the Phases of peacebuilding very start, as part of the entry strategy, not the exit. Rule of law in Somalia Indeed, a core objective for peacebuilding is to Most peacebuilding happens once conflict – i.e. reach as soon as possible the point when external major, large-scale violence – has ended. But some “Gaps in the justice and security sector during an ongoing conflict leave assistance is no longer required, by ensuring that peacebuilding tasks can start even during conflict. communities exposed to violence and deprived of physical and legal all initiatives support the development of national For example, in pockets of peace, civil society safety. To address this in Somalia, the UNDP Rule of Law programme has peacebuilding capacities. This is a challenge, organizations, local government or traditional actors focused on developing competent police and judiciary through training and especially in the early days when peace is fragile may be promoting conflict resolution mechanisms, rehabilitation of failing infrastructure, raising awareness of human and legal and national capacity is often displaced and or seeking to provide basic services or develop severely limited. Nevertheless, peacebuilding must rights among communities, establishing legal aid clinics, demobilizing armed livelihood opportunities. The UN can support them. focus proactively on (re)building national capacity, forces and groups, and studying and supporting traditional conflict resolution otherwise peace will not be sustainable. To support It is important to start assessing capacity as soon mechanisms. This has allowed war-affected communities to access legal this effort, a collective assessment of existing as the end of conflict is in sight (particularly national information, counselling and representation – making small steps towards capacities should be conducted early on. capacity, but also other potentially useful capacity justice in an otherwise lawless environment.” in the country or the region, such as resident staff Common strategy or NGOs). This preparatory groundwork enables — Early Recovery Team, UNDP Bureau for Crisis Prevention and Recovery Inclusive peacebuilding involves many actors. The the UN to respond more quickly and effectively key to effective peacebuilding lies in an agreed once a negotiated settlement has been reached common strategy, nationally owned, with clear and/or elements of peace are established, as well priorities against which the UN, the international as to capitalize on any opportunities to build peace community and national partners can allocate from the bottom up where pockets of stability exist. 4 Security sector reform in Somalia resources. A common strategy should be: At that point, the volume of peacebuilding action • Nationally owned, derived from an inclusive is expected to ramp up significantly. In this early “To complement the engagement of the international planning process, with many and diverse period, people are ready for change, have high community in supporting rule of law in Puntland, Somalia, the stakeholders consulted as the strategy is expectations and can easily revert to conflict if they UN Peacebuilding Fund recently approved a $1 million project developed; and do not feel tangible benefits from peace. However, to provide immediate support to critical security sector reform • Based on an assessment of the country’s this is where the international community has been elements in Puntland. The purpose is to improve security situation (e.g. through a Post-Conflict Needs weakest (hence the emphasis in the Secretary- by building the capacity of the civilian police in the Puntland, General’s report5 on the crucial window of the first similar to interventions in South and Central Somalia, with an 4 “Peacebuilding strategies must be coherent and tailored to 24 months after conflict). the specific needs of the country concerned, based on national emphasis on improving command, control and management ownership, and should comprise a carefully prioritized, sequenced, 5 Report of the Secretary-General on peacebuilding in the structures, and training.” and therefore relatively narrow set of activities aimed at achieving the immediate aftermath of conflict, A/63/881-S/2009/304, 11 June above objectives.” Secretary-General’s Policy Committee, May 2007 2009 - paragraphs 2-3 — UN Peacebuilding Fund

6 7 Seizing this early window of opportunity is vital. But the spectrum from conflict to peace. For another, specific post-conflict security, political, humanitarian Socio-economic peacebuilding is a lengthy process, which goes various peacebuilding activities may take place in and development challenges. A new mission may reintegration of ex- far beyond this initial two year period. A country’s each phase of the spectrum. The UN Charter clear- be designed7 in parallel with a peace process, or combatants and youth at peacebuilding priorities and needs will change ly outlines the mandate of the whole UN system after a peace has been signed. risk in Côte d’Ivoire over time. The UN may be expected to play a more to engage in peacebuilding. The first preambular If the Security Council approves the deployment The 1,000 micro projects in Cote d’Ivoire aim prominent role in the early days, while national paragraph speaks of saving “succeeding genera- of a UN peacekeeping operation, then UN peace- to provide quick peace dividends to conflict- capacity is being developed and national actors tions from the scourge of war” and the first article keepers (formed military and police units, observ- affected communities and former combatants may need considerable external support, and when states that the purpose of the UN is “to maintain ers and advisers) deploy to support national secu- through the provision of socio-economic international peace and security, and to that end to a transitional government’s legitimacy may be weak rity actors in establishing the safety and security reintegration options to former combatants, take effective collective measures for the prevention prior to the first post-conflict elections. needed for peacebuilding to get underway. In ad- militias, youth associated with armed and removal of threats to the peace.” dition, UN peacekeepers increasingly play a sig- conflicts and youth at risk. As the country Peacebuilding’s relation to con- In most post-conflict situations there are many nificant role as early peacebuilders themselves.8 goes through a critical transitional period, flict prevention, peacekeeping, international actors who contribute to peacebuilding The mandates of multi-dimensional peacekeep- the project helps to create an environment conducive to peaceful elections. The direct peacemaking, humanitarian and as security, development and humanitarian staff. ing operations include many peacebuilding tasks, beneficiaries of the reintegration projects Humanitarian and sometimes development staff including disarmament, demobilization and re- development assistance include 1,099 ex-combatants and 803 youth may already be in a country during conflict, so integration (DDR), security sector reform (SSR), There is no simple, clear cut definition of peace- at risk. 22 % of the beneficiaries are women. they are ready on the ground (albeit at diminished support to electoral processes and re-establishing It has facilitated the reintegration of 3,483 building that sets it apart from conflict prevention, 9 capacity) once conflict ends. governmental authority. International and national beneficiaries through microprojects in sectors peacekeeping, peacemaking, humanitarian and At that point the Security Council may mandate civilian staff are employed to support those tasks. such as agriculture, animal husbandry, fishing development assistance.6 For one thing, there is the deployment of a UN country presence. The Special Political Missions and integrated peace- and artisanal skills, reaching 24 localities considerable overlap of goals and activities along UN would then draw from its various capacities the building missions, too, have received mandates cov- and partnering with 22 national structures. Beneficiaries also received training in civic resources required to respond to that country`s ering a wide range of peacebuilding tasks. In those 6 See Annex education and accounting.” cases, security can be augmented by UN-endorsed multilateral (including regional) security forces; or it — Funded by the UN Peacebuilding Fund and Peace Dividends may be provided by the national government. implemented by UNDP “A peace dividend should be timely and tangible: can people see it, or feel it, or use it, or spend it? And can Peacekeeping operations (PKOs) and Special they connect receipt of the dividend to political milestones – to a ceasefire or peace treaty, to DDR, to newly Political Missions are financed from Member opened returns and resettlement, or to participation in new governance arrangements? If not, the presumed States’ assessed contributions, but that funding does not cover the whole universe of peacebuilding dividend may not be recognized at all; or it may be perceived as another ad hoc emergency or development 7 The process may be led by DPKO or DPA. project. Dividends help to meet people’s expectations for improved welfare and increased opportunity 8 See the 2008 DPKO Capstone Doctrine, titled United Nations tasks in their mandates. To succeed, therefore, they following a conflict; these expectations, left unfulfilled, can cause a conflict to flare up again, or contribute to Peacekeeping Operations: Principles and Guidelines, for the have to work in partnership with UN humanitarian a culture of violence and lawlessness, or discourage people’s participation in building lasting peace.” spectrum of activities currently undertaken by UN peacekeepers, and development actors, and with the World Bank, and others, to secure international peace regional organizations, civil society, bilateral and — Sarah Laughton and Nicholas Crawford, WFP 9 See for example UNSCR 1509 (2003) defining UNMIL’s mandate in Liberia other multilateral donors, and the private sector.

8 9 MINUSTAH’s Jordanian Battalion assists a school, Lycée de Damia, near Cité Soleil in Haiti. The battalion delivers milk, rice, flour and tea, all of which come from their own supplies of food, to 600 students. © UN Photo/Sophia Paris

10 The most frequent needs • Support to economic revitalization, including employment generation and livelihoods (in Youth programmes Peacebuilding priorities will be different in every agriculture and public works) particularly for post-conflict country and will vary over time. youth and demobilized former combatants, as “I would emphasize the need to focus on youth. They represent the biggest danger to peace In the first 24 months after a major cessation of hos- well as rehabilitation of basic infrastructure”11 consolidation, but also the biggest opportunity with their energy, natural optimism and innovative mindset. Public-works programmes employing young people not only help to rebuild tilities, “national and international efforts … should Some countries may need peacebuilding initiatives local infrastructure, but give young people a stake in their community. They can be combined focus on meeting the most urgent and important aimed at their particular conflict drivers, such as drugs peacebuilding objectives: establishing security, and crime, illegal exploitation of natural resources, or – as in Burundi – with afternoon training and discussion sessions animated by youth leaders building confidence in a political process, deliver- land reform. Conflict drivers can also include cross- in health and life-skills, gender sensitivity, reconciliation and non-violent communication. We ing initial peace dividends and expanding core na- cutting issues such as lack of respect for human add to this microcredits and advice for youth who want to start up small businesses and an tional capacity.”10 The most commonly requested rights, bad governance, lack of social integration and apprenticeship/vocational training scheme, using existing local enterprises. Gender balance is needs in this early period include: cohesion, lack of gender equality, and HIV/AIDS.12 ensured and the discussions are designed to cover women’s rights issues.” • Support to basic safety and security, — Barbara Piazza Georgi, UNFPA Burundi Although this is a potentially broad agenda, peace- including mine action, protection of civilians, disarmament, demobilization and reintegration, building in a specific country situation will not in- strengthening the rule of law and initiation of volve all these activities. Instead, it should be a se- rion is the effect of the activity. The top peacebuild- Getting the timing and sequencing15 right among security sector reform lective, prioritized and sequenced strategy, tailored ing priorities are those that will enhance peace priorities requires a delicate balance and difficult to the specific country circumstances. Indeed, pri- • Support to political processes, including elec- consolidation, or that will significantly reduce the trade-offs within the framework of a coherent oritization is essential to effective peacebuilding. toral processes, promoting inclusive dialogue risk of relapse into conflict and begin to resolve key strategy. Creating a safe environment or helping Priorities will vary from country to country, at differ- and reconciliation, and developing conflict- causes of the conflict. returnees to resettle, for example, might be obvious ent moments in time, and between different financ- early goals. But the “ripeness” of an action needs management capacity at national and subna- Priority-setting must reflect the unique conditions tional levels ing mechanisms (for example, the Peacebuilding to be considered; an activity pursued too early after 13 and needs of the country rather than be driven by Fund focuses on four priority areas). conflict can sometimes undermine a fragile peace. • Support to the provision of basic services, what international actors can or want to supply.14 For example, while the holding of elections is the such as water and sanitation, health and Setting peacebuilding Post-conflict transitional political authorities and most frequent outcome of a peace agreement, primary education, and support to the safe priorities and sustainable return and reintegration of newly elected governments frequently ask for assis- and electoral processes can contribute to more internally displaced persons and refugees It is difficult to decide on the priorities for peace- tance in assessing national needs and prioritizing legitimate political authority, they may also be a actions to address potential conflict drivers. The UN source of tension and renewed conflict if they are • Support to restoring core government functions, building activities when so much appears urgent and the international community often fail to do this, rushed, if quality is sacrificed to speed, and if the in particular basic public administration and and resources and capacity are limited. A key crite- allowing priorities to be dictated by mandates or by political environment is not conducive to a credible public finance, at the national and subnational 11 Report of the Secretary-General on peacebuilding in the availability of resources, rather than by the country’s and accepted result. One of the greatest strategic levels immediate aftermath of conflict, A/63/881-S/2009/304, 11 June 2009 – paragraph 17 most urgent needs. 10 Report of the Secretary-General on peacebuilding in the 12 AIDS contributes to instability by weakening state, economic, and 14 Report of the Secretary-General on peacebuilding in the 15 Sequencing should be interpreted as the need to consider immediate aftermath of conflict, A/63/881-S/2009/304, 11 June social capacities, and increasing the number of orphans. immediate aftermath of conflict, A/63/881-S/2009/304, 11 June the right timing of actions – some of which may be required 2009 – paragraph 15 13 See Peacebuilding Fund, page 37 2009 - paragraph 16 simultaneously, rather than sequentially.

12 13 challenges in the early post-conflict phase is to In some areas, effective prioritization will require sequencing ensure that, whilst moving quickly, decisions taken consultation. For example, what people most value in the short term do not prejudice medium- and as early peace dividends differs among countries. In “Locally led input on 16 Afghanistan, many report that access to education sequencing and timing long-term peacebuilding. prioritization in timor-leste for all children has had a powerful demonstrative actions is essential for suc- Prioritization is essential but difficult, given the effect. In Haiti’s Cité Soleil, people valued access to cess. Legitimate national “The challenge in the initial phase of a peacekeeping mission many competing issues and the different groups water and sanitation. In Liberia, national leaders felt involved, all with their own recent experience of that installing street lighting in the capital within the and local representatives is not to allow the need for stabilization to overrule longer term violent conflict. Hard choices must sometimes first 100 days after the peace deal inspired women’s of the host nation should capacity building (concentrating on the urgent at the cost of the be made between supporting implementation of confidence in the peace process. participate fully in shaping important). Arguably in Timor-Leste police reform was delayed provisions in a peace agreement and responding sequencing and timing of because in the initial post-crisis period the UN did not consult with to changing realities, especially given that peace actions. The UN Peace- the national institutions sufficiently. The plan that was put together processes are not linear processes. The need for conflict sensitivity building Commission and in 2006-7 is effectively being ignored by national authorities who In addition, given the fragmentation of the UN its Peacebuilding Support are now undertaking their own strategy.” system at the country level, effective prioritization Peacebuilding is about “how” things are done as Office have pioneered — Michael von Tangen Page, UNDP Timor-Leste/UNMIT of peacebuilding tasks within the UN family is, much as about “what” is done. Strengthening or this consultative path with rebuilding the foundations of a society that has inevitably, linked to the strength and coherence groundbreaking work in of the UN’s senior leadership team in country. been torn apart by conflict is not business as usual. Burundi and Sierra Leone. The leadership team, in particular the Special “Protracted conflict and violence leave behind not only physical destruction and institutional disarray, Knowing if or when to Representative of the Secretary-General (SRSG), setting priorities Deputy SRSG and Resident Co-ordinator/ but also a torn social fabric characterized by strengthen substate, su- mistrust, apprehension and enormous difficulties in Humanitarian Co-ordinator (RC/HC) (whether multi- prastate, or nonstate insti- “Some activities identified as priorities for even imagining the possibility of working together hatted as DSRSG or not) need to work together tutions; avoiding an often towards common goals. Sometimes the most development cooperation, or even peacebuilding to overcome this fragmentation and the breadth inappropriate replication scarce resource in a fractured society is not funding (e.g. administrative reforms, technical capacity of mandates to help national actors establish key of Western institutional building) may not be achievable in the immediate peacebuilding priorities.17 In this regard, having or institutional capacities: it is the sheer will to stay 19 models; and avoiding aftermath of conflict. For example, parliamentary institutionalized structures for collaboration among together…” recreating institutions that capacity building is a huge challenge, possibly UN actors at the field level is crucial.18 Peacebuilding activities and actors must take a caused conflict in the first an unrealistic aim, in a context of political mistrust conflict-sensitive20 approach. This requires en- 16 Report of the Secretary-General on peacebuilding in the place requires local input and insufficient legitimacy. At the very least such immediate aftermath of conflict, A/63/881-S/2009/304, 11 June gagement in a conflict analysis exercise in order to and deep consultation.” 2009 - paragraph 20 identify both the structural causes of conflict, and capacity building would have to be carefully 17 This is the primary goal of the element of the Secretary-General’s tailored to reflect current circumstances, perhaps Decision on Integration that requires an integrated strategic — Guiding Principles framework. 19 Bernardo Arévalo de León, Joint Programme Unit for UN / for Stabilization and even delayed until the political situation is more 18 For more information on the minimum requirements for Interpeace Initiatives, UNOPS stable. Otherwise we risk wasting money, achieving integrated field coordination at the field level, see the Integrated 20 Conflict sensitivity analysis aims to ensure that a project does not Reconstruction, United Mission Planning Process (IMPP) guidelines for the field. exacerbate existing tensions or create new ones. States Institute of Peace, technical delivery but without any lasting impact.” 2009 — Boubacar Kane, BINUB

14 15 (which may be different) the current triggers – or one of the causes of violent conflict, responds to among many national actors. Consider three exam- accelerators – of potential renewed conflict. an emerging driver of conflict, or builds confidence ples of the coordination challenge national actors Kenya Voluntary Scheme A thorough understanding of the causes of conflict among a constituency which is particularly reluctant may face at different stages of peacebuilding: “The PBF funded Neighborhood should allow peacebuilding programmes to be to engage in the peace process. • In the immediate aftermath of conflict, the Volunteer Scheme was set up as a designed and implemented in a conflict sensitive accommodations needed among political response to the post-election violence way – e.g. not hiring all programme staff from a Challenges leaders in power-sharing transitional political in Kenya in December 2007. The single ethnic group; providing skills training not of peacebuilding arrangements; widespread riots that erupted after only to ex-combatants, but also to other community Peacebuilding happens in an insecure, politically • After the first post-conflict elections, contesting the contested announcement of the members. While this is not always in practice fragile and therefore challenging environment. centres of power among the executive, legisla- election result displaced many and feasible, it should be the goal. Funding needs, the number of actors involved and tive and judicial branches of government, as well caused extensive loss of livelihood and Conflict sensitivity, while necessary, is not sufficient their (often competing) priorities and objectives, as among different ministries (intensified by the decreased access to basic services. for peacebuilding. The distinctive feature that will and people’s expectations of the benefits of peace- need to link national budgeting processes to It severely affected social cohesion identify an activity as peacebuilding is whether or building: all these present additional challenges. peacebuilding priorities); plus the need to involve within communities. The Neighborhood Volunteer Scheme, implemented by not it will significantly reduce the risk of relapse into The financial challenge other peacebuilding stakeholders like civil soci- conflict. ety and the private sector in the peacebuilding UNDP and UN Volunteers, taps the A funding gap may ensue when the humanitarian process; and inherent resources and capacity of local Take for example building a road. In a post- response to a crisis begins to draw down but fully people. This includes youth leaders, conflict situation it may be desirable to employ as fledged development assistance is not yet in place. • After further rounds of elections, (re)emergent lo- retired professionals and community many people as possible, in order to provide job It may also occur because donors are unwilling cal government structures which may mirror and opinion leaders whose actions helped opportunities in a war-damaged economy. But to fund critical but high-risk political and security compete for social services, health, infrastructure dissipate the tension caused by the post- building the road is not necessarily a peacebuilding activities. Yet this is the moment when a country and other resources deemed peacebuilding pri- election violence. Volunteers were trained activity unless (for example) unemployment had most needs timely, strategically targeted financial orities. in conflict resolution and peacebuilding, been defined as a conflict trigger, or the project support to undertake critical peacebuilding efforts. Complicating factors can include the roles played counselling and access to basic services. strategically employs local labour to generate jobs Identifying these needs, writing project proposals The scheme also targeted at risk youth by traditional leaders, a politicized civil society and/ for potential spoilers or for those not benefiting from within the context of a coherent peacebuilding to encourage them to participate in 21 or media, weak communications systems, and a the peace dividend, or promotes reconciliation strategy, and securing funding quickly are all community peace initiatives. The NVS lack of management and coordination capability in by encouraging parties from different sides of the major challenges for post-conflict countries. approach has proven to be practical and the civil service (which makes it difficult for national conflict to work together, or opens up an area where effective in supporting community-based The challenge of coordination governments to play their part in coordinating members of the war’s losing side had previously peacebuilding and reconciliation. It has Coordination among national actors: It has been international support for peacebuilding). been isolated without road links. led to controlling potential conflict flare- emphasized above that national ownership is es- Another example is the provision of essential social Coordination of the international response: Where ups, has promoted peaceful coexistence sential to successful, sustainable peacebuilding. services to vulnerable groups. Providing services to there are many international actors involved in between tenants and landlords, and has But national ownership requires coordination a given group may be a peacebuilding investment a country, it can be very difficult to agree on one successfully prepared the ground for the if it addresses a phenomenon of exclusion that was 21 See Section III: Resources for Peacebuilding common strategy for peacebuilding, and to agree return of IDPs.” —UN Peacebuilding Fund

16 Conflict sensitivity in Reconciliation in guatemala on division of roles and responsibilities. A strong UN leader conflict sensitivity in Timor-Leste supported by an experienced team is essential to good co- “In Guatemala we implemented a project to build reconcili- ordination, but it is not enough without the political will to tajikistan “I’d like to stress some elements which ation at the local level, in which the key was to support local work together too. Hence the call to Member States in the “Under the 1997 Peace Agreement initiatives focused on local needs, where it was necessary have proven to be key in Timor-Leste. Secretary-General’s recent report to align their support be- in Tajikistan, the senior leadership to count on the help and support of the parties that were One has been ensuring a harmonized hind common peacebuilding strategies which should be na- of the United Tajik Opposition in conflict. So, for instance, in the case of two communities approach between the Government tionally owned. entered into various power-sharing and the implementing agencies (or at that had been in dispute for several years, we invited them agreements, leaving mid-level least amongst UN agencies) when it to build a small bridge across the ravine that divided them. Internal UN coordination: Since UN staff in a country come commanders still in the field with comes to fees paid to daily workers, so Both communities believed that this was an opportunity for from different parts of the UN family, there are often structur- their fighters and without a tangible as to avoid competition for labour and/ them, and decided to work together. And after the bridge al barriers to working as a team, e.g. different planning and share of the peace dividend. Since or creating further community tension was built, the communities continued doing things together, budgeting cycles, different ways of getting funding, account- this group was viewed as potential spoilers, under a job creation and (e.g. if the UN pays a higher daily rate because they had now realized that they were able to do so.” ability to different governing bodies and different working housing programme, the mid-level practices such as the proportion of national staff employed. than the Government, or if one agency — Fernando Masaya Marotta, UNDP Guatemala commanders were the first to re- pays more than another one). These policy and institutional differences often lead to misun- ceive houses built by a combination derstandings. Much work is underway at headquarters level Another important aspect has been of their fighters and trained contrac- to resolve these differences or mitigate their effects, often tors. To ensure that a portion of that a labour-intensive approach can return and repatriation in bosnia actually yield good quality infrastruc- learning from innovative examples from UN teams in the field. the programme directly benefited and herzegoVina women, during the construction ture outcomes. This often requires ex- In order to maximize the individual and collective impact of phase war-widow heads of house- pensive investment in good quality en- “Working with displaced populations, often uprooted the UN’s response in activities required to consolidate peace, through violent conflict, it is plainly evident that reconcilia- holds were hired to prepare lunch gineering oversight on the part of the the Secretary-General has “reaffirm[ed] integration as the tion is a cornerstone to any sustainable return/repatriation. for the workers. After each group implementing entity/ project manager. guiding principle for all conflict and post-conflict situations Thus reconciliation, an activity considered to be inherently had built a modest house for their In the long run, however, it is often political, is often intrinsic to the work of UNHCR, directly and where the UN has a Country Team and a multi-dimensional commanders, the fighters realized cost-effective both in terms of transfer- indirectly, in post-conflict settings. Bosnia is one example I peacekeeping operation and/or special political mission, that they had the skills and confi- ring basic construction skills to local faced where Annex 7 of the 1995 Dayton Peace Agreement whether or not these presences are structurally integrated.”22 dence to build a house from the workers and ensuring quality infra- charged my agency, UNHCR, with the return and repatria- To achieve this purpose, there should be a strategic part- ground up. The commanders and structure that lasts beyond the lifespan tion of displaced populations, within and outside Bosnia and nership at the country level between the UN mission/office fighters became instant stakehold- of the typical cash-for-work project. In Herzegovina. Given there had been no decisive military vic- and the Country Team, including a shared vision of the UN’s ers in sustaining the peace, house construction boomed and cash the effort to move quickly and disburse tory by parties to the conflict and no fully satisfactory peace strategic objectives, closely aligned or integrated planning, as much cash as possible to conflict- settlement, implementing the return process was close to circulated amongst the former com- a set of agreed timelines and responsibilities for the delivery batant communities. The Secretary- affected communities, we often ‘throw impossible. This was particularly so in areas where minorities of tasks critical to consolidating peace, and a set of agreed had been ethnically purged from their homes. Minority return General credited the programme money down the drain.’” mechanisms for monitoring and evaluation.23 The Integration did, however, become more realistic through discussions or- as having played a major role in the — Geraldine A. Arias, UN Integrated Peace Process.” Mission in Timor-Leste ganized by us at UNHCR under the aegis of working groups 22 Decision of the Secretary-General’s Policy Committee, June 2008 on return and repatriation, held at national, regional and local 23 Ibid. — Basil Comnas, UNDP Iraq levels between all stakeholders.” — Sivanka Dhanapala, UNHCR 18 19 Vote Counting in Timor-Leste Elections in 2007 © UN Photo/Martine Perret

21 coordination on women’s • To provide essential information about the burundi: an integrated un approach security situation and what is being done to rights “Coordination and integration are hard work. Harmonizing work protect people; plans, strategies, styles, and work cultures continues to be a work- “Coordination between the international • To inform the population of social, economic in-progress. But at BINUB, we did not have a choice. Integration financial institutions and the UN on women’s was the model that was ‘drumbeat’ and institutionalized from the rights is an area of particular importance. and political initiatives underway to improve beginning. Economic liberalization efforts should be their lives, thus enabling them to participate; harmonized with support to governance and In the human rights and justice sector, UNDP, OHCHR, UNICEF, reform to avoid the risk of marginalizing • To publicize the dividends of peace and thus UNIFEM, and DPKO work together toward commonly agreed objectives and work plans. Hardware (cars, offices, computers) women if the new economy kicks in before build support for the peace process. they gain access to the market, land rights, and software (staff expertise, substantive knowledge) are shared. and property.” However, in the immediate aftermath of conflict, More importantly, once the broad outcomes and objectives — Winnie Byanyima, UNDP weakened public and private media may not are agreed upon, a budget is prepared in a collaborative and be able to provide accurate, independent and transparent manner. Everyone knows who is contributing X and who reliable information. Misinformation, absence of is responsible for Y. This allows for a more rational and informed information and changing facts are likely to be decision-making process that avoids duplication. Steering Group, the multi-stakeholder USG/ASG constant challenges. The international community For example, on justice and rule of law, UNDP leads with authoritative body on UN system-wide integration, may be asked to support direct delivery of programming expertise and financial support; DPKO and OHCHR has issued guidance to UN missions and agencies, information about peacebuilding activities to contribute staff; UNICEF and UNIFEM add their perspectives on funds and programmes in 18 countries where the target populations, and should work to rebuild the juvenile justice and gender issues respectively. On transitional concept of integration applies.24 capacity of national media in the process. justice, OHCHR leads with substantive expertise; UNDP joins with administrative and financial support (including a chief technical The communication challenge advisor). On human rights, OHCHR gives strategic direction with day-to-day support from DPKO and UNDP. In the end, it works Expectations of rapidly improved living conditions because BINUB’s leadership has made integration a priority and can be very high in the immediate post-conflict pe- set the tone. Colleagues share information and collaborate on riod. A strategic communications campaign can joint programming initiatives. That’s not necessarily innovation or help to narrow the gap between what is expected integration, but rather, good common business sense.” and what can realistically be provided. Goals of — Awa Diouf, Gustavo Gonzalez and Francis James, UN Integrated such a campaign may include: Mission in Burundi 24 For more detailed guidance, see the IMPP guidance package, covering UN strategic assessment, the role of the headquarters, and the role of the field. In particular, the guidelines for the field include minimum standards for integrated field coordination and possible models for various types of UN presences.

22 23 Community Radio in the Central African Republic “Informed and inclusive public debate on social and political issues is central to sustainable peace, and radio is often the only medium available to a wide Sierra Leone: spreading the audience in countries emerging from message conflict. In the Central African Republic, PBF funds a community radio project “In Sierra Leone between 2006 and 2008 the implemented by the Central African establishment of a UN country communications group Government and UNESCO, installing (UNCG), comprising communications specialists and community radios in 2 localities in the peacebuilding staff from over 18 UN agencies, funds rural East and West. It aims to train 32 and programmes, including the Integrated Office community members in producing and (UNIOSIL), proved useful. The group’s members knew broadcasting radio programmes on the country’s communications and media infrastructure social and political themes such as the well. To bridge the absence of professional local or return and reintegration of displaced national media capacities and the tribal language and refugees, updates on progress problems, traditional communications were used. with DDR and the Inclusive Political During the 2007 election campaign, groups such as Dialogue, the fight against HIV/AIDS ‘Artists for Peace’, comedians and traditional dancers, and the promotion of women’s rights. used plays, dance and song to convey the social, Both ownership of programme content, economic and political initiatives underway to improve and the management of the radio, people’s lives, even in remote villages. This was will lie within those communities and done based on scripts and peacebuilding or election will facilitate the active engagement documents provided to the artists and ‘translated’ of community members in the peace together with them into forms of artistic expression. building process and the creation of a These communications and public awareness culture of peace.” campaigns were complemented by the UNIOSIL radio station, at that time the only reliable news source United Nations Angola — UN Peacebuilding Fund covering most of the country in six local languages. All Verification Mission artists who participated in the campaign were invited (UNAVEM III) helps by the Executive Representative of the Secretary- support demining General to thank them for their work towards peace.” process in Angola - Christian Holger Strohmann, Chief Public Informa- tion Officer / Spokesperson, UNIOSIL, Sierra Leone © UN Photo/John (February 2006-April 2008) Charles Monua

24 25 International community (IMPP) toolkit, such as the Strategic Assessment26 27 planning processes and the Integrated Strategic Framework , but also Planning for Peacebuilding possibly a Post Conflict Needs Assessment (PCNA) In the immediate aftermath of conflict, once a that is tailored, recognizing the need for speed at peace agreement has been signed, people expect this stage28. immediate results. Indeed an early peace dividend, National ownership is a prerequisite for The resulting early strategy and action plan would visibly provided by national actors, is important to successful peacebuilding. But the UN identify the priorities for peace consolidation for the generate confidence in the peace process. is often expected to co-ordinate inter- first six to nine months after conflict, to be agreed national support to national efforts. This The Secretary-General’s recent report therefore with the national authorities and key international section describes how the UN goes calls for the senior UN representative on the actors. It would provide: about planning its peacebuilding inter- ground to convene relevant actors in the imme- ventions in a country where conflict has •a macro-level strategic approach for diate aftermath of conflict and develop an early just ended, including its leadership of international support; and strategy and action plan focusing on immediate the other main actors involved. national priorities, appropriate sequencing of pri- •a limited action plan, identifying a few ority initiatives, and clear delineation of roles and immediate priorities (with clear roles and responsibilities for activities that have to be imple- responsibilities) in order to create an early mented or supported by the UN and funded right peace dividend. from the start, including through an early Peace- This early strategy and action plan should be building Fund disbursement. Relevant World considered jointly by the various multilateral Bank activities should also be reflected25 in this sources of prepositioned pooled funding so that it plan, as well as activities planned by key donors can be funded quickly. and other multilateral institutions. The process of compiling the early strategy and To do this, the senior UN representative should action plan would in most cases also result in advice be able to draw on support from pre-established 26 See UN Guidelines on Strategic Assessment, May 2009 integrated headquarters teams (representing the 27 Guidance on elaborating and implementing the ISF is part of the key “pillars”, and usually including the World Bank). UN IMPP Guidelines on integrated planning for UN field presences, November 2009. S ect i o n II To develop the plan, they would select from the 28 The flexible and modular nature of the Post Conflict Needs available array of tools and mechanisms, including Assessment – Transitional Results Framework (PCNA-TRF) makes those in the Integrated Mission Planning Process it easy to apply it to different circumstances. A PCNA-TRF can be used to assess a whole country or just a region. It can be used after a civil war, inter-state conflict or a protracted political crisis. It can 25 Report of the Secretary-General on peacebuilding in the also be used when a country needs to stabilize its situation to focus immediate aftermath of conflict, A/63/881-S/2009/304, 11 June on development and needs to rally national and international actors 2009 - paragraph 44 behind a short term recovery strategy.

27 and recommendations to the Secretary-General/ been developed, the UN and international Constraints to effective 29 quick impact projects in Security Council on the type of UN presence community should be in a position to align planning timor-leste required, including any modifications of existing UN their support to this strategy. This has often “On Quick Impact Projects, the UN Mission strategy and capacity. been marked by an International Donors’ in Timor-Leste had some resources for small Conference. Ideally, national budgeting In practice, the planning process may be less clear During the six to nine months while the early projects at community level. In order to avoid processes should also begin to be aligned cut than the description above implies. In a fragile strategy and action plan is being implemented, the (much criticized) disconnect between to the common strategy at this stage, so that post-conflict environment, planning for recovery and the work that the UN agencies had been the more substantive, inclusive planning for post- national resources – however limited – are development has significant political dimensions; it doing, and initiatives funded by QIP, we conflict peacebuilding and recovery will be carried directed towards the same priorities. is not a purely technical process. It has to take ac- established a simple consultation mecha- out by national and international stakeholders. This count of existing capacities on the ground (expertise nism which enabled the QIPs Committee to should result in: • A Strategic Framework for the UN’s and people). ensure that all QIPs would be coherent with involvement with peace consolidation • An agreed common strategy, nationally the projects supported by the UN agencies.” – which will include the appropriate UN The weak institutional and technical capacity of owned, with clear priorities behind which — Geraldine Arias, UNMIT response to the peace consolidation post-conflict governments has to be taken into the UN and international community account in designing plans for such countries. This align their support. The exact form of this challenges in the national strategy, as well as means avoiding being locked into static plans that strategy varies considerably across the those peace consolidation tasks mandated cannot accommodate changes of circumstances board (recent examples have included the by the Security Council, where applicable. or personalities; having contingency plans for “Compacts” in Afghanistan and Iraq, the In principle, where there is a peacekeeping -ing humanitarian assistance in an impartial manner. when things go wrong (and accepting their cost 32 “Country Assistance Framework” in the operation or Special Political Mission and a This must be recognized, and discussed. implications). Effective communications have to Democratic Republic of the Congo, the UN Country Team (UNCT) this framework National Priorities Programme in Timor- will be an Integrated Strategic Framework be built into planning, so that expectations are International and Leste, and in several countries the (interim) (ISF); where there is only a UNCT it will be managed, people’s reactions are heard and direction regional actors involved Poverty Reduction Strategy Paper). They a UN Development Assistance Framework can be quickly changed if things go wrong. Senior in peacebuilding have in common the fact of being based on (UNDAF).30 The Peacebuilding Commission leadership must be fully involved in the planning a thorough consultative needs assessment, has developed Integrated Peacebuilding process. There is typically a wide range of actors involved usually the PCNA, including a sound conflict Strategies for this purpose for the countries in peacebuilding, from national governments to the UN planning capacity in post-conflict countries analysis. They are developed on an inclusive on its agenda, although at a later stage rather UN and multilateral organizations, the World Bank is often limited, or not well coordinated between basis, involving all relevant stakeholders, than immediately after the end of conflict. and IFIs, regional neighbours and organizations, missions and Country Teams. UN planning is often including civil society. They also usually bilateral donors, NGOs, the private sector, etc. insufficiently results-oriented.31 have as a central objective the resumption of With such a variety of actors, and given the need “normal” relations between the country and 30 Some UN field presences may consider whether an existing In certain contexts, the political nature of peacebuild- to ensure that their efforts are aligned in support in-country tool, such as an UNDAF or an integrated peacebuilding of one common peacebuilding strategy, the need the International Financial Institutions (IFIs). strategy, could be adapted to fulfil the minimum standards for ing may pose challenges to the objective of deliver- By the time an agreed common strategy has ISFs. However, complex UN architectures with multiple mandated for leadership and coordination is clearly very great. presences and multi-dimensional operations (e.g. that include police 31 The Integration Steering Group is addressing these issues, and 29 e.g. UN peacekeeping operation, Special Political Mission, or and/or military components) would require an ISF based on the Guidelines on Integrated Mission Planning Processes are intended 32 Guidance on how to address the need to protect “humanitarian strengthened UN Country Team. IMPP guidelines. to improve the quality of planning. space” in the context of UN integration is under development.

28 29 In most cases, the international community looks stability. During conflict women may have taken prevent and punish sexual violence, calls • SCR 1888 strengthens tools for implement- to the UN to lead the international response and on community leadership roles or non-traditional for guidelines to make peacekeeping ing 1820 through assigning leadership, coordinate the actors involved. Depending on the employment. Once peace is established, these roles responses to sexual violence more building judicial response expertise, and shape of the UN’s presence in a country, leadership should be recognized and women fully involved in gov- effective, seeks proposals to minimize the calling for improved monitoring and report- will be vested either in a Resident Coordinator or ernance and economic recovery and development. susceptibility of women and girls, and aims ing on conflict-related sexual violence.38 an SRSG. That person is expected to lead the UN to improve data collection.37 The Security Council has paid special attention • SCR 1889 addresses women’s exclusion in implementing a shared strategic vision, which to this in its resolutions 1325, 1820, 1888 and requires an integrated assessment and planning from peacebuilding planning and institu- 1889.35 These address the impact of war on 37 OP 11 of SCR 1820 “stresses the important role the Peacebuild- 33 process for all UN activities. This in turn requires women36 and acknowledge the importance of ing Commission can play by including in its advice and recommen- 38 SCR 1888 reaffirms the role of the Peacebuilding Commission dations for post-conflict peacebuilding strategies, where appropri- (PBC) in promoting inclusive gender-based approaches to reducing not just high quality leaders, but also expert women’s contributions to sustainable peace technical support teams. ate, ways to address sexual violence committed during and in the instability in post-conflict situations and urges the PBC to encourage and their full and equal participation in decision- aftermath of armed conflict, and in ensuring consultation and effec- all parties in the countries on its agenda to incorporate and imple- Given the regional dimensions of many contempo- making processes. tive representation of women’s civil society in its country-specific ment measures to reduce sexual violence in post-conflict strategies configurations, as part of its wider approach to gender issues” (OP 18). rary conflicts (including refugee movements, cross- •SCR 1325 is the first SCR to link women to border ethnic networks, flows of natural resources the peace and security agenda. It calls for in- and arms, financial transactions and pandemics), creased participation of women at all levels regional organizations are increasingly at the fore- of decision-making; to mainstream a gender front of peace processes, including in mediating and perspective in post-conflict processes; to women’s participation in guaranteeing peace agreements, and monitoring ensure a gender perspective in UN program- peacebuilding 34 their implementation. Regional actors may some- ming, Security Council missions and UN times be better equipped than global actors to adapt “The litmus test for women’s effective participation peace operations; and to protect the needs often is their ability to create alliances in public life with and apply universal principles to a local context. of women and girls in conflict. men, the safety of women’s assets and livelihoods, women in afghanistan and the degree of gender mainstreaming in needs • SCR 1820 is the first SCR to recognize “As violent conflict continues to escalate in Women’s participation in assessment and strategy documents.” conflict-related sexual violence as a matter Afghanistan, the question of how to reach peacebuilding of international peace and security. It — Anne Marie Goetz, UNIFEM and effectively work with Afghan women is Women’s participation in peace negotiations and affirms that sexual violence affects not only especially pertinent for UN agencies with de- post-conflict peace consolidation – both as agents the health and safety of women but the velopment mandates. As access to women of peace, and in order to address their concerns economic and social stability of nations, in Afghanistan is, even in times of peace, as victims of conflict – is increasingly recognized demands that parties to armed conflicts mediated by men, the participation of women in peacebuilding and negotiation processes becomes a as a vital contribution to long term recovery and challenge of extremely complex proportions. Enforcement of 1325 requires accountability to a constitu- 35 S/RES/1325(2000), S/RES/1820 (2008), S/RES/1888 (2009), ency that in Afghanistan is missing and whose absence is intentionally sought by a vast majority of 33 As mentioned above, tools for integrated planning include the and S/RES/1889 (2009) on Women, Peace and Security. See also the population, many of whom may not even identify with the Taliban. Except in moments of political IMPP toolkit (for countries where there is a PKO or Special Political UN Action Against Sexual Violence in Armed Conflict http://www. expediency, the question of “Where are the women?” is relegated to an afterthought. Meanwhile, to ask Mission), the UNDAF guidelines and the transitional planning toolkit. stoprapenow.org/ if women are at the peace table seems obscene when their presence in the public market alone puts 34 Report of the Secretary-General on peacebuilding in the 36 See also UNSCR 1612 (2005) on child soldiers, including girls; immediate aftermath of conflict, A/63/881-S/2009/304, 11 June and the work of the Secretary-General’s Special Representative for them at risk of summary execution.” 2009 - paragraph 13 children in armed conflict. —Theresa de Langis and Wenny Kusuma, UNIFEM Afghanistan

30 31 Congolese women, representing local civil society, rejoiced in the conference hall next door, after the signature of a peace agreement. © UN Photo/Marie Frechon

33 gender issues in sierra leone “Learning from their engagement with the Truth and Reconciliation Commission process, Sierra Leonean Women’s Rights tions and consequent lack of adequate fund- law to protect the rights of women, and to ensure NGOs became more vocal in challenging gender-based violence. While their recommendations on reparations have not ing for their needs, inadequate safety and appropriate provision is made for groups left par- been implemented, three Gender Laws were passed in 2007 protecting women’s rights: the Devolution of Estates Act, the services. It strengthens tools for the imple- ticularly vulnerable in the wake of conflict, such as Registration of Customary Marriages and Divorces Act, and the Domestic Violence Prevention Act. These laws address mentation of SCR 1325 including by calling widows and women heading households. the role and rights of women in the family domain, including enhancing rights and security for women in customary mar- for global indicators to monitor 1325, and for Three principal strategies have been identified for riage; setting the marriage age at 18; and in the case of intestacy, providing for women to inherit a specific percentage of the Secretary-General to report within a year mainstreaming a gender equality perspective into the deceased husband’s estate. The challenge of implementation remains. As well as the age old challenge of silence, ad- on measures to increase women’s participa- peacebuilding: ditional challenges to addressing SGBV in Sierra Leone include weak judicial institutions, lack of confidence in the system tion in post-conflict peacebuilding. It also • Addressing the particular impact of conflict by aggrieved parties, and a lack of awareness that SGBV is a crime and violates the rights of women.” emphasizes the need to develop effective on women’s recovery – especially sexual — Nana Busia, UNDP Sierra Leone financial and institutional arrangements to and gender based violence; guarantee women’s full and equal participa- sexual violence in burundi tion in the peacebuilding process.39 • Supporting women’s full and equal partici- pation in and ownership of peacebuilding women’s peacebuilding “In Burundi, sexual and gender-based violence (SGBV) has and decision-making processes; and been used as a weapon of war to intimidate, humiliate, and In post-conflict settings following a peace agree- priorities destroy families and communities. Any peaceful resolution ment, the proliferation of small arms and light weap- • Ensuring that national priorities for recovery “Women’s own priorities for post-conflict re- of conflict in theG reat Lakes region will have to incorporate a ons, coupled with the proximity of demobilized – political, social and economic – redress in- covery are usually very clear: basic security, SGBV strategy to address this horrific problem, and to repair soldiers, may increase the incidence of sexual and equalities of the past and positively influence repatriation for displaced people, recovery the trauma that individuals, families and communities feel gender-based violence. Ending impunity for gen- gender relations and contribute to gender of property and livelihoods, and support when their sisters, wives, mothers and daughters are assaulted der-based violence is a critical measure of peace equality.40 to women’s economic activity. In addition, in such manner and numbers. consolidation. women prioritize family and reproductive A renewed effort to combat impunity for SGBV focuses on Integrating women into peacebuilding processes health care, particularly in contexts where strengthening the capacities of police, prosecutors and judges offers new degrees of democratic inclusiveness, there have been elevated levels of sexual to do their job: to prioritize cases of SGBV, to publicly prose- more durable economic growth, and human and violence. More research is needed on the cute offenders, and to punish and jail them. To date, offenders costs of failing to respond to women’s secu- have had what amounts to a free pass due to a dysfunctional social capital recovery. Transition should provide rity needs in contexts where sexual violence prosecution and court system. No more. In addition, BINUB a window of opportunity for promoting gender- remains rampant after conflict, such as aims to support SGBV survivors by providing community- sensitive policies, including through affirmative ac- Liberia and DRC. Anecdotal accounts sug- based ‘one-stop shop care centres,’ modelled on South tion in social and economic spheres. For example, gest that this has a massive negative impact Africa’s innovative Thuthuzela Care Centres, where survivor- it is important to reform property and inheritance on women’s economic activity, above all by friendly social, medical and legal assistance is provided. Much restricting their mobility in accessing recov- more remains to be done. A regional approach, incorporat- 39 SCR 1889 encourages the PBC and the Peacebuilding Sup- ering markets and engaging in commercial ing experiences and best practices of our Congolese and port Office (PBSO) to ensure systematic attention to and mobiliza- activity. It also can prevent women from Rwandan colleagues, needs to be explored. Finally, legislative tion of resources for advancing gender equality, and to encour- age the full participation of women in this process (OP 14); and engaging in local or national politics, which reform must urgently address the inherent unequal status requests the Secretary-General to submit a report to the Secu- is a net loss to prospects for inclusive and 40 Independent Expert Paper: Women and Peacebuilding. Commis- of women in Burundi, where women have no right to inherit rity Council within 12 months on addressing women’s participa- sioned by UNIFEM and PBSO as a background paper to the Work- democratic governance.” property, leaving many in abusive relationships.” tion and inclusion in peacebuilding and planning in the aftermath ing Group on Lessons Learned Session. Jennifer F. Klot, Social Sci- — Anne Marie Goetz, UNIFEM — Francis James, BINUB of conflict, taking into consideration the views of the PBC (OP19). ence Research Council, 29 January 2007

34 35 between conflict and recovery in countries for which no funding mechanism is yet available. It Resources for Peacebuilding The UN’s peacebuilding targets the immediate needs of countries emerging architecture from conflict or at risk of relapsing into conflict. The Peacebuilding Commission, Peacebuilding The UN has effectively been engaged Support Office and Peacebuilding Fund are part The UN Peacebuilding in peacebuilding since its foundation. of a broader UN peacebuilding architecture. They Fund Almost all UN departments, funds, were established in 2005-6 by the Security Coun- programmes and agencies have a cil and the General Assembly to provide sustained The UN Peacebuilding Fund was launched in role delivering peacebuilding services attention towards, and to mobilize resources for, 2006 to provide fast, flexible and catalytic funding to countries in need. This section countries undertaking peacebuilding, and to work to countries at risk of relapsing into conflict. It has describes three recent additions to the with other UN bodies to support coherence and ef- four priorities: UN’s peacebuilding architecture and fectiveness in post-conflict peacebuilding. • Respond to imminent threats to the peace the principal sources of funding for peacebuilding. The Peacebuilding Commission (PBC) is the process and support peace agreements intergovernmental advisory body that supports and political dialogue; peace efforts in countries emerging from • Build or strengthen national capacities conflict. It brings together all the relevant actors, to promote coexistence and peaceful including international donors, the international resolution of conflict; financial institutions, national governments, and troop contributing countries to promote • Initiate economic revitalization and generate greater coherence; it marshalls resources for peace dividends for the population at large; peacebuilding; and works with national actors and to propose integrated strategies for post-conflict • Re-establish essential administrative services. peacebuilding and recovery. It reports annually to the General Assembly. By the end of April 2010, the PBF had supported 137 projects in 16 countries that can be grouped The Peacebuilding Support Office (PBSO) was es- by results in 13 outcome areas. Support to the tablished to assist and support the Peacebuilding implementation of peace agreements and build- S ect i o n III Commission, administer the Peacebuilding Fund, ing capacity to resolve conflict peacefully are the and support the Secretary-General’s efforts to co- largest PBF priority areas, receiving approximately ordinate the UN system in its peacebuilding efforts. 45% and 27% respectively of PBF funds. The two The Peacebuilding Fund (PBF) is the UN’s global main PBF results are socio-economic reintegra- multi-donor trust fund that provides a critical bridge tion of former combatants and national dialogue

37 PBF approved project budgets by priority areas and outcomes as of 30 June 2010 flexible, fast and provide those working in the field • A clear management framework that with a funding tool for single or multiple projects. states who is responsible for achieving PBF Priority Areas Proposals that meet the criteria receive funding peacebuilding results at the project, national within days. and global levels; Implementation of Peace Agreements Security Sector Rule of Law DDR Dialogue The Peacebuilding and Recovery Facility (PRF) is a • An opportunity for NGOs to receive funding country programme driven by national stakeholders. through partnerships with a recipient UN

Co-existence & National Good Women Upon receipt of a Priority Plan identifying key organization; Peaceful Resolution of Reconciliation Governance peacebuilding needs, the PBSO will review and Conflict • Results-based reporting to Member States Human Rights establish a country allocation and delegate project and donors; and Early Economic approval authority to the Joint Steering Committee Recovery & Peace Youth Employment IDPs Dividends (JSC). Once formed, the JSC can focus attention on • Documentation of lessons learned to enable Private Sector the long-term peacebuilding agenda. the UN and its partners to improve future Administrative Services and human/ Infrastructure After extensive consultations with donors, Member performance. technical capacities Capacity Building States and partners, the revised terms of reference The revised PBF terms of reference and guidelines 0 10 20 30 40 50 60 70 80 of the PBF were approved by the UN General can be found at http://www.unpbf.org Assembly in June 2009. Key features of the new PBF Outcome Areas in US$ million arrangements include: • Expanded PBF priority areas now include Other sources of funding and reconciliation. The PBF often funds the initial sector. Contributions totaling US$342 million initiatives that deliver immediate peace for peacebuilding stages of reintegration projects, when the political have been received as of June 2010. Solid results- dividends to the population at large; The principal sources of pre-positioned pooled risk of failure may deter the international community based planning, monitoring and reporting are • Three funding window structure is replaced funding, apart from the PBF, include: from coming on board with large donations. With key requirements of the PBF, not least in order with two flexible funding facilities; and the funding of national dialogue projects, identified to facilitate documentation of best practices and • The Central Emergency Response Fund • Synergy between the Peacebuilding Com- by the 2009 five donor review as the most under- South-South exchange. A breakdown of approved (CERF): a stand-by fund established by mission and the PBF is improved through funded peacebuilding area, the PBF is covering projects and priority plans identified the sectors in the UN to enable more timely and reliable greater alignment of planning documents. a real gap. As a result of the revision of the terms which outcomes were achieved, as summarized in humanitarian assistance to victims of natural of reference of the Fund and the follow-up to the the above diagram. Subsequently, the PBF guidelines for dispensing disasters and armed conflicts. It provides Secretary-General’s 2009 report on peacebuilding, The PBF delivers fast and flexible funding through the next generation of UN funding for peacebuilding seed funds to jump-start operations and contributions to projects aimed at providing early two funding facilities: were revised in consultation with implementing fund life-saving programmes not yet covered peace dividends increased in early 2010. partners in the field. Main improvements include: by other donors. The Immediate Response Facility (IRF) helps to The PBF relies upon voluntary contributions from jumpstart peace initiatives that can be scaled-up • Clearer application criteria, making applica- • The World Bank State and Peacebuilding Member States, organizations and the private into longer-term programmes. It is designed to be tion and approval time faster; Fund (SPF): The SPF has two main

38 39 Port au Prince, Haiti -- Brazilian peacekeepers take part in a tug of war during a civic day in Cité Soleil. The Brazilian peacekeepers teamed up with Haitian NGO Athletique D’Haiti to offer the local children a day of activities and services, which included haircuts and dental care. © UN Photo/Logan Abassi

41 objectives: 1. Support measures to improve by the appropriate country-level decision- • UN Trust Fund in Support of Ending greater relevance and usefulness in governance and institutional performance making body/authority. These funds aim to Violence against Women: established by peacebuilding research. in countries emerging from, in, or at risk of support nationally defined priorities and to General Assembly resolution 50/166 in sliding into, crisis or arrears; and 2. Support build national capacities. 1996, the Trust Fund is managed by UNIFEM PBSO should also be able to direct you to the right the reconstruction and development of to support local, national, and regional place for advice on: • The European Commission Instrument for countries prone to, in, or emerging from efforts to combat violence against women. • Assessment, planning and monitoring tools Stability. The Instrument for Stability is the conflict. All Bank member countries and EC’s main thematic tool which provides for • Conflict analysis and planning non-members (on a case-by-case basis) development cooperation measures, as Support from the are eligible for the SPF. Default World Bank • Thematic areas of peacebuilding (e.g. DDR, well as financial, economic and technical Peacebuilding Support practice is to flow funds through the recipient security sector reform, rule of law, etc.) government budget system. However, in cooperation measures with partner countries Office (PBSO) • Peacebuilding resources (civilian capacity, cases where government implementation in contexts of crisis and emerging crisis on UN volunteers, etc.) PBSO does not directly implement peacebuilding and fiduciary capacity are very low, the Bank the one hand and of stable conditions for initiatives, but it supports those who do. may enter into agreements with agencies of cooperation on the other hand. the UN, regional organizations, NGOs, and • The United Nations Trust Fund for Human • Training: PBSO can advise on what training other public or private institutions acceptable Security: Launched in March 1999 by the courses on peacebuilding are available to the Bank for the implementation of Government of Japan and the United Nations • Knowledge management: PBSO runs the projects on behalf of the recipient countries. Secretariat, the UNTFHS is managed by web-based Peacebuilding Community of • The UNDP Thematic Trust Fund for Crisis the Advisory Board on Human Security/ Practice, uniting peacebuilding practitioners Prevention and Recovery. This fast, flexible OCHA. The UNTFHS is available to all UN across the UN electronically. It provides real- funding mechanism allows UNDP to organizations, and when appropriate, in time responses to questions from the field, respond effectively to crisis prevention and partnership with non-UN entities, to enhance online access to peacebuilding information, recovery needs. It is designed for quick the operational impact of the human security monthly newsletters and an annual action following a natural disaster or violent concept with a particular emphasis on workshop. The Community of Practice is conflict, or when a unique opportunity arises vulnerable populations, such as women and currently open to UN staff members only. to reduce disaster risk or prevent conflict. children, in the least developed countries UN staff members may request subscription and countries in conflict. by sending a message indicating their • UN Multi-donor Trust Funds: A number UN email address, position, department/ of multi-donor trust funds (MDTFs) • DPA Trust Funds: The DPA manages two agency, and duty station to pb-cop@groups. administered by UNDP have been funds related to peacebuilding, the Trust un-network.org. established recently in post-conflict settings. Fund for Preventive Action and the Trust Funds from multiple donors are pooled and Fund in Support of the Special Missions • Research: PBSO will not normally sponsor disbursed by an administrator to a number and Other Activities Related to Preventive research, but it brings together institutions, of recipients based on decisions made Diplomacy and Peacemaking. policy makers and practitioners to promote

42 43 The term peacebuilding first emerged through the As the concept of peacebuilding gained momen- work of Johan Galtung over 30 years ago. In his tum, different parts of the UN revised or expanded The Evolution of Peacebuilding essay “Three Approaches to Peace: Peacekeeping, their operations to respond to the changing nature Peacemaking, and Peacebuilding,” Galtung called of contemporary conflicts. The tragic consequenc- for the creation of peacebuilding structures to es of failed peace agreements in the 1990s (e.g. promote sustainable peace by addressing the Angola), renewed conflicts (e.g. Haiti and Rwanda) “root causes” of violent conflict and supporting and protracted wars (e.g. Afghanistan, Sudan, DRC) indigenous capacities for peace management and highlighted the need for the UN to develop new ap- conflict resolution.41 The concept gained currency proaches to the challenges of building sustainable in peace studies and among practitioners of peace in complex emergencies and intra-state con- conflict transformation in the following decades, flicts. The emergence of multidimensional peace but its widespread acceptance had to await the end operations, the creation of new conflict units (e.g. of the Cold War. 42� UNDP/BCPR) and the design of new service lines (e.g. SSR, DDR and the rule of law) demonstrated At the UN, “peacebuilding” came to the forefront the converging interest among humanitarian, devel- of intergovernmental debates with Secretary- opment, political, security and human rights actors General Boutros Boutros-Ghali’s landmark report to help prevent and resolve conflict and to build An Agenda for Peace (1992). This identified post- sustainable peace. Relapse into violence in Haiti conflict peacebuilding as one of a series of tools at and Timor-Leste following UN interventions there the UN’s disposal following preventive diplomacy, reinforced the need for carefully-planned, well-coor- peacemaking and peacekeeping. Encompassing a dinated exit strategies to prevent relapses and to lay wide range of activities, peacebuilding was defined the foundations for sustainable peace. as post-conflict “action to identify and support

A NN EX I structures which tend to strengthen and solidify peace in order to avoid a relapse into conflict.” Since 1992, numerous documents have helped refine the UN’s understanding of peacebuilding (see table below).

41 Johan Galtung, “Three Approaches to Peace: Peacekeeping, Peacemaking, and Peacebuilding,” in Peace, War and Defense: Essays in Peace Research, Vol II (Copenhagen: Christian Ejlers, 1976), 297-298. 42 For a good summary of the evolution of peacebuilding, see: www.peacebuildinginitiative.org

45 Key UN Peacebuilding Definitions and Related Concepts An Agenda for Peace: Secretary- required to halt conflicts and preserve peace once 1992 An Agenda for Peace Introduced “peacebuilding” as a UN tool. General Boutros Boutros-Ghali, it is attained. If successful, they strengthen the 1992 (paras. 20, 21) opportunity for post-conflict peace-building, which 1995 Supplement to An Agenda for Peace Emphasized the need for the institutionalization of peace can prevent the recurrence of violence among “The terms preventive diplomacy, peacemaking 1994 An Agenda for Development Contributed to linking the security, development, democ- nations and peoples…” and peacekeeping are integrally related and as 1994 UNDP Human Development Report ratization and human rights agendas used in this report are defined as follows: Supplement to An Agenda for 1995 An Agenda for Democratization Peace, Secretary-General Boutros • Preventive diplomacy is action to prevent Boutros-Ghali, 1995 (paras. 47, 48) 1996 Inventory of Peacebuilding Activities Highlighted the building blocs of post-conflict peacebuilding disputes from arising between parties, to prevent existing disputes from escalating “The validity of the concept of post-conflict peace- 2000 Brahimi Report Defined peacebuilding as “activities undertaken on the far side of conflict to reassemble the foundations of peace into conflicts and to limit the spread of the building has received wide recognition. The and provide the tools for building on those foundations latter when they occur. measures it can use - and they are many - can also something that is more than just the absence of war.” support preventive diplomacy. Demilitarization, the • Peacemaking is action to bring hostile control of small arms, institutional reform, improved 2001 No Exit without Strategy Underlined three key peacebuilding objectives. parties to agreement, essentially through police and judicial systems, the monitoring of such peaceful means as those foreseen 2003 Review of Technical Cooperation in the Sought greater coordination in peacebuilding across the human rights, electoral reform and social and United Nations UN system in Chapter VI of the Charter of the United economic development can be as valuable in Nations. 2004 A More Secure World Called for creating the Peacebuilding Architecture preventing conflict as in healing the wounds after 2005 In Larger Freedom Elaborated and formalized Peacebuilding Architecture • Peacekeeping is the deployment of a United conflict has occurred. Nations presence in the field, hitherto with World Summit Outcome concept consisting of the Peacebuilding Commission, The implementation of post-conflict peace- Peacebuilding Fund and Peacebuilding Support Office. the consent of all the parties concerned, building can, however, be complicated. It requires normally involving United Nations military 2006 UN Peacebuilding Capacity Provided a snapshot of the wide range of peacebuilding integrated action and delicate dealings between and/or police personnel and frequently Inventory activities undertaken by 31 UN agencies the United Nations and the parties to the conflict in civilians as well. Peacekeeping is a respect of which peace-building activities are to be 2006 Policy Committee decision, In determining strategies and operational plans, peace- technique that expands the possibilities September 2006 building entails efforts to support … country’s transition undertaken.” from conflict to sustainable peace, with a stable political for both the prevention of conflict and the order and basic institutions in place, the risk of relapse making of peace. Report of the Secretary-General: into conflict substantially reduced, and the country able to The causeS of conflict and the The present report in addition will address the move to more normal development processes. promotion of durable peace and critically related concept of post-conflict peace- sustainable development in Africa, 2007 Policy Committee decision, May 2007 Provided a “conceptual basis” for peacebuilding building - action to identify and support structures A/52/871 – S/1998/318, 13 April 1998 (para.63) 2008 Capstone Doctrine Situated peacebuilding within the UN’s comprehensive which will tend to strengthen and solidify peace approach to addressing violent conflict in order to avoid a relapse into conflict. Preventive “By post-conflict peace-building, I mean actions 2009 Report of the Secretary-General Set out basic principles and features which have proven diplomacy seeks to resolve disputes before violence undertaken at the end of a conflict to consolidate on Peacebuilding in the Immediate relevant across different contexts. Focussed on peace- breaks out; peacemaking and peacekeeping are peace and prevent a recurrence of armed confron- Aftermath of Conflict building in the first 12-24 months after conflict.

47 tation. Experience has shown that the consolidation development (including electoral assistance and from war lapse back into violence within five years. Conceptual basis for peacebuilding of peace in the aftermath of conflict requires more support for free media); and promoting conflict These two points drive home the message: if we for the UN system adopted by than purely diplomatic and military action, and resolution and reconciliation techniques.” are going to prevent conflict we must ensure that the Secretary-General’s Policy that an integrated peace-building effort is needed peace agreements are implemented in a sustained Committee in May 2007 to address the various factors that have caused UN Security Council Presidential and sustainable manner. Yet at this very point there “Peacebuilding involves a range of measures or are threatening a conflict. Peace-building may Statement, S/PRST/2001/5, February 20, 2001 is a gaping hole in the United Nations institutional targeted to reduce the risk of lapsing or relapsing involve the creation or strengthening of national machinery: no part of the United Nations system “The Security Council recognizes that into conflict by strengthening national capacities institutions, monitoring elections, promoting hu- effectively addresses the challenge of helping peacebuilding is aimed at preventing the outbreak, at all levels for conflict management, and to man rights, providing for reintegration and reha- countries with the transition from war to lasting the recurrence or the continuation of armed lay the foundations for sustainable peace and bilitation programmes, and creating conditions peace. I therefore propose to Member States that conflict and therefore encompasses a wide range development. Peacebuilding strategies must be for resumed development. Peace-building does they create an intergovernmental Peacebuilding of political, development, humanitarian and human coherent and tailored to the specific needs of the not replace ongoing humanitarian and develop- Commission, as well as a Peacebuilding Support rights programmes and mechanisms. This requires country concerned, based on national ownership, ment activities in countries emerging from crisis. Office within the United Nations Secretariat, to short and long-term actions tailored to address and should comprise a carefully prioritized, It aims rather to build on, add to, or reorient such achieve this end.” the particular needs of societies sliding into sequenced, and therefore relatively narrow set of activities in ways designed to reduce the risk of a conflict or emerging from it. These actions should Inventory: United Nations Capacity activities aimed at achieving the above objectives.” resumption of conflict and contribute to creating focus on fostering sustainable development, the in Peacebuilding, Executive Office the conditions most conducive to reconciliation, re- eradication of poverty and inequalities, transparent Related terms and concepts of the Secretary-General, construction and recovery.” and accountable governance, the promotion of September 2006: As peacebuilding is about preventing relapse into democracy, respect for human rights and the rule conflict, conflict prevention and peacebuilding Brahimi Report (para. 13) of law and the promotion of a culture of peace and Adopted a broad definition of peacebuilding as can overlap. “The Security Council recognizes that “Peace-building is a term of more recent origin non-violence.” “all activities necessary to assist a conflict-torn early warning, preventive diplomacy, preventive that, as used in the present report, defines activities society to reach a point where violence is no longer deployment, preventive disarmament and post- Report of the Secretary-General, undertaken on the far side of conflict to reassemble a ready recourse, the risks of relapse into conflict conflict peacebuilding are interdependent and “In larger freedom: towards the foundations of peace and provide the tools are reduced, and the country can move onto a complementary components of a comprehensive development, security and human for building on those foundations something more development-oriented footing. Important conflict prevention strategy” (S/PRST/1999/34, 30 rights for all,” that is more than just the absence of war. Thus, parts of such an overall peacebuilding strategy November 1999). A/59/2005, 21 March 2005 (para.114) peace-building includes but is not limited to include the provision of transitional security through reintegrating former combatants into civilian “Our record of success in mediating and peacekeeping and other efforts to maintain public society, strengthening the rule of law (for example, implementing peace agreements is sadly blemished order, support to a political process, life-saving through training and restructuring of local police, by some devastating failures. Indeed, several of humanitarian assistance, efforts to create a and judicial and penal reform); improving respect the most violent and tragic episodes of the 1990s framework for economic recovery, and institutional for human rights through the monitoring, education occurred after the negotiation of peace agreements development.” and investigation of past and existing abuses; — for instance in Angola in 1993 and in Rwanda providing technical assistance for democratic in 1994. Roughly half of all countries that emerge

48 49 ASG Assistant Secretary-General SGBV Sexual and Gender-Based Violence BINUB United Nations Integrated Office SPM Special Political Mission in Burundi List of Acronyms SRSG Special Representative of the Secretary- DDR Disarmament, Demobilization and General Reintegration SSR Security Sector Reform DPA Department of Political Affairs UNCT United Nations Country Team DPKO Department of Peacekeeping Operations UNDAF United Nations Development Assistance Framework DRC Democratic Republic of the Congo UNDP United Nations Development DSRSG Deputy Special Representative of the Programme Secretary-General UNDP/ United Nations Development Pro- HC Humanitarian Coordinator BCPR gramme Bureau for Crisis Prevention IDP Internally Displaced Person and Recovery IFI International Financial Institution UNESCO United Nations Educational, Scientific and Cultural Organization IMPP Integrated Mission Planning Process UNFPA United Nations Population Fund ISF Integrated Strategic Framework UNHCR Office of the United Nations High Commissioner for Refugees JSC Joint Steering Committee UNICEF United Nations Children’s Fund MINUSTAH United Nations Stabilization Mission in Haiti UNIFEM United Nations Development Fund for Women NGO Non-Governmental Organization

A NN EX II UNIOSIL United Nations Integrated Office in OHCHR Office of the United Nations High Sierra Leone Commissioner for Human Rights UNMIL United Nations Mission in Liberia PBC Peacebuilding Commission UNMIT United Nations Integrated Mission in PBF Peacebuilding Fund Timor-Leste PBSO Peacebuilding Support Office UNOPS United Nations Office for Project Services PCNA Post-Conflict Needs Assessment UNSCR United Nations Security Council Resolution PKO Peacekeeping Operation USG Under-Secretary-General QIP Quick Impact Project WFP World Food Programme RC Resident Coordinator

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