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Archived Content Contenu Archivé Archived Content Information identified as archived on the Web is for reference, research or recordkeeping purposes. It has not been altered or updated after the date of archiving. Web pages that are archived on the Web are not subject to the Government of Canada Web Standards. As per the Communications Policy of the Government of Canada, you can request alternate formats by contacting us. Contenu archivé L'information archivée sur le Web est disponible à des fins de consultation, de recherche ou de tenue de dossiers seulement. Elle n’a été ni modifiée ni mise à jour depuis sa date d’archivage. Les pages archivées sur le Web ne sont pas assujetties aux normes Web du gouvernement du Canada. Conformément à la Politique de communication du gouvernement du Canada, vous pouvez obtenir cette information dans un format de rechange en communiquant avec nous. The Future of Peace Support Operations Paper Submitted to the ISROP Programme at the Department of Foreign Affairs, Canada March 2003 By Jane Boulden Introduction The purpose of this paper is to examine the evolution of peace support operations since the end of the Cold War and on that basis to discuss the possible form future operations might take and the context in which they might be carried out. To do this the paper has five sections. The first section provides background by briefly describing the provisions for peace support in the United Nations Charter, and the nature of the Cold War experience in peace support. In the second section the paper outlines the evolving nature of peace support operations by first tracing the changing nature of peace support operations in the post-Cold War era, and then discussing the accompanying changes in the approach to peace support – the way in which peace support was pursued. The nature and pursuit of peace support is inextricably connected to the international context that generates it. The third section, therefore, examines the political changes that have occurred in the international system and the related changes in the perceptions of threats to international security and the priorities given to those threats. In order to provide a base from which options for future Canadian policy can be discussed the fourth section briefly details Canadian policy on peace support. The fifth and final section of the paper draws on the preceding analysis to discuss what the future might hold for peace support and what policy options are available to Canada in that future. It is difficult to examine the evolution of post-Cold War peace support operations without telling full and detailed stories of the decisions and operations in question. As a result, in some instances the implications of important events are discussed but their context is not explained in full. In these cases footnotes with references providing further information are provided. For the purposes of this paper analytical divisions are established with respect to time lines and issue areas. These are rough delineations with considerable overlap. They are not meant to represent hard and fast categorizations rather they are general distinctions used to aid discussion and analysis. What is meant by peace support operations? The expansion of the United Nations’ approach to international peace and security beyond traditional peacekeeping brought with it a debate on terms and definitions. The phrase “peace support operations” is indicative of that expanded approach by implying that UN operations in pursuit of international peace and security may include operations that precede and follow conflict as well as work to “keep” peace in conflict situations. Analysts and policy makers use a variety of terms in discussing operations which are carried out in pursuit of international peace and security objectives. For its part the United Nations has recently taken to using the all-encompassing phrase “peace operations”. For the purposes of this paper “peace support operations” are taken to include all operations undertaken in pursuit of the international peace and security objectives established by the United Nations Charter short of full-scale enforcement operations of the kind provided for in Article 42 of the Charter. It is a fundamental assumption of this paper that the United Nations Charter should remain the foundation of international efforts to deal with international peace and security issues and that Canadian policy is and will be based on this assumption. This assumption is open to debate and challenge. The very fact that this is so is indicative of the extent and nature of the changes that have occurred in the post-Cold War era. In its origins this paper was intended to provide an overview of peace support operations in the post-Cold War era that focused on the nature and scope of peace support and whose conclusions were an extension of that analysis, providing a look into the future which focused on ways in which peace support might develop on that basis. The events relating to the war against Iraq, and the accompanying impact of those events on the United Nations have raised questions about the very future of peace support. As those events are ongoing while this paper is being completed it is as yet too early to provide the kind of detailed analysis about peace support that was originally envisaged. Instead the conclusions deal with the much broader preliminary questions relating to the nature of the United Nations’ future role in peace support and the extent to which it will have a role to play.1 This is not to suggest that there is a level of disconnect between the post-Cold War experience with peace support and the recent decisions about how to deal with Iraq. If anything the discussion and analysis that follows makes the point that both the importance attached to Security Council authorization for action on Iraq, and the decision to use force against Iraq without a direct Security Council authorization for such action, are not a bolt from the blue but a product of the international community’s experience with peace support in the post-Cold War period. I. Background The primary purpose of the United Nations, as delineated in Article 1 of the charter, is to maintain international peace and security. To that end, Article 1 of the Charter states that the United Nations shall “take effective collective measures for the prevention and removal of threats to the peace, and for the suppression of acts of aggression… and to bring about by peaceful means, … adjustment or settlement of international disputes or situations which might lead to a breach of the peace.” In Article 24 the Security Council 1 For example there is an inherent argument in this paper about the desirability of developing an ability to link the nature of conflict responses to the nature of the conflict in question in carrying out peace support. But the possibility of pursuing this is limited by the decreased likelihood that that level of fine tuning is going to be available in the near and medium term decision-making about the future of peace support. is given the primary responsibility for fulfilling the Organization’s primary goal – the maintenance of international peace and security. Reflecting this framework of prevention and action, Chapters VI and VII of the Charter establish the ways in which the Security Council will pursue the peaceful settlement of disputes and actions it will take to deal with threats to or breaches of the peace.2 Under Chapter VI states that are parties to any dispute likely to endanger international peace and security are required to “seek a solution by negotiation, enquiry, mediation, conciliation, arbitration, judicial settlement, resort to regional agencies or arrangements, or other peaceful means of their own choice (Article 33). The Security Council can call on states to undertake these actions, can investigate any dispute, or, at any stage, may “recommend appropriate procedures or methods of adjustment” (Article 36). If states fail to settle a dispute by the various means outlined, they are to refer the dispute to the Security Council. The Security Council will decide whether to recommend other procedures or methods, or to recommend terms of settlement. In contrast to Chapter VI, which deals with situations that may lead to a breach or threat to international peace and security, Chapter VII deals with the existence of such threats, breaches of the peace or acts of aggression. Under this Chapter, the Security Council is given the power to determine the existence of a threat to or a breach of international peace and security (Article 39). Once such a determination is made, the Security Council may take or call for provisional measures in order to “prevent an aggravation of the situation,” (Article 40) and has at its disposal various options short of armed force to use in response to a situation (Article 41). In Article 42, Chapter VII gives the Security Council the power to use force if necessary to deal with international peace and security problems. To support the Security Council in its work Chapter VII also provides for member states to supply armed forces to the Council, in accordance with agreements made between the Council and member states (Article 43). This whole structure was then to be supported by a Military Staff Committee, established in Article 47, to assist the Security Council in carrying out its international peace and security tasks.3 The framers of the Charter, therefore, sought to establish a system that would be comprehensive in both its scope for dealing with situations before they become conflicts and its ability to respond when conflict is imminent or breaks out.4 Almost immediately, however, their plans were waylaid by the advent of the cold War.
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