Bulletin of the United Nations Department of Political Affairs

WINTER 2007-2008

Strengthening the Department of Political Affairs INSIDE THIS ISSUE Strengthening DPA ... 1 A “critical investment” in Mediation Support Unit in Motion ... 4 preventing and resolving conflicts

Supporting Middle East reventive Peacemaking ... 5 diplomacy. It is one of the Rebuilding Trust in principal means Uganda’s Peace Pavailable to the United Process ... 6 Nations to keep conflicts from escalating into Being a Catalyst costlier tragedies, in Against Genocide ... 8 lives lost and hopes for development dashed. Yet Renewed Negotiations successful prevention on Western Sahara ... 10 has a basic requirement: that the United Nations Iraq: a “New” Mandate be afforded the tools it Secretary-General Ban Ki-moon introduces the UN needs to carry out this for the UN ... 12 budget to the General Assembly, including his plans to most vital function. strengthen DPA. UN Photo / Eskinder Debebe UN Diplomacy in A major new reform Myanmar ... 14 proposal aims to ensure just that, the management of peacekeeping by strengthening and reorganizing operations. The $21 million plan aims Tunis: Global Discussion the Department of Political Affairs to transform DPA into an entity that on Terrorism ... 16 so that it can be, in the words of is “more field-oriented and less bound Secretary-General Ban Ki-moon, to the desk”, better equipped to DPA and Elections: “a more proactive and effective mount timely and effective diplomatic 15 Years Later ... 18 platform for preventive diplomacy, initiatives. It constitutes the first including mediation, at the service of major overhaul of the Department Staff News ... 21 Member States.” since its establishment in 1992.

The Secretary-General’s proposals, “The reforms to our peacekeeping Activities and Events ... 22 first presented in October as part apparatus were an essential first of an addendum to the 2008-2009 step,” the Secretary-General said in budget for the Organization, follow outlining the restructuring plan in a directly upon his earlier reforms to continued on page 2

rebuilding trust in uganda’s peace process An interview with UN envoy Joaquim Chissano

UN Photo UN Page 6 report (A/62/621) to the General the Secretary-General in his day- Services but also dating back Assembly. “Now focus must be to-day diplomacy while managing to the “Brahimi Report” on put on the Organization’s capacity and overseeing complex political Peace Operations(2000) and the to prevent and resolve conflict missions for Iraq, Lebanon and report of the Secretary-General’s — a better investment than the Middle East Peace Process, High-Level Panel on Threats, dealing with the costly aftermath Nepal, Somalia, West Africa, Challenges and Change (2004). of war and a critical investment Guinea-Bissau and the Central Yet while the Department’s to ensure the billions of dollars African Republic. The Department spent on development by Member is also looked upon to provide States, the international financial strategic leadership to the UN The United Nations needs to be stronger not only at institutions and the United system as a whole on conflict stabilizing situations by Nations itself are not wasted when prevention. deploying forces, but also at armed conflict or war erupts.” preventing and resolving them CAPACITY STRETCHED THIN through political means. SUPPORT STRUCTURE As these and other responsibilities FOR DIPLOMACY have grown, resources have remained largely stagnant over constraints have been identified For DPA, the proposals are both the years, thus stretching DPA’s before, actions were not taken to welcome and overdue. capabilities too thinly and, as remedy the situation. The Department, primarily the Secretary-General said in his Under the Secretary-General’s through its regional divisions, is report, “hampering the ability of proposal, DPA would change in a the main support structure for the Department to do the kind of number of important ways.

First, DPA’s regional divisions would be bolstered substantially so B. Lynn Pascoe, they can engage more directly and Under- systematically with the issues and Secretary- actors in the field, including our General for partners in regional organizations, Political Affairs, who have a leading role in many addresses a press instances in preventive diplomatic conference on the Secretary- initiatives. The largest share of the General’s plans 101 additional staff provided for to strengthen the under the plan would be located Department of on these regional desks, which Political Affairs. would also undergo restructuring, and receive an important increase UN Photo / Ryan Brown Ryan / Photo UN in funding for travel by officials to the areas of potential conflict UN preventive diplomacy, carried analysis, diplomatic engagement around the world. out in many cases through the and coordination that is required “good offices” of the Secretary- for successful and proactive REGIONAL OFFICES General. DPA currently provides preventive diplomacy.” advice and support to numerous Another change envisioned The new proposals draw on envoys with assignments around under the plan would bring DPA numerous previous reports the world, including those active closer to where its assistance and evaluations noting DPA’s on Myanmar, Northern Uganda, might be of help through the chronic resource shortages Darfur and Western Sahara. At gradual establishment, in strict — most recently by the UN’s the same time, DPA closely assists consultation with Member States, Office of Internal Oversight

 Politically Speaking / Winter 2007-2008 of a limited network of offices in and the recently-established UN requested by the Member States. the field with a focus on regional Regional Center for Preventive Along with needed dynamics as opposed to individual Diplomacy in Central Asia enhancements in Departmental country situations. The offices (see box) — would serve as management and oversight — patterned on the current UN forward platforms for preventive capacity, DPA would also be Office for West Africa (UNOWA) diplomacy, when and where strengthened in the areas of electoral assistance, mediation support and policy planning — the latter to permit a stronger focus The regional approach: preventive diplomacy on cross-cutting issues that are in Central Asia increasingly intertwined with The UN Regional Centre for Pre- preventing and peacefully manag- conflict, such as transnational ventive Diplomacy for Central Asia ing potential conflict associated organized crime, corruption and (UNRCCA), inaugurated in Decem- with the kinds of new threats and terrorism. Mediation support is ber 2007 in Ashgabat, Turkmeni- challenges they face collectively already an expanding area for DPA, stan, is a prime example of how the today, including extremism, ter- as indicated by the activities (see United Nations intends — by virtue rorism, drug trafficking, the man- page 4) of its recently-established of a more field-based Department agement of natural resources, and Mediation Support Unit. of Political Affairs — to better assist environmental pressures. Member States in preventing and DISCUSSIONS CONTINUE resolving conflict. The launch of As a small political office to be the Centre culminates more than led by a Representative of the At this writing, the proposals to five years of close consultations ­Secretary-General, UNRCCA will strengthen DPA remained under between DPA, the Governments offer assistance to the Governments discussion by Member States as of the five Central Asian countries, in building national capacities for part of their consideration of the members of the Security Council, prevention, in facilitating dialogue, UN budget. and UN programs and agencies in and in catalyzing international sup- In a November briefing to the region. port behind projects and initiatives. The Centre will cooperate closely members of the budget committee The establishment of UNRCCA with regional organizations includ- of the General Assembly known as comes at a time of continued transi- ing the Organization for Security the ACABQ, the Under-Secretary- tion and consolidation in Central and Cooperation in Europe (OSCE), General for Political Affairs, Asia. Since their emergence as the Commonwealth of Indepen- B. Lynn Pascoe, emphasized that independent states following the dent States (CIS), and the Shanghai the United Nations needs to be breakup of the Soviet Union, the Cooperation Organization (SCO). stronger not only at “stabilizing five nations of the region have situations by deploying forces, but sought to establish national identi- also at preventing and resolving ties while building foundations for them through political means.” peaceful growth and democratic Pascoe noted growing UN development. Following difficult periods, including the civil war in political responsibilities in Iraq, Tajikistan in the 1990s, the region Somalia, Lebanon and Darfur, as has taken some strides forward in well as a number of recent cases recent years. UNRCCA will be posi- that showed the value of proactive tioned to assist the Governments of preventive diplomacy, from Nepal Kazakhstan, Kyrgyzstan, Tajikistan, to Myanmar to Northern Uganda, Turkmenistan, and Uzbekistan in and the Democratic Republic of the Congo. “The Secretary- The presidents of Turkmenistan General’s vision is for a UN and Tajikistan seen during ribbon cutting continued on page 20 ceremonies to inaugurate UNRCCA. Photo: Brian Vitunic

Bulletin of the United Nations Department of Political Affairs  MEDIATION SUPPORT efforts on Northern Uganda and Western Sahara, and planned in 2008 to expand its assistance to a number of other active Mediation Support Unit peace process where its support has been requested. Its early in Motion efforts on Somalia were also appreciated. As newly-appointed n only its first full year of When the mediators encountered UN envoy, Ahmedou Ould- operations in 2007, DPA’s financial difficulties organizing the Abdallah, prepared to assume his Mediation Support Unit first round of discussions between functions in October, the Unit went from the drawing board Darfur rebel factions in September funded and deployed staff to a Iall the way to the peace table 2007 in Arusha, Tanzania, the Unit “scoping” mission to the region — providing real-time assistance provided timely stopgap funding that provided the new SRSG with to peace envoys on Darfur, that enabled the meetings to go an assessment of the potential for Northern Uganda, Western Sahara forth as planned. Along with DPA’s increased UN support to Somalia’s national reconciliation process.

STAND-BY TEAM In another step that could have important repercussions in the field, preparations were completed for the expected launch in early 2008 of the United Nations’ first “Stand-by” mediation support team. Under a Memorandum of Understanding signed in August 2007 with the Norwegian Refugee UN Darfur envoy Jan Eliasson (third from left) meeting in Khartoum with joint Council, the team of full-time mediation support team including DPA staff members Nita Yawanarajah and advisers will be available on short Vladimir Zhegira (middle right). UN Photo / Fred Noy notice to assist peace endeavors in the field. At year’s end, DPA and Somalia, developing a new Africa I Division, MSU has also and NRC were completing the platform to quickly deploy experts detailed staff experts to the Joint initial selection process for a to peace talks, and strengthening Mediation Support Team which geographically and gender- its foundations as a repository assists UN envoy Jan Eliasson and diverse group of experts in five of knowledge and best practices his AU counterpart Ahmed Salim key fields that arise commonly in mediation. With continued Salim in the day-to-day conduct in peace negotiations: security, strong support from Member of the negotiations. MSU has also transitional justice and human States, MSU aims to build on its provided the mediators with brief- rights, constitution-making, initial achievements so that it can ing notes on lessons from earlier wealth-sharing and power-sharing keep up with the rapidly growing peace efforts on Darfur as well as arrangements. demand for its services. from the successful negotiations Knowledge management that ended Sudan’s North-South The talks on Darfur jointly medi- and sharing has been another conflict in 2005. ated by the United Nations and important focus, as MSU works to the African Union provided both ensure that the United Nations is PLANS TO EXPAND an early test and an opportunity for identifying and making available MSU to contribute to an impor- The unit is providing similar tant mediation effort in the field. kinds of support to peacemaking continued on page 15

 Politically Speaking / Winter 2007-2008 PEACE PROCESS Liberation Organization and the Palestinian Authority.

From Annapolis Forward: quartet efforts A Quartet meeting on the eve of Supporting Middle East Annapolis voiced strong support for the conference, while noting Peacemaking that it reflected months of work by the parties and by the Quartet to “expand the circle of support he Annapolis Conference is one of DPA’s most active for peace.” This was a reference marked a hopeful end portfolios. The Secretary-General to efforts to engender broad to a trying year for is one of the four “Principals” of participation by key Arab states Israelis, Palestinians and the Quartet, a grouping whose in the region, whose involvement Tall those involved in Middle East frequent meetings bring together would be critical to any successful peacemaking. With the parties the United Nations, the United peace effort. One important now striving ambitiously for a States, the European Union moment in that process took place comprehensive peace treaty by the and the Russian Federation in at UN headquarters during the end of 2008, the United Nations is an effort to push forward peace opening of the General Assembly prepared to lend its support — both efforts on the region. in September. The Secretary- through its participation in the DPA senior officials provide General hosted an Iftar — the Middle East Quartet and through regular briefings to the Security traditional breaking of the fast its continuing efforts to ease the Council that serve as a barometer during the Muslim holy month suffering of people on the ground. of trends in the region. The of Ramadan — at which Quartet “Success depends not on what Department also provides Principals and Arab League we say today, but on what we do oversight and support to the work Ministers held discussions about tomorrow,” Secretary-General of UNSCO, the office, based in the way forward in peacemaking Ban Ki-moon cautioned in his Jerusalem, the Gaza Strip and efforts on the Middle East. 27 November speech to the gather- Ramallah, of the United Nations’ Only days after Annapolis, the ing at Annapolis. “Above all, today Middle East envoy — the Special Secretary-General announced marks a beginning, not an end.” Coordinator for the Middle East the appointment of a new UN Peace Process and Personal Assisting the Secretary-General Special Coordinator, Robert Serry, Representative to the Palestine in his Middle East diplomacy a Dutch diplomat with ample experience in the Middle East, including in peacemaking efforts prior to the Oslo Agreements of 1993 and the Madrid Conference of 1991. “The appointment of a new Special Coordinator comes at a critical juncture, as the Annapolis conference has created renewed momentum for peace”, said a UN statement announcing

continued on page 21

The Quartet addressing reporters in New York, September 2007.

UN Photo / Evan Schneider

Bulletin of the United Nations Department of Political Affairs  INTERVIEW talks back on track Chissano’s role as “facilitator” of the talks began in December 2006 when he was named the Rebuilding Trust in Secretary-General’s Special Envoy for the “LRA-Affected Areas” Uganda’s Peace Process: — a euphemism for the region encompassing not only Northern An Interview with UN envoy Uganda, but the neighboring Joaquim Chissano border regions of Sudan and the Democratic Republic of the Congo. These areas suffered the s 2007 drew to a close, discuss his and the UN’s role in spillover effects of the conflict and one of Africa’s most the peace process, including the have become rearguard retreats notorious conflicts — challenge of building trust with the of the LRA. At the time of the the two decade-old war LRA — an insular rebel movement appointment, government-rebel Awaged by the Lord’s Resistance which has been wary of outsiders negotiations mediated by Vice- Army in northern Uganda and fearful that peace could President Riek Machar of the — appeared a few steps closer mean imprisonment for atrocities Government of Southern Sudan, to resolution, thanks in some committed during the conflict. were teetering on the edge of measure to timely contributions by These include the widespread collapse. LRA leaders had angrily walked out of the talks, insisting on both a new mediator and a change in venue away from the Southern Sudanese capital of Juba.

Faith was quickly rewarded, however, that Chissano — with close ties to regional heads of state, bona fides as a former combatant himself and experience in peace negotiations in his native

UN / Timothy McKulka country and elsewhere in Africa — could help to get the talks back on track. Following several visits including two direct meetings with reclusive LRA leader Joseph Kony, talks not only resumed in April 2007 (in Juba and under the UN Envoy Joaquim Chissano and mediator Riek Machar of the Government of continued mediation of Machar), Southern Sudan in discussions with commanders of the Lord’s Resistance Army. but they picked up momentum quickly thereafter. the United Nations envoy to the abduction of children as soldiers talks, the revered statesman and and other serious abuses widely Since then, a cessation of former President of Mozambique, attributed to the group in a hostilities has held and been Joaquim Chissano. conflict thought to have killed extended on several occasions, tens of thousands of people since providing relief to the civilian While visiting UN headquarters 1986 and forced some 1.7 million population and giving political to brief the Security Council in villagers from their homes. efforts room to breathe. In May, November, Chissano took time to

 Politically Speaking / Winter 2007-2008 LRA leaders, in fact, rebuffed Chissano during a first visit to the region, refusing to see him over the course of several days Members of the LRA as he tried from Juba and then stand guard Khartoum to arrange a meeting in during peace their camps. But he persisted, and talks. the LRA eventually warmed — not UN / Timothy only to his role, but also to the McKulka potential value of UN involvement in the process, a point Chissano was able to drive home by explaining the UN role in helping his native Mozambique come to peace terms in the 1990s. the parties reached a “protocol” originated. Both sides expressed Says Chissano of his ability to agreement on root causes of determination, meanwhile, to get through to the LRA: “I think the conflict and the need for reach a definitive cease-fire by it’s the way you speak to them comprehensive solutions. In January, the deadline established that matters. They may have June they signed an agreement by both Uganda and the DRC committed atrocities, terrible on “principles of accountability for resuming military operations crimes, but they are people. They and reconciliation”, a first step against the LRA in the absence of have their feelings. They even at trying to find a formula which further progress in the talks. think they are in the right. If ensures that those responsible you start by condemning them How did momentum shift so for the most grave human rights you then miss the opportunity of quickly in a peace process which violations are brought to justice having leverage over them.” only a year ago was in danger of as part of any peace settlement. collapse? The parties agreed in principle to ADVICE AND SUPPORT explore ways to blend traditional Although his positive impact Ugandan forms of justice into a Chissano and others have on the process has been more credible national judicial process worked hard to overcome than apparent to observers, that would meet human rights deep mistrust on the part of Chissano credits a support standards. The LRA leadership the LRA. system that backs his activities. has sought to avoid trials by the He is also quick to point out International Criminal Court, Chissano says that he and that he continues to act only which in late-2005 issued war others worked hard to overcome as a “facilitator” in the talks, crimes indictments against the top deep mistrust on the part of the offering advice and support where members of the group. LRA toward just about every requested to the mediator, Riek other actor in the process — the Machar, whom he credits strongly momentum shift government, the mediator and for the peace initiative as a whole. In a further confidence-building the international community writ With assistance from DPA and measure, rebel representatives large. “When I first attempted to two small support offices which returned to Uganda as official make contact it was clear they have been established in Kampala guests of the Government in did not even trust the United and Juba, Chissano has been able November in order to carry on Nations,” he said. “They believed to keep a close ear to the ground consultations with supporters the UN was a tool of the ICC to in Uganda, while also shuttling in the ethnic Acholi areas arrest them and hand them over to of the north where the LRA the Court.” continued on page 20

Bulletin of the United Nations Department of Political Affairs  GENOCIDE international action on Darfur, developing a set of genocide “warning signs”, and attempting to Being A “Catalyst” make the UN system work better as a nerve center for detecting and Against Genocide: responding to crises. An Interview with Francis Deng In keeping with his mandate (see box) to gather information and provide early warning of rancis Deng, the UN academic, former diplomat from potential problems — Deng’s job is Secretary-General’s his native Sudan and longtime essentially to serve as a “canary in new point man on the UN official acknowledged for the coalmine”, working to detect prevention of genocide, his pioneering work on internally tragedies before they occur and to Fis no firebrand. A soft-spoken displaced persons (IDPs) — also spur governments and the United diplomat both by nature and by took pains to assure that while Nations, including the Secretary- training, he says he’s learned from he will be careful not to alienate General, into action before it is past experience in humanitarian the very people he is trying to too late. But how can one person work that developing cooperation influence, he would not shy away with a small staff become a human and trust with governments can from “calling a spade a spade” warning system for genocide? ultimately get you further than when appropriate. “naming and shaming” them for raising awareness “I’m just very sensitive about bad behavior. having an entry point for dialogue One way is to travel to areas of It is an approach that Deng with governments because without concern, investigating reported himself acknowledges may not that kind of dialogue you can’t get violations and using one’s profile satisfy some who would favor very far, nor get close,” said Deng, to raise awareness about potential more strident activism. But in an who took up the job in August crises — something Deng did interview, Deng — a distinguished 2007 under the title of Special frequently as the Secretary- Representative of the Secretary- General’s Special Representative General on the Prevention on IDPs from 1992 to 2004. of Genocide and other Mass But as he maps out his itinerary, Atrocities. Deng says he intends to focus not only on countries of concern but It was in 2004, as part of also on “success stories” or “best UN observances of the tenth practices” in the field. anniversary of the Rwandan Genocide, that a high-level UN Deng cites South Africa as a adviser on genocide was first positive example where potentially appointed. Deng’s predecessor, the “catastrophic” racial cleavages respected Argentine human rights have been managed in the post- lawyer and activist Juan Méndez, Apartheid era through wise worked hard to define the role leadership and policies. Another during its initial three years case in point is Nigeria, he adds, — time he divided, among other noting the role of federalism in things, between trying to rally managing ethnic and religious diversity and conflicts in that country. “There are still things to Francis Deng addresses a be managed carefully, but you can Holocaust remembrance event say they are still so far avoiding at UN Headquarters in New York. mass atrocities,” he said. UN Photo / Devra Berkowitz

 Politically Speaking / Winter 2007-2008 The remains that have collapsed and there is of victims of a vacuum to be filled, you have the Rwandan two obstacles to overcome. The genocide on resistance of governments and the display at reluctance of international actors the Murambi to send in their young people to Genocide Memorial in fight,” Deng explains, citing East Rwanda. Timor, Kosovo, Sierra Leone and

Photo: OCHA / IRIN Somalia as rare examples in which the international community was able to get in.

“But in most cases where there When it comes to identifying Outcome Document of the 2005 is a government with whatever what he calls “the more difficult World Summit. capacity to control the situation or situations”, where possible warning to resist international involvement, signs of genocide are already responsibility to protect intervention without the consent present or on the horizon, Deng Deng says the idea of “R2P” of the government concerned is does not yet have a list in hand. was principally meant to stress problematic, to say the least,” Surprisingly perhaps, one case that that sovereignty implies the Deng contends. “It seems to me doesn’t figure highly on his agenda responsibility of states, first and therefore that emphasizing the is Darfur — the crisis that has foremost, to protect their own responsibilities of the state itself probably done more than any other citizens, with the international and developing ways to support to help spur the United Nations in community providing support them, providing some incentives, recent years to heighten its efforts when governments prove is the way to go,” he adds. at genocide prevention. incapable of doing so. He feels too As part of his initial round of It is not for lack of interest or much emphasis is being placed consultations, Deng says he has concern. As a Sudanese national in the public debate on the “last been reaching out to NGOs, who has worked extensively on resort” of military intervention viewing them as important allies. policies for addressing conflict — one he would apply only in He has sought both to explain in his country, Deng has strong cases of “abysmal failure” by states his approach on sovereignty as views on the situation not only in to protect their own people. “responsibility with international Darfur but its link to the broader “My sense is that except for very cooperation”, and also to provide question of inclusive peace in weak states or failed states, states the Sudan. “But the situation has continued on page 20 gone beyond the point where our mandate for prevention is relevant, and, in any case, there are already Mandate of the Special Representative many people engaged at the highest levels,” he says. “I don’t • Collect information on massive and serious violations that might lead think there is anything new my to genocide; mandate would bring to Darfur.” • Act as a mechanism of early warning to the Secretary-General, Shaping the debate over the and through him to the Security Council; international response to genocide • Make recommendations on actions to prevent or halt genocide; is the evolving international • Liaise with the UN system on activities for the prevention of genocide doctrine of the responsibility and mass atrocities to protect, which gained steam • Liaise with the UN system on activities for the prevention of genocide with its endorsement by the and work to enhance the United Nations capacity to analyze and manage UN General Assembly in the information relating to genocide or related crimes.

Bulletin of the United Nations Department of Political Affairs  WESTERN SAHARA Polisario, a pro-independence force backed by Algeria that had arisen during the final years of Spanish To move a line in the sand: control. Though Mauritania stepped aside amid military renewed negotiations on setbacks, fighting continued with Morocco until ceasefire silenced Western Sahara the guns in 1991. An agreement between the sides provided for a referendum the following year in which the people of he disputed former Polisario independence movement Western Sahara were to have the Spanish colony of — as well as with the neighboring opportunity to decide between Western Sahara is a states. In June and in August of becoming an independent nation or sparsely populated wedge 2007 at an estate outside New York forming part of Morocco. Tof desert on the northwest coast City, he presided (with support of Africa with the Atlantic Ocean of both DPA and the Department A decade and a half later, to its West, Algeria to of Peacekeeping however, the referendum has the East, Morocco to the Operations), over the yet to be held, and the situation North, and Mauritania first direct negotiations remains essentially frozen in time. to the South. More between the two sides The United Nations Mission for than thirty years into a in seven years. At the Referendum in Western Sahara bitterly fought impasse this writing, a third (MINURSO) — headquartered over its sovereignty, the round was expected in in Laayoune, under the resident territory also sits at a January 2008. leadership of the Secretary- symbolic crossroads of General´s Special Representative Trying to forge a sorts, where aspirations, for Western Sahara — is one of the solution to one of international law and longest standing UN peacekeeping the most entrenched hard political realities operations. Its more than 200 Peter van Walsum conflicts on the UN meet. military observers monitor the briefs the press. agenda — between Straddling that sides whose positions same line as he leads a new UN have in the past been, according effort to break the impasse is to van Walsum himself, “almost former Dutch diplomat Peter van irreconcilable” — will be no Walsum, the Secretary-General’s easy task. Personal Envoy for Western Few would have predicted that Sahara, who during a recent pause the issue would remain unsolved between rounds of negotiations today when Spain, riding the tail of took time to discuss the issues the global wave of decolonization, with Politically Speaking. moved in 1975 to relinquish Since his appointment in July Western Sahara. A referendum 2005, van Walsum has traveled to on independence was expected to the ceasefire lines etched into the soon follow. Sahara, visited refugee camps in But Morocco and Mauritania neighboring Algeria and toured laid claims of their own, igniting the key capitals of the region, a 16-year armed conflict with developing along the way fluid relations with the two parties to the Aerial view of the “berm” conflict — Morocco and the Frente dividing Western Sahara.

10 Politically Speaking / Winter 2007-2008 ceasefire along the “berm”, a predating the period of 2,000-mile long wall of sand that Spanish colonial control. divides Western Sahara in two. Van Walsum says that The wall was built by Morocco many Moroccans have an during the war as a barrier against emotional attachment to Polisario forces, who hold the a territory most of them territory on the other side as far consider historically part as the border with Algeria. Tens of of their country. thousands of refugees remain in Seeing little support camps in Algeria. Years of efforts in the Security Council to overcome a dispute over the Kimball M.E. to enforce a solution list of voters who could take part without “the concurrence UN envoy Peter van Walsum and DPA political in the referendum gave way to an officer Donatella Giubilaro speak with a Western of the parties” — a eventual rejection altogether by Saharan woman at a refugee camp in Algeria, position analysts maintain Morocco of any referendum in September 2006. has, if anything, hardened which independence is an option. in recent years as key start. The parties used the Unwilling to impose a Western powers view Morocco first meeting largely to restate settlement, the Security Council as a bulwark against terrorism in longstanding positions. The has instead called for the parties North Africa — second meeting broke little new to reach a mutually acceptable van Walsum came quickly to the ground, although the climate political solution, which would opinion that there was only one remained constructive and the provide for the self-determination way to overcome the stalemate. discussions turned somewhat of the people of Western Sahara. “I felt the only choice we have is more substantive, touching on between indefinite prolongation important questions such as the PREVIOUS EFFORTS FAILED of the impasse and direct use of natural resources. There negotiations,” he said. also was a discussion on the Van Walsum is not the first to try to possible expansion of the existing help them to do so. A painstaking By taking that stance, van confidence-building measures. seven-year UN mediation effort by Walsum has been criticized by the former US Secretary of State, some for bowing to realpolitik, but While determined that James Baker, ended in failure after he is firmly convinced that the negotiations remain the only the plan he proposed for a phased- only way forward is some kind of chance for a settlement, van in referendum was rejected in 2004 acceptable compromise. “Some Walsum is not expecting dramatic by Morocco, which has held firm people may feel that Polisario breakthroughs right away. He to its opposition to independence probably has the stronger case in feels it may take “political shifts” as an option. Polisario, feeling it legal terms, but that hasn’t helped outside of the talks before either has international law on its side, them for 30 years,” he contends. side is willing to make significant has been unwilling to consider any “I am expected to look at political concessions on the inside. These lesser option. reality as well. Both the Security are code words, perhaps, for Council and the International some stronger nudging on both Van Walsum feels the dispute, at Court of Justice are ‘principal of the parties by their allies in the its heart, has become a matter of organs’ of the United Nations, region and the wider international principle for both sides. As strongly but they have distinct functions. community. as Polisario asserts the right to I receive my guidance from the self-determination, citing both “We need to be given more Security Council, which has a duty UN Resolutions on decolonization time, but there has to be a to take both international law and and a largely favorable advisory change,” he said. “Before we had political reality into account.” opinion of the International Court an impasse without negotiations, of Justice, Morocco has put forth The talks mediated by van and now we have negotiations at legal claims to Western Sahara Walsum, got off to a slow an impasse.”

Bulletin of the United Nations Department of Political Affairs 11 IRAQ already being performed by the United Nations, but not previously spelled out in its mandate, such as Iraq: a “new” mandate the UN role in the International Compact for Iraq, and UN for the United Nations support in promoting dialogue between Iraq and its neighbors. The new resolution also reaffirms the role of the United Nations n declaring, during a visit the opportunity to now enhance, on core issues such as human to Washington this year that where possible, our contributions rights, humanitarian aid and bringing peace to Iraq is in crucial areas such as national reconstruction assistance. a challenge “for the whole reconciliation, regional dialogue, Iworld”, Secretary-General Ban humanitarian assistance and hu- FOCUS ON DIALOGUE Ki-moon sent a message that the man rights,” the Secretary-General United Nations wants to be as said in a statement following the Perhaps the most significant helpful as it can, irrespective of passage, in August 2007, of Se- new element is the strong the divisions that existed on Iraq curity Council Resolution 1770, focus on national reconciliation within the organization before renewing and strengthening the — providing for the first time the invasion. UN mandate in Iraq. an explicit mandate for the United Nations, The at the request of ­Secretary- the Government General of Iraq, to advance hosted a “inclusive political high-level dialogue and national meeting on reconciliation.” It’s a Iraq at UN headquarters role the organization in September. has played in many He is flanked other situations by Iraqi around the world, but Prime also a recognition that ­Minister without a political Nouri al-Maliki compromise, there and USG will be no lasting end

UN Photo / Eskinder Debebe Eskinder / Photo UN Pascoe. to the violence in Iraq. The change also Now, armed with an updated Though described at the time speaks to the unique character mandate from the Security of its passage as a “new” UN of the United Nations as an Council and a new top envoy on mandate for Iraq, Resolution impartial entity, with accumulated the ground in Baghdad, the UN is 1770 is as much about bringing experience over the past several poised to do just that — building the UN’s responsibilities up to years in talking to all of the key on its previous yet largely date. The new resolution drops actors in the country — including unheralded contributions in Iraq, references to milestones that some who are unwilling to while keeping the security of UN have already been achieved with have dialogue with the US-led staff at the forefront. UN assistance during 2004 and Multinational Force. 2005, namely, the holding of “The United Nations is deeply Despite the continued the two national elections and a committed to helping the people constraints of insecurity on the constitutional referendum. Added, of Iraq, and I am pleased to have ground, the UN has been moving for the first time, are other tasks

12 Politically Speaking / Winter 2007-2008 steadily to carry out its updated provided through the United headquarters in August 2003, responsibilities on Iraq. Nations Assistance Mission and followed several months in Iraq (UNAMI), as did UN of rising mortar attacks on the The Secretary-General chose support through the International international zone where UNAMI Staffan de Mistura of Sweden, Compact with Iraq. UN is housed. a highly experienced UN humanitarian agencies were troubleshooter who previously These events provided a useful also working to step up their served as humanitarian reminder of the risks of working efforts, particularly in light of coordinator in Iraq, as his new in Iraq and an opportunity for the the dire situation faced by the Secretary-General to restate his large number of Iraqis who have firm commitment to the security Without a political been displaced by the violence. of those who choose to serve compromise, there will A report on human rights issued in in Iraq. By late 2007, gradual be no lasting end to the October provided the authorities improvements to UN facilities violence in Iraq. and the Multinational Force had permitted small increases with an analysis of the situation in international staff, and plans and recommendations for envoy, replacing Ashraf Qazi were being developed to build a strengthening the rule of law. as the top UN diplomat on the larger, more secure, integrated ground. De Mistura arrived in compound. For the foreseeable SECURITY OF STAFF Baghdad in early November to future, however, UN support to begin exploring a stronger political Approval of the revised mandate Iraq should be measured not by role for the United Nations. His coincided almost to the day the size of the footprint on the ability to do so will depend in no with the four-year anniversary ground, but by the quality of the small part on willingness of Iraqi of the deadly bombing of UN contributions instead. leaders to invite the UN into sensitive national-level discussion on contentious issues such as the constitutional review process and Revised UN Mandate in Iraq the future of Kirkuk. Key elements of Security Council Resolution 1770

IRAQ’S NEIGHBOURS At the request of the Government of Iraq, the United Nations shall:

Continuing to promote Advise, Support and Assist in: cooperation from Iraq’s neighbors, • political dialogue and national reconciliation the Secretary-General traveled • holding elections and referenda to Istanbul to participate in a • constitutional review and implementation ministerial meeting between • resolving disputed internal boundaries; Iraq and its neighbors on 3 • regional dialogue, including on issues of border security, November — the second such energy, and refugees high-level meeting in 2007. As • reintegration programmes; an outcome of those discussions, which focused on border security, • comprehensive census. energy and refugees, a ”support Promote, Support and Facilitate: mechanism” will be established • safe, orderly, and voluntary return of refugees and in Baghdad with assistance from displaced persons the UN to follow-up on decisions • coordination and delivery of humanitarian assistance taken in the high-level meetings • implementation of International Compact with Iraq and the related working groups. • Iraq’s capacity to provide essential services for its people Electoral and constitutional • International Reconstruction Fund Facility for Iraq (IRFFI) assistance continued to be • Economic reform, capacity building

Bulletin of the United Nations Department of Political Affairs 13 MYANMAR UN envoys have been trying, with varying degrees of responsiveness, to bring the “good offices” of the Secretary-General to bear in Myanmar: UN diplomacy encouraging Myanmar to move more rapidly and credibly towards in the global spotlight inclusive national reconciliation, the restoration of democracy and full respect for human rights. ramatic developments rights in Myanmar following the in Myanmar have government’s hard-line response Following nearly three-years thrust the Southeast to a wave of demonstrations in which his predecessor was Asian nation into the in September. unable to visit the country, Dglobal spotlight as never before — Gambari traveled there twice in Expectations remained and, along with it, UN diplomacy 2006, reestablishing high-level tempered both by past experience aimed at resolving the recent political access to Myanmar. and the knowledge that diplomatic crisis. That access, in turn, has proven efforts take time. But by year’s valuable in responding to the The Department of Political end UN diplomacy was showing current crisis — providing the Affairs works in close support some initial results in the form of international community with a of the UN Secretary-General’s steps towards the establishment of direct, high-level, channel through special envoy, Ibrahim Gambari, dialogue that would hopefully lead which to express its concerns the former Nigerian diplomat and toward national reconciliation. and to offer its assistance in UN Under-Secretary-General, “The Government of Myanmar, addressing the situation. whose missions to Myanmar while stressing its sovereignty and the region have been at the and independence, can be forefront of international efforts responsive to the concerns of to promote national reconciliation, the international community,” democracy and respect for human Gambari told the Security Council following an early November visit. It was a mission in which he met with senior government officials and other relevant parties including detained dissident Yangon UNIC Daw Aung San Suu Kyi, who in UN envoy Ibrahim Gambari with a rare public statement issued by Daw Aung San Suu Kyi. Gambari on her behalf proclaimed Dispatched urgently to her readiness to enter into Myanmar by the Secretary- dialogue with the authorities, General amid the events of while welcoming UN assistance in September, Gambari met face-to- that regard. face with Myanmar’s top authority, In responding quickly to events Senior General Than Shwe, as they unfolded, the UN was as well as with Daw Aung San able to build upon its established Suu Kyi. He was able to convey entrée to the actors in Myanmar. international concerns about Under a mandate of the General reported killings and arrests of Assembly in effect since 1993, demonstrators, to urge an easing of the government response, and A scene from downtown to offer UN assistance to help Yangon, Myanmar’s capital, during demonstrations of September 2007. address grievances peacefully.

14 Politically Speaking / Winter 2007-2008 Kyaw Tint Swe Once immediate tensions (left), Permanent Representative had eased, Gambari returned of the Union of in November. His visit centered Myanmar to the more on promoting a process of United Nations, dialogue between the government addresses the and opposition as a vehicle both Security Council for national reconciliation and meeting on the situation in his for addressing humanitarian and country, as Ibrahim socio-economic issues. Gambari (right) In order to bolster support looks on. for the Secretary-General’s UN Photo / Evan Schneider good offices, Gambari has also traveled extensively throughout between Member States over against expectations that his Asia, consulting with Myanmar’s the merits and effectiveness of diplomatic efforts alone, on neighbors and members of sanctions as a way to encourage behalf of the Secretary-General, the regional organization, progress in the country. should produce a quick and easy ASEAN, urging them to resolution to the challenges facing In conversations with the encourage Myanmar to respond Myanmar. authorities in Myanmar, Gambari to international concerns by has emphasized that a return to “The good offices is not an cooperating with the United the status quo before the recent event,” he told the Security Nations. His diplomatic efforts crisis is neither desirable nor Council November, “but a process persist independently of the sustainable for the country. At that will require time, patience debates that continue among and the same time, he has cautioned and persistence.”

Mediation agreements and operational about MSU as a resource guidance notes for mediators. available not only to missions of Support Unit DPA and DPKO, but to other MSU also organized training in entities involved in mediation in Motion mediation for mid-level UN staff in the field, including UNHCR, continued from page 4 from various departments, and OCHA and the Office of the High launched a new project to examine Commissioner for Human Rights. the lessons it draws from its the strengths and weaknesses of mediation efforts around the recent peace agreements. The MEMBER STATES’ DECISION world. The Unit has developed Unit reached agreement with the a standard template to guide United States Institute of Peace MSU was established as a result post-assignment reports by UN to publish jointly, beginning in of the decision by Member envoys, and also plans to design 2008, a series of handbooks on States in the 2005 World Summit standard procedures for training mediation-related topics, initially to strengthen the Secretary- envoys before they begin their looking at issues such as internally General’s good offices capabilities, assignments and for debriefing displaced persons (IDPs) and including through mediation in them afterwards. Development human rights accountability in the resolution of disputes. The continues, meanwhile, on the peace processes. Unit operates with funding from UN “Peacemaker” website (www. both the UN regular budget and Through an Inter-Departmental un.org/peacemaker), which by the voluntary contributions, and is Working Group on Mediation end of 2007 had more than 5,000 slated for expansion as part of Support proposed by DPA in registered users from within and the Secretary-General’s plan to October 2007, the Department outside the UN system and was strengthen and reorganize the intends to expand awareness expanding its inventory of peace Department of Political Affairs.

Bulletin of the United Nations Department of Political Affairs 15 TUNIS — to share best practices, to thrash out differences, to raise awareness — the better we can Deepening the build understanding, respect and dialogue among societies, Global Discussion cultures, religions and nations. And the more effectively and on Terrorism in Tunis comprehensively we can work to implement our Global Counter- Terrorism Strategy,” the Secretary- ew if any issues have been Tunisia in November 2007 to join General said in addressing the as acrimonious within the more than two hundred political, opening session at Tunis. body politic of the United governmental, religious and other Two years in the planning, Nations as terrorism. But leaders from around the world the conference was organized Fin an historic step toward moving at the International Conference on behalf of the United Nations beyond the polarization of the on Terrorism: Dimensions, by the Department of Political past, the UN General Assembly, Threats and Counter-Measures, Affairs. DPA, in addition to its in September 2006 adopted jointly organized by the United wide-ranging work on conflict a Global Counter-Terrorism Nations, the Organization of prevention and the assistance Strategy in which all 192 Member the Islamic Conference, and its it provides to committees of States committed for the very Islamic Educational, Scientific and the Security Council related to first time to a joint framework Cultural Organization (ISESCO). terrorism, is an active member for fighting terrorism as well The event, held in Tunis from of the United Nations Counter- as the “conditions conducive” 15-17 November, provided Terrorism Implementation Task to its spread, and all stated an opportunity to spread Force (CTITF). The Task Force unequivocally that terrorism can understanding of, and commitment is chaired by Robert Orr, the never be justified by any cause. to the Strategy. It also represented Assistant Secretary-General for For both governments and the a tangible effort by the United Policy Coordination and Strategic UN Secretariat, the focus has Nations to heed the call within Planning, and comprises some two now shifted to the hard work of the Plan of Action to work more dozen mainly UN entities whose implementing the strategy and its closely with regional organizations activities contribute to the global accompanying Plan of Action. in the fight against terrorism. fight against terrorism.

As part of that effort, Secretary- “The more we bring leaders Converging in Tunis in General Ban Ki-moon traveled to together in an ongoing exchange November were a diverse and influential group of leaders and opinion Secretary- shapers, including heads General Ban of international and Ki-moon in regional organizations, Tunis with parliamentarians, politicians Ekmeleddin Ihsanoglu, and prominent religious Secretary- figures, experts on terrorism General of the and human rights, and Organization representatives of civil society of the Islamic organizations and Muslim Conference communities from the Middle (OIC). East, North Africa, Europe, UN Photo / and South-East Asia. Eskinder Debebe

16 Politically Speaking / Winter 2007-2008 Counter-Terrorism Implementation Task Force “By holding this event in The Counter-Terrorism Implementation Task Force includes representatives from: Muslim country, with the preeminent organizations of • The Counter-Terrorism • The International Maritime Countering Terrorism Executive Directorate (CTED) Organization (IMO) • The United Nations Islamic countries, the UN made • The Department for • The International Monetary Development Program an important statement about Disarmament Affairs (DDA) Fund (IMF) (UNDP) the urgency of forging greater • The Department of • The International Criminal • The United Nations understanding between Muslims Peacekeeping Operations Police Organization Educational, Scientific (DPKO) (INTERPOL) and Cultural Organization and non-Muslims in order to • The Department of Political • The Monitoring Team of the (UNESCO) overcome prevailing stereotypes Affairs (DPA) 1267 Committee • The United Nations and to more correctly focus the • The Department of Public • The Office of the High Interregional Crime and Justice Research Institute fight against terrorism,” said one Information (DPI) Commissioner of Human Rights (OHCHR) (UNICRI) of the conference organizers and • The Department for Safety and Security (DSS) • The Office of Legal Affairs • The United Nations Office moderators, Vladimir Goryayev, (OLA) on Drugs and Crime • The Expert Staff of the 1540 (UNODC) then acting Deputy Director of Committee • The Organization for the Prohibition of Chemical • The World Customs DPA’s Asia and Pacific Division. • The International Atomic Organization (WCO) Energy Agency (IAEA) Weapons (OPCW) • The World Bank The agenda in Tunis spanned a • The International Civil • The Special Rapporteur on range of sensitive issues touched Aviation Organization Promoting and Protection • The World Health (ICAO) of Human Rights While Organization (WHO) on in the Strategy — from examining conditions conducive to (More on the Global Counter-Terrorism Strategy and wide-ranging UN actions to terrorism, to confronting so-called counter terrorism can be found at http://www.un.org/terrorism) “Islamophobia” and the blaming of Islam for terrorism committed in Mohamed El Aziz Ben Achour, straight path to fanaticism, violence its name. the Culture and Preservation of and extremism, attributing their Heritage Minister of Tunisia, said acts to Islam, in no way justifies Keynote speakers included the prevailing view of participants associating this phenomenon with Talbak Nazarov, a former “was that terrorism and extremism the Islamic faith,” Mr. Ben Achour Foreign Affairs minister from constitute a threat to the peace, added. “True Islam is the religion Tajikistan, Adnan Badran, the security and stability of all of moderation and avoidance of former Prime Minister of Jordan, countries and peoples” and that: excess, founded on the values and Walter Schwimmer, the “Terrorism has no justification, no of equality, justice, peace and former Secretary-General of the matter what pretext terrorists may brotherhood.” Council of Europe, who spoke use for their deeds.” on “Challenging Stereotypes and While welcoming the inter-faith dialogue”. Among the Participants also agreed, he Conference as an opportunity many UN delegates in attendance said, that terrorism flourishes to further discussions and were representatives from in environments where there is understanding of the strategy, DPA, UNESCO, UNHCR, the discontent, exclusion, humiliation, Secretary-General Ban Ki-moon International Office on Migration, poverty, political oppression stressed that the heaviest lifting the Alliance for Civilizations, the and human rights abuses, as still lies ahead. Human Rights Council, the UN well as in countries engaged in “Now we must implement the Assistance Mission to Afghanistan, regional conflicts.There was also Strategy in all its dimensions,” he the International Atomic Energy broad agreement on the need said. “By next September, when Agency, and the Counter-Terrorism to counter the phenomenon of the General Assembly meets to Executive Directorate (CTED). Islamophobia, which has been review implementation of the growing in recent years in part The conclusions adhered closely strategy, we must all have concrete because of misinformation and to the broad points of consensus progress to show — Member misperceptions about the religion. adopted in the Global Counter- States, the UN system, and our Terrorism Strategy. In summing up “The emergence of misguided key partners in regional and other the event on behalf of all present, groups that have deviated from the organizations.”

Bulletin of the United Nations Department of Political Affairs 17 ELECTIONS and mediation demand an active presence in the field,” he said.

Among the trends highlighted DPA and Elections: in the report, which is issued 15 Years Later biannually on UN electoral work: • High and Rising Demand for UN assistance. According to calculations, the UN has assisted he United Nations is The Division, currently headed 107 Member States with helping more nations than by Craig Jenness, was established elections over the past 15 years. ever before to strengthen in 1992 as part of a broader In the past two years alone, their democracies restructuring of the Secretariat 43 Member States received Tthrough credible elections, but in which DPA itself was created. support, including Cote d’Ivoire, technical advisers have replaced It has worked since that time the Democratic Republic of blue-vested poll watchers as to ensure both the quality and Congo (DRC), Guinea-Bissau, the standard-bearers of UN consistency of UN electoral Haiti, Iraq, Sierra Leone, Sudan assistance around the world in assistance through a period and Timor-Leste. an era of heightened complexity of increased demand and also and professional demands. This great change in the way the UN • Increasing Complexity. The is among the revealing trends engages with elections around the field of electoral assistance described in a recent report by world. EAD’s “needs assessment is becoming more complex the Secretary-General (A/62/293) missions” form the basis for than ever before, meaning illustrating how UN electoral evaluating and responding to the UN must build up its own assistance has grown and evolved Member State requests, and for expertise. One increasingly during the past 15 years, which fashioning tailor-made assistance common challenge is to ensure is also the period since DPA, while ensuring an effective that Member States have the through its Electoral Assistance division of labor throughout the capacity to manage and sustain Division (EAD), has served as the UN system. In the past two years new technologies which many focal point for electoral assistance alone, more than 600 election are considering adopting, throughout the UN system. advisers from some three dozen including electronic voter countries were drawn from an registration systems. EAD-managed roster of experts • More assistance for local and deployed to staff electoral elections. Such elections are missions or projects. an important opportunity for In presenting the report to the the UN to assist, given that Third Committee of the General local elections can be critical Assembly, the Under-Secretary- for building a broad base for General for Political Affairs, B. democracy. But local elections Lynn Pascoe, described EAD as are also more complex and having the kind of field-oriented costly than presidential and and operational style that DPA parliamentary votes, often as a whole will be more capable diverting resources from these of adopting under the Secretary- national elections. General’s proposals to strengthen • Shift away from Election the Department. “Just as one Observation. Whereas it cannot imagine providing electoral once observed a number of assistance by sitting in an office landmark elections, the United in New York, conflict prevention Nations now rarely fields

18 Politically Speaking / Winter 2007-2008 Partners outside the UN system A woman include regional organizations casts her such as the EU, OAS and OSCE, ballot in Dili during as well as International IDEA the second and IFES. round of the presidential Looking to the future, EAD election in expects an even stronger focus Timor-Leste, on its coordination role. It is May 2007. committed to working with

UN Photo / other Secretariat departments Martine Perret to streamline and revise administrative, procurement and financial procedures in order to ensure the most efficient response. observers of its own, leaving in the field, having spent some The UN electoral assistance this to regional organizations $897 million to assist 40-50 roster is being computerized who are doing so more countries in 2004-2006. UNDP and will soon be integrated into frequently. Most UN assistance has shifted away from an election- the system used for all UN field entails technical advice and specific orientation to a longer- mission recruitment. The Division capacity-building either during term approach of providing has also begun to develop policy an electoral period or as part of assistance over entire election and reference materials related to a longer term effort to develop cycles. This longer term support electoral best practices. sustainable institutions. is important for capacity building and ensuring that the knowledge • Trend toward electoral and resources utilized for an APPEAL FOR CONTRIBUTIONS “certification”.The United election are not simply lost in the Improved donor relations are Nations has been asked in a time before the next election. another important commitment, number of instances, most Electoral assistance is provided as voluntary funding remains a recently in Timor-Leste, to frequently in the post-conflict critical source of financing given certify the results of elections context of peace-keeping opera- the often unpredictable timing — a form of assistance, the tions and special political mis- and duration of electoral requests. Secretary-General suggests sions. Over the past two years, The Secretary-General’s report in his report, that should be for example, EAD helped to includes an appeal for additional examined and reviewed in light formulate UN electoral operations contributions to the near-depleted of the UN experience to date. in DPKO missions in Afghani- United Nations Trust Fund for DPA plays an advisory, stan, the Democratic Republic of Electoral Assistance. coordination and quality-control the Congo, Haiti, Liberia, Sierra Going forward, the goal remains function, with the Under- Leone, Sudan and Timor-Leste. to provide the best and most Secretary-General responsible The historic polls in the DRC were timely assistance possible, but for considering and approving of the largest electoral assistance keeping in mind that even the best requests from Member States. But program ever conducted by the elections from a technical point of as the Secretary-General’s report United Nations. Electoral assis- view can become seriously flawed makes clear, electoral assistance is tance was also a component of unless the political conditions are a shared endeavor involving various special political missions in Iraq, “right” going in. The ultimate test parts of the UN system. Nepal and the occupied Palestin- is not the vote itself, but whether ian territory. The Department works closely, the participants are prepared to for example, with UNDP, which Additional UN system partners accept results and whether peace implements the bulk of the UN’s in this field include OHCHR, and security prevail through the long-term electoral assistance UNOPS and UN Volunteers. transition in government.

Bulletin of the United Nations Department of Political Affairs 19 A “critical Rebuilding Trust Mozambique,” Chissano said. investment” in in Uganda’s Peace “Wherever I happen to be, even traveling in Europe, I’m receiving preventing and Process: information and analysis, and resolving conflicts continued from page 7 sending instructions.” Although the peace process continued from page 3 to meetings with heads of state took important steps forward around the region, making periodic throughout the year, Chissano actively trying to resolve problems visits to New York, and — on conceded that human rights in the world. In the peace and one occasion — traveling to the accountability remained a thorny security area, we have come to Hague to meet with prosecutors issue inside the talks — just as it realize that a stronger and more of the ICC. OCHA as well as has in many other negotiations active political department is UN peacekeeping missions in around the world. As the parties critical to our ability to prevent and both Sudan and the DRC have sought to define exactly how resolve armed conflict,” he said. also provided crucial assistance atrocities would be adjudicated to the envoy, as have Kampala- in the national arena, the United modest investment, based ambassadors from five Nations urged strongly that big payoff African countries (DRC, Kenya, impunity not prevail. Ensuring Mozambique, South Africa, Pascoe, who since becoming there will be peace with justice Tanzania) who have agreed to serve head of the Department in in Northern Uganda is “a as a support group to the talks. March 2007 has spearheaded the complicated issue, delicate, development of the current reform “This is critical because I but not impossible”, proposals at the request of the don’t live in Uganda, I live in said Chissano. Secretary-General, referred to DPA as “the most under-resourced organization” he had seen in his Being A Catalyst Does he worry about the sheer nearly four decades of experience responsibility of the job in which in international diplomacy. That Against Genocide: success could go unnoticed and includes ambassadorial postings to failure could imply genocide large missions oversees and service continued from page 9 taking place during his watch? as chief of a regional bureau in his assurances that he will be Not according to Deng. own country’s foreign service. willing to speak out publicly “If one is to assume this Pascoe estimates the cost of when necessary. “When I had the mandate is going to be effective the proposed changes to DPA mandate for IDPs I didn’t visit enough to stop genocide and amount to less than one percent of countries that had crises and come mass atrocities the world over the expense of deploying a hybrid back and publish glowing reports then I am already failing before peacekeeping force for Darfur about them,” he notes. I start, because one cannot — exactly the kind of conflict that presumptuously claim to do that,” would ideally have been avoided SEEKING FUNDING he says. “All that I can do is to be with timely preventive actions. Deng intends to seek additional a catalyst, to contribute toward A modest investment in additional funding in order to expand beyond raising global awareness and the UN capacity in this area could his current bare-bones staff, need for a timely and collective have a potentially huge payoff, which consists of an assistant response to prevent genocide and he says. and two officers on loan from mass atrocities. This is something “One success,” Pascoe told the the Department of Political that all self-respecting and committee, “can pay the bill ten or Affairs and the Office of the High legitimate governments cannot a hundred times over.” Commissioner for Human Rights. but support.”

20 Politically Speaking / Winter 2007-2008 From Annapolis Under-Secretary-General for sharply during the second half Political Affairs, B. Lynn Pascoe of the year after Hamas’ armed Forward hailed the understandings takeover of Palestinian institutions continued from page 5 reached there between Israeli was followed by a stricter closure Prime Minister Ehud Olmert and regime of crossing points into the the appointment. The Secretary- Palestinian President Mahmoud Gaza Strip. While acknowledging General also attended a flurry of Abbas, calling them “the most Israeli security concerns and calling related meeting in Paris in mid- significant breakthrough in the for an immediate end to rocket fire December: a donors conference peace process in several years.” But on Israel from Gaza, the Secretary- to mobilize funds for Palestinian Pascoe also reported on continuing General was in the lead in calling reform efforts; a Quartet meeting Israeli-Palestinian and Intra- for the reopening of crossing to strategize post-Annapolis; and a Palestinian violence, cautioning points and in asking the Israeli follow-up dinner with Arab League Council Members in his assessment Government to avoid punitive representatives. that while Annapolis has given measures — such as the limitation But in a year that saw much reason to be hopeful, “we of fuel and electricity supplies reinvigorated diplomacy — first must not close our eyes to the — that would harm the well-being through the reaffirmation of the difficulties on the ground.“ of the entire population of the area. Arab Peace Initiative, and later “The people of Gaza have at Annapolis — political ruptures CONCERN ABOUT GAZA suffered more than anyone and violence on the ground International concern has focused else from conflict and poverty. provided a constant reminder of on the humanitarian situation We must reach out to them,” both the heavy suffering inflicted in the Gaza Strip, where a the Secretary-General said by the conflict and the difficulties large majority of the population at Annapolis. He also urged that persist in turning peace is dependent on the work of continued political efforts hopes into reality. UNRWA, the World Food Program to restore Palestinian unity, Briefing the Security Council and other agencies delivering calling this “vital” for any peace three days after Annapolis, the assistance. Conditions deteriorated agreement to last.

Staff News to 2007, with the exception of ment and Research Centre (IDRC), Recent senior appointments a posting in Port-au-Prince from and the Canadian International illustrate DPA’s commitment to 2005-2006 as Chief of the OAS Development Agency (CIDA). professional excellence, diversity, Electoral Support Program for Haiti. and staff mobility. She led and participated in numer- Lisa Buttenheim of the United ous electoral observer missions States was appointed Director of Elizabeth Spehar of Canada joined and high-level political missions on the Asia and Pacific Division, effec- DPA in September as Director of behalf of the organization. Prior to tive in January 2008. Prior to her the Americas and Europe Division joining the OAS, Ms. Spehar headed appointment, Ms. Buttenheim was after more than a dozen years as a the Americas Programme of the Director of the Asia and Middle senior official of the Organization International Centre for Human East Division in the Office of Oper- of American States (OAS) working Rights and Democratic Develop- ations of the Department of Peace- on issues of democracy, elections, ment (ICHRDD) in Montreal, and keeping Operations. She headed political parties and conflict resolu- worked previously on democracy the United Nations Office in Bel- tion. Ms. Spehar was the head of and development issues for institu- grade during 2003-2004, served as the OAS Secretariat’s democracy tions including Match International, Chief of Staff to the Special Repre- promotion departments from 1995 UNDP, the International Develop- continued on next page

Bulletin of the United Nations Department of Political Affairs 21 Activities and Events In August, USG Pascoe traveled to In December, he traveled to Asia, holding talks with government Ashgabat, Turkmenistan to The Under-Secretary-General officials inBeijing , representing represent the Secretary-General at for Political Affairs, B. Lynn the Secretary-General in Bishkek, the opening of the United Nations Pascoe carried out two missions Kyrgyzstan, at the Seventh Summit Regional Center for Preventive to the Horn of Africa for talks on of Heads of States of the Shanghai Diplomacy in Central Asia, and peace and stabilization in Somalia Cooperation Organization, and then accompanied him at meetings and also on addressing regional then visiting Nepal to assess on the Middle East in Paris and a sources of tensions including the state of the peace process in visit to the site of the bombing of relations between Ethiopia and meetings with national leaders and UN offices in Algiers. Eritrea. During his first visit, the United Nations Mission in in June, Pascoe traveled to the Assistant Secretary-General for Nepal (UNMIN). Somali capital of Mogadishu Political Affairs Angela Kane ac- for discussions with Somalia’s USG Pascoe represented the companied the Secretary-General President, Prime Minister and United Nations at a 1 November to Madrid in June and then to Lis- other senior officials on national meeting of Middle East Quartet bon, Brussels and London in July. reconciliation efforts. envoys in Jerusalem, and then She represented and delivered mes- accompanied the Secretary- sages on his behalf on 30 August, General to Istanbul for a to the International Conference of Ministerial meeting between Iraq Civil Society in Support of Israel- and its neighbors. Later the same Palestinian Peace in Brussels, and month, USG Pascoe was with on 2 October, to the 17th Meet- the Secretary-General in Tunis, ing of the Council of Ministers of at a UN-sponsored conference Foreign Affairs of the Black Sea on terrorism, followed by a two- Economic Cooperation in Ankara. day visit to Lebanon and the ASG Kane was in South America Annapolis conference on Middle with the Secretary-General from East peace. 7 to 13 November, traveling to USG Pascoe arriving in Mogadishu Buenos Aires, Santiago for the in June 2007.

Staff news and with the UN Truce Supervision Office for Guinea-Bissau (UNOG- (continued from p. 21) Organization (UNTSO) in Jerusalem BIS). From 2000-2004 he headed sentative of the Secretary-General from 1983-1986. the Conventional Arms Branch of in Kosovo during 2001-2002, and the former Department for Dis- as Director and Senior Adviser from Joao Bernardo Honwana of armament Affairs. Honwana also 1999-2001 to the UN Office of the Mozambique joined DPA in brings a background in conflict Special Envoys for the Balkans. November as Director of the Africa analysis, prevention and trans- From 1989 to 1997, Ms. Buttenheim I Division, following senior assign- formation in Southern Africa and served in the Executive Office of ments in UN peacekeeping and other regions of the continent the Secretary-General in New York, peace-building missions, as well from his experience as a Project before she was assigned as Senior as in the area of disarmament. His Coordinator at the Centre for Con- Political Adviser to the Director- previous position was as Chief of flict Resolution at the University General of the UN Office in Geneva Staff to United Nations Mission of Cape Town, from 1993-1999. In in 1997. Her early years in the UN in Sudan (UNMIS). Between 2004- his home country, Honwana served were spent working on Middle East 2006 he was the Representative of the Armed Forces in various capaci- issues in the Office of the Under- the Secretary-General for Guinea- ties, including as Commander of Secretaries-General for Special Bissau and head of the United the Air Force and Air Defence Political Affairs, from 1986-1988, Nations Peace-building Support from 1987-1993.

22 Politically Speaking / Winter 2007-2008 rity Council statement expressed to Switzerland in October for appreciation for his role in facilitat- consultations on the Great Lakes ing meetings between the Govern- region organized by the Swiss ments of the DRC and Rwanda Centre for Global Dialogue. which led to the signing of a joint UN-AU Cooperation. A DPA communiqué on a common ap- team traveled to Addis Ababa in proach to end the threat posed by November for a meeting, opened armed groups to peace and stabil- by the UN Deputy Secretary- ity in both countries and the entire General, on UN cooperation Great Lakes Region. ASC Angela Kane greets Chilean with the African Union. The President Michelle Bachelet during Previously, ASG Menkerios mission assessed implementation the Secretary-General’s visit to Latin America, November 2007. accompanied the Deputy of the landmark 10-year UN-AU Secretary-General to the African Capacity Building programme Ibero-American Summit and to Sao Union Summit in Accra, in July adopted in 2006, and met with Paulo. The delegation also visited 2007. He represented the United AU Chairperson Konare and Antarctica in order to see firsthand Nations in a Ministerial meeting senior officials to discuss how the effects of global warming. of the International Contact DPA, through its Liaison Office ASG Kane also represented the Group on Guinea Bissau in New in Addis (UNLO), could further Secretary-General at the Third York in September and traveled help the African Union to build International Conference on capacity in areas including Colombia, held in Bogota from mediation, good offices, and 29 November to 1 December. electoral assistance. A follow- up visit in December focused Assistant Secretary-General for on UN support to the recently Political Affairs Haile Menkerios established Panel of the Wise. visited the Democratic Republic of the Congo and neighboring coun- ASG Haile Menkerios (center) tries in November and December, witnessing commitments by Rwanda amid escalating tensions in the and the DRC to work together to eastern part of the DRC. A Secu- combat armed groups.

Niger Delta. DPA took part in an Tadjoudine Ali-Diabacte of Togo in Chad, Madagascar, Guinea, interdepartmental mission to Abuja joined DPA in December as Deputy Comoros, and Cote D’Ivoire. in October in response to a request Director of the Electoral Assistance by Nigerian President Umaru Division. He had been serving since In November, the Secretary-General Yar’Adua for UN support in sta- October 2003 as the Chief Electoral appointed longtime DPA official bilizing the volatile Niger Delta Officer for the UN peacekeeping Vladimir Goryayev of the Russian region. While emphasizing that the mission in the Democratic Republic Federation as Executive Director crisis was domestic in nature and of the Congo (MONUC), where he of the Vienna-based office of the its response would be nationally- led UN assistance to elections that United Nations Register of Dam- ­driven, the Nigerian government were an historic milestone for the age caused by the Construction of and the UN agreed to work togeth- country and the largest and most the Wall in the occupied Palestinian er on disarmament, demobilization complex electoral process ever con- territory. Mr. Goryayev joined DPA and reintegration of armed militias, ducted with UN support. Mr. Dia- in 1988 after having worked in the addressing youth unemployment, bacte was a Member of the Nation- Foreign Ministry in Moscow. At the promoting a culture of peace, al Electoral Commission of Togo time of his appointment to the UN building state and local govern- from 1993-2000. Prior to joining Register of Damage, he was serving ment capacity and improving basic MONUC, he served as chief techni- as Director, ad interim, for the Asia service delivery. cal adviser in UN electoral projects and the Pacific Division of DPA.

Bulletin of the United Nations Department of Political Affairs 23 Peacebuilding in the Central information, and to discuss joint keeping Operations and Field Sup- African Republic and Guinea. approaches on situations including port, a set of Joint Guidelines on The Department of Political Af- Myanmar, Sri Lanka, Somalia, the Enhancing the Role of Women in fairs teamed up with BONUCA, Great Lakes region, Chad, Guinea Post-Conflict Electoral Processes. UNOWA and UNDP to seek Bissau and West Africa. support from the United Nations Security Council Affairs. Five Electoral Assistance. Among Peace-building Fund to finance newly-elected and fifteen incum- it recent activities, the Electoral national reconciliation projects bent members of the Security Assistance Division provided as- in the Central African Republic Council attended the fifth annual sistance to the conduct in August “Hitting the Ground Running” and Guinea. The Fund approved 2007 of peaceful and credible workshop in Tarrytown, New York the two projects, worth close to presidential and parliamentary elec- on 15-16 November, convened $1 million each, whose imple- tions in Sierra Leone. The division by the Government of Finland mentation was expected to begin also continued its assistance to and conducted jointly by DPA’s before the end of the year. electoral operations in Nepal, Iraq, Security Council Affairs Division the Democratic Republic of the Guatemala. The Secretary- and Columbia University. The Congo, Kenya and Cote D’Ivoire. General’s designee to head the workshop provided an opportunity EAD staff and experts also took International Commission Against for the newly-elected members part in missions Guinea-Bissau, to learn and exchange views with Impunity in Guatemala (CICIG), Mozambique, Sierra Leone, Togo, incumbent members on work- Carlos Castresana Fernández of ­Turkmenistan and Pakistan. ing methods of the Council and Spain, made his first official visit EAD Director Craig Jenness led to discuss trends in the Council’s to the country as Commissioner in a mission to Kosovo to assess the agenda and workload. September, accompanied by senior pre-electoral environment ahead staff of DPA’s Americas and Europe In keeping with its mandate to of the elections held there in Division. Under an agreement be- support the Committee on the November 2007, and also visited tween the United Nations and the Exercise of the Inalienable Afghanistan. For the second Government of Guatemala, CICIG Rights of the Palestinian time in three years, staff is expected to be operational by People, DPA’s Division for of EAD also traveled to early 2008 with a two-year mandate Palestinian Rights assisted the South Pacific atoll to help investigate and prosecute il- in the holding of a number of Tokelau in October to legal armed groups and clandestine of activities sponsored by monitor a referendum security organizations. the Committee including: on self-government that the Special meeting held resulted without change UN-EU Desk-to-Desk Dialogue. in June in New York marking in the status of the territory. The sixth annual session of the 40 years of occupation by Israel Desk-to-Desk Dialogue on Conflict In keeping with DPA’s attention of the Palestinian Territory; the Prevention, between the UN and to the mainstreaming of gender United Nations International the European Commission and and the implementation of Security Conference of Civil Society in Council Secretariats, took place Council Resolution 1525 (2000), Support of Israeli-Palestinian from 12 to 13 November, providing EAD also developed and published, Peace, held in August in Brussels; an opportunity exchange views and jointly with Departments of Peace- and a special meeting on 29 Nov­ ember in New York marking the International Day of Solidarity with the Palestinian People. The Editorial contact: Division also continued its annual Jared Kotler Public Information and External Relations training program for staff of the Dept. of Political Affairs Palestinian Authority on the work Department of Political Affairs Tel: 1-917-367-5264 of the United Nations, hosting two Fax: 1-212-963-5065 PA officials between September United Nations Email: [email protected] and December. New York, NY 10017 Designed by Graphic Design Unit, DPI

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