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A Crowded Field: Groups of Friends, the United Nations and the Resolution of Conflict

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A Crowded Field: Groups of Friends, the United Nations and the Resolution of Conflict ACrowded Field: Groups of Friends, the United Nations and the Resolution of Conflict Teresa Whitfield An occasional paper of the Center on InternationalCooperation: Studies in Security Institutions (Vol. 1) This paper traces the evolution of groups of Friends—under- create or impose the conditions for peace. Consequently their stood as informal groups of states formed to support the relationships to the other actors and factors involved in a peacemaking of the United Nations—from the emergence of given process will be key. Although where groups of Friends Friends of the Secretary-General on El Salvador in 1990, at a are likely to be found responds to no fixed criteria as to the moment of post-Cold War optimism regarding the UN’s type of conflict or its geographic location, there are certain peacemaking capacity, to the more complex (and crowded) circumstances in which a small group of states may be more environment for conflict resolution of the mid-2000s.1 The helpfully engaged than others. These relate to the external intervening fifteen years saw an explosion of groups of all context of a given conflict; the nature of its parties; the inter- kinds to support peacemaking, peacekeeping and post-conflict ests of the group’s members; its composition and the clarity of peacebuilding, a mirror of the extraordinary upsurge in a its leadership; and the phase of the process in which the group range of efforts to address global security in this period. is engaged. Implicit in these findings is the observation that Analysis of the groups is complicated by the great diversity there will also be conflicts to which a group will bring little they represent, including in the impact they have had on the benefit. The paper concludes with recommendations for the processes with which they have been engaged. Indeed Annex I future, most fundamentally suggesting that a group of Friends distinguishes four different categories of groups engaged with or related mechanism should be at the service of a strategy for the UN in conflict resolution: Friends of the Secretary- international engagement within a peace process, and not a General, Friends of a country, Contact groups and substitute for one, and that the form of a group should follow Implementation and/or monitoring groups. This paper’s pri- its function: what a group is expected to do should be an mary focus is on groups that have supported UN-led media- essential factor in its establishment and composition. tion efforts; however its analysis and conclusions embrace both issues specific to UN leadership, and broader considerations of I. INTRODUCTION the efficacy of group engagement in conflict management. Since the early 1990s a number of different groups of states have supported, or worked alongside, the United Nations to prevent and resolve conflicts, or keep and build the peace. These groups Groups of Friends have potential as an are difficult to classify. Their titles—Friends of the Secretary- auxiliary device to peacemaking; they General, a particular process or country; Core Groups and Contact Groups; Troikas, the Quartet and the Quint; and a cannot on their own create or impose broad array of Implementation and/or Monitoring Committees—sow confusion.2 They also shed little light on the the conditions for peace. functions they have performed; the different relationships they have led to between the Secretary-General, his representatives The paper argues that groups of Friends have potential as and involved member states; or their different impacts on the an auxiliary device to peacemaking; they cannot on their own broad range of conflicts within which they have been engaged. Teresa Whitfield is Director of the Conflict Prevention and Peace Forum, a program of the Social Science Research Council. This paper reflects work in progress for her book Friends Indeed: the United Nations, Groups of Friends and the Resolution of Conflict, researched and written while she was a Visiting Fellow at the Center on International Cooperation, New York University, with the support of the Department for International Development (UK), the Fafo Institute for Applied International Studies (Norway), the Federal Department of Foreign Affairs of Switzerland, the Ford Foundation, and the United States Institute of Peace. A causal relationship between the presence of a group of themselves, acting as a group, but also in partnership with Friends and a successful peace is difficult to prove, not least interested regional actors. But despite the integral role of the because such a group will itself be in part a consequence of Secretary-General and his representatives in these processes, significant external interest in a conflict. However the paper the peacemaking was led by others: the United States in the suggests that informal groups have the potential to provide a decade-long effort to untangle the conflicts of southern multitude of benefits to the UN, to their members, at times to Africa, and the permanent five in Cambodia.3 El Salvador, the parties to the conflict and to the process as a whole. These where the first Friends of the Secretary-General were formed include leverage, legitimacy, resources and assistance of many to support UN-led negotiations, would raise new hopes of the kinds. It also demonstrates that this is not always the case. ability of the UN itself to lead a complex peacemaking effort. After an overview of the evolution of the mechanism of The UN’s moment of post-Cold War euphoria was to be Friends in the context of the broader arc traced by UN peace- short lived. In the years that followed the capacity of the UN making, the paper explores why this may be so through analy- and its membership were outstripped by the nature of the sis of where groups of Friends have been formed; the rela- challenges in peace and security with which it was presented, tionship of this formation to the interests and preferred and the pace at which they developed. Friends were not strategies of the states and individual mediators involved; the exempt from this process. By the mid-1990s doubts as to the importance of composition; and the different roles played by efficacy of the mechanism had set in, in parallel to a gradual groups in different phases of a peace process. erosion of the primacy of the Secretary-General’s role as The paper argues that the evolution of peacemaking in the peacemaker. These did not slow a propensity to create groups last fifteen years has complicated the formation of fixed of some kind. As international engagement in conflict resolu- groups of Friends. Reasons for this include the changing tion escalated rapidly in the late 1990s and early 2000s a mul- nature of the conflicts addressed—which may offer little tiplicity of mechanisms were formed. Their proliferation leverage for external actors, including the statist organization reflected the evolving nature of the conflicts addressed by the that is the United Nations—a scarcity of cases in which the international community, as well as the challenge presented by UN will have a clear lead of the peacemaking effort, and the the management of the multiple actors involved in efforts to eagerness for member states to be involved within a group of end them. It also contributed to fundamental changes in the Friends or other mechanism engaged in the now popular pur- ways in which the United Nations, including the Security suit of conflict resolution. This pressure for inclusion creates Council, addressed conflicts. sometimes-irreconcilable tension between the efficiency of a group—which will be enhanced by its small size—and its First Friends: El Salvador legitimacy, which may be better served by the membership of The mechanism of Friends of the Secretary-General was first a larger number of states. Under such circumstances there will used in the negotiations on El Salvador conducted under UN be instances in which a group of Friends will not be appropri- auspices between 1990-1992. In this instance Alvaro de Soto, ate; however, there will also be others in which there may be the Secretary-General’s Personal Representative for the Central clear benefits to the UN of working in or through informal American Peace Process, consulted regularly with a number of coalitions. The recommendations with which the paper con- countries regarding the course of the negotiations he mediat- cludes suggest that when this is the case a number of the les- ed between the government of El Salvador and the guerrillas sons derived from earlier experiences with groups of Friends gathered in the Farabundo Martí National Liberation Front will be relevant. (FMLN). Some of these—such as the United States and Cuba—had an obvious political stake in the outcome of a con- II. HISTORY AND EVOLUTION flict whose escalation had been fuelled by its international The end of the Cold War transformed United Nations’ peace- dimensions and others, such as the Nordic countries, did not. making. Cooperation between the Soviet Union and the The countries he assembled as Friends of the Secretary- United States allowed the five permanent members of the General (Colombia, Mexico, Spain and Venezuela), however, Security Council to act on the basis of consensus and under- represented states with a demonstrated interest in the region, pinned the UN’s capacity to help bring an end to conflicts in like-minded in their concern to reach a negotiated settlement Southern Africa, South East Asia and Central America. of the conflict, but with no direct stake in its outcome. The Central to this process was the Secretary-General’s evolving three Latin American countries had been involved in the earli- relationship with UN member states, acting individually or in er efforts of the Contadora Group to foster peace in Central concert.
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