The Technocracy Trap Innovation or Technocracy in International Mediation?

In: perspektive mediation. Beiträge zur Konfliktkultur 3 (2017): 153-158. Wien: Verlag Österreich GmbH. © Copyright Verlag Österreich

Sidonia Gabriel, Head of the Policy & Platform Program and KOFF Project Director at swisspeace

Abstract: If we understand innovation as a new idea to improve a given situation, mediation pro- cesses are per se oriented towards an innovative outcome. However, international actors often limit innovation in mediation processes due to their technocratic process understanding. The author ex- plains this phenomenon and makes a few recommendations for third parties working in the field of international peace mediation.

Keywords: Technocratic understanding, innovation and technocracy, decision-making power in me- diation processes, role of third parties in mediation processes, international actors.

The Issue place during or after armed conflict, like for example in Syria or Libya, but also in often forgotten conflicts such as in the Western Sa- Innovation in mediation processes lies in the hara. The question is whether the peacebuild- reflection about a new and improved way of ing community needs new approaches to me- dealing with a conflict between two or more diation in order to get better results, or conflict parties. Mediation could thus lead to whether international mediators must let the a wider political and societal process from innovation inherent in mediation processes, which all parties could benefit and that would happen. ideally bring an evolutionary step towards In this article, I explore the second argument. creating peace in a conflict-ridden society. I link the limited innovation in international The international peacebuilding community mediation processes to a technocratic1 un- often complains about the inefficiency of in- derstanding by intervening third parties and ternational mediation processes that take

1 Technocracy relates to decision-making based on ex- decision-making and bureaucratic governance as it ba- pert or technological knowledge (check also: www.ency- ses part of its legitimacy on expert knowledge. (Weber, clopedia.com). Institutions in development aid and Max (1956), Wirtschaft und Gesellschaft, Tübingen, S. peacebuilding maintain a selected number of experts and 129.) consultants to support and legitimize their decision- Bureaucracy refers to a form of exertion of governance making. In this article, I make a link between technocratic that is upheld by an administration with its rules and pro- cedures; it is based on de-personalization, hierarchical 1

organizations. How does this understanding Relationships influence mediation processes and how might One of the most transformative powers lies in it hinder innovative solutions to a conflict?2 the person-to-person dimension of mediation Firstly, I explain what aspects of mediation processes. Eventually the conflict parties processes could trigger innovation. Secondly, need to meet. Often, in such processes, par- I refer to an example of bureaucratic influ- ticipants are asked to put themselves in the ence on a mediation process in Mali. I then shoes of the other. In many cases this is an analyze this impact and close with a few rec- eye-opening experience that triggers the will- ommendations. ingness to understand the other’s actions. Mediators then hope that this new relation Aspects of Innovation in Mediation and understanding effects a new positioning Processes of the conflict parties that opens them up for a joint discussion about alternative solutions to their conflicts.3 Innovation stands for a new idea that helps to improve or change a certain condition or situ- ation. Elements of transformation (change) Time and of something new are crucial to innova- The time factor is of immense importance to tion. Conflict resolution or, more narrowly, any mediation process. If meetings take place mediation, aims at improving the situation of in a hurry because of political pressure, and the conflict parties by tackling their conflict participants are not ready, the relationship through a process of listening, joint discus- dimension will not be ripe for creating the sion and joint search for alternatives. necessary trust. The process then becomes Whether finally the solution found is innova- more of a window-dressing exercise for inter- tive or not is not a focus of our concern. How- national media rather than serving the ulti- ever, the aspiration of coming up with some- mate aim of finding a solution to a conflict. thing new that leads to a condition of coexist- Mediators also speak of the “ripeness” of a ence between the parties is inherent in any process 4 . Mediators also need to be ex- process of mediation. tremely patient and stay the course through Some aspects of mediation processes that “pyjamas sessions”, as Julian Hottinger, an can support innovative solutions are the fol- experienced international mediator, once lowing: called lengthy night sessions. For the parties to become more flexible and open concerning their previously fixed positions and gaining

order, discipline, predictability and continuity and oper- cies. (Hagmann, Tobias, Goetschel, Laurent (2009); Civil- ated by officers who follow respective tasks and compe- ian Peacebuilding: Peace by bureaucratic means? Con- tences. (Weber, Max Wirtschaft und Gesellschaft: Grund- flict, Security and Development, 9:1, 55-73., p. 59.) riss der verstehenden Soziologie, 5. Rev. Auflage, Tübin- 3 Mason, Simon (2007); Mediation and Facilitation in gen 1980, p. 126). Peace Processes. ISN ETH Zürich, p. 7. 2 After 1989, many bi- and multilateral organizations 4 Zartman, William I (2001); The Timing of Peace Initia- started to engage in peacebuilding activities. Since then, tives: Hurting Stalemates and Ripe Moments. The Global peace researchers observe a similar form of depolitiza- Review of Ethnopolitics, Vol. 1, No. 1, September 2001, p. tion and bureaucratization of peacebuilding like in the 8-18. “Parties resolve their conflict only when they are field of development aid. “Peacebuilding not only pene- ready to do so—when alternative, usually unilateral trated the policy agenda of major diplomatic and aid or- means of achieving a satisfactory result are blocked and ganizations, it also materialized in new funding schemes the parties feel that they are in an uncomfortable and and administrative units.” Peacebuilding became in- costly predicament. At that ripe moment, they grab on to creasingly implemented through administrative proposals that usually have been in the air for a long time branches and mainstreamed through development agen- and that only now appear attractive.” (Zartman 2011, p. 8)

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space for new ideas, requires trust that is only The mediation process is ideally concerned built over time. with debating the handling of the common good in the interest of everyone at the table. Thinking Outside of Conventional Ideas and The result of the process (the innovation) Tracks must therefore lie in the political sphere and The confidentiality of mediation processes as must be feasible and doable. A technical so- well as the trust established and the willing- lution will not satisfy the conflict parties and ness or pressure to find a solution ideally the populations affected by the conflict. stimulates conflict parties to think and dis- cuss outside the box, meaning outside of cur- An Example: Peace Mediation in Mali rent political, economic, social and cultural structures. The mediator’s task is to facilitate The aspects above describe an ideal media- this discussion and sometimes to distill new tion process that rarely plays out in reality. In emerging ideas. This is a crucial phase in a the following I describe a recently observed mediation process where innovation can take example of an international mediation pro- place if the conditions are given. Conditions cess: are trust, space, time/ripeness and openness Since the 1960ies ethnic groups in the North of the parties and the mediators, as well as of Mali have claimed independence from the courage to bring new approaches and per- Malian state that in their eyes neglected their sonal ideas to the table. needs over years: development, education, infrastructure, participation in political deci- Openness and unpredictability of the process sion making and good governance were just a International mediation is always a process few of their claims. Armed conflict erupted al- between different individuals and groups. The most cyclically every 10 years, the last time in result of this process is not predictable and 2012. In 2015, once more a peace agreement the entire process is subject to various dy- was signed. It contains a chapter on the de- namics: it can take a different pace at certain velopment of the North, as one of the priori- moments in time; it can be geared by other ties, to build lasting peace and trust between and changing alliances between participants the independent movements, movements and unforeseen events. Such processes are loyal to the government and the Government characterized by unpredictability, subjective of Mali. The peace agreement does not spell judgements of the participants, spontaneous out exactly how development measures decision-making, instant reactions, emo- should look like; but it stipulates that they will tional agitation, personal involvement and be assessed and further negotiated after the formal as well as informal power dynamics. signature of the document. It must to be noted that the mediation pro- International mediation processes are politi- cess was guided by a mediation team and ac- cal companied by various bilateral and multilat- eral actors. Each of these different actors The nature of international mediation pro- were looking for their role to play. Before the cesses is political. Often armed conflicts have negotiation of the development needs of the broken out because of discriminatory behav- North one actor was selected by the mediator ior of one group against the other, because of exclusionary structures of (state) institu- tions, because of unequal access to basic needs and goods such as health care, educa- tion, land ownership, and due to exclusion from political decision-making processes etc.

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and the conflict parties according to a set bu- What happened next during the meeting was reaucratic procedure5 to conduct a needs as- unexpected: The conflict parties, particularly sessment study. Selection criteria for the ac- the concerned ones from the North, were dis- tor, i.e. the organization, were amongst other: appointed by the study despite the fact it clearly showed the need for infrastructural  It had already undertaken similar needs measures in their region. They criticized that assessments in other countries and over the past twenty years of several peace thus had a proven and standardized processes, many of these studies have been procedure and methodology.  It had the necessary qualifications, ex- conducted but they have never been imple- pert knowledge and experts (in terms of mented. They also explained that they would human resources) to fulfill the task. rather prefer smaller financial sums but more  It had the necessary credibility and commitment by the national and international weight amongst the different actors that legitimized the results of this actor more partners. Another criticism referred to the than of others. methodology: They were upset that the imple-  It was able to conduct the study in a menting organization of the study did not short period of time. Time was rather make the effort to visit at least some of the limited as the results were supposed to be presented at a donor conference. areas outside of the administrative centers to talk to the population. They added that they The results of the study conducted were then would rather trust a study that was based on presented to a small but representative com- a small number of “real” interviews that on mittee of the conflict parties as well as to the statistically valid numbers of anonymous in- mediation team. The presentation referred terviewees. They also mentioned that the first to the methodological approach that was study would not have the necessary legiti- based on a quantitative survey. The repre- macy in the eyes of the local population be- sentatives of the implementing organization cause no dialogue was possible with the au- demonstrated and confirmed that the data thors of the study. To accommodate these collected were valid and representative for concerns, the mediators asked for a feedback the entire population of the surveyed area. loop in written form as well as face-to-face at This despite of the fact that they have not least between the authors and the represent- been able to visit the areas in question due to atives of the conflict parties present at the the sensitive security situation. Interviews meeting. For the conflict parties the addi- have been conducted by phone and focus tional meeting was a modest but important group discussions held in the few administra- compensation for their initial disappoint- tive centers of this vast region. The results ment. were presented in the form of sophisticated After the said feedback loops and political tables that showed numbers and figures of pressure from the different partners in the water wells, school buildings, and health cen- process, the conflict parties accepted the re- ters needed in each location. Finally, the fi- sults of the study. However, the unease re- nancial volume of the assessed needs was es- mained. timated quite high. Funding was supposed to This example shows that the question of the be committed by the Malian state with the development of the North was a highly politi- support from international donors as soon as cal issue for the conflict parties but it has the priorities were agreed between the par- been tackled with a technocratic approach by ties. the implementing organization of the study. The clash of these different understandings

5 An international call for tender has been issued and the study was conducted by consultants hired by the se- lected organization.

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and approaches in mediation processes and numbers and figures on the table. This didn’t the resultant misunderstandings that could allow for a deeper recognition of the realities emerge from this hampers innovation and of the conflict parties. creativity in the process. The Authority of Technocratic Knowledge in Meeting the Challenges the Mediation Process The study, validated in a quantitative meth- In this section I link the Mali example to the odology and thus incontestable also by non- elements of innovation mentioned above: re- scientists, established an authority in the lationships, time, thinking outside of conven- mediation process that left the conflict par- tional ideas and tracks, openness and unpre- ties with the feeling that their knowledge was dictability of the process and the political na- of lower value compared to the data gathered ture of the process. by the experts. Consequently, they felt rather powerless. The needs assessment was of po- De-personalization as a Challenge in a Medi- litical value for them as they represented dif- ation Process ferent groups or constituencies: therefore, one thing was to know the needs for each lo- At the level of relationships, the conflict par- cation; but the other thing was to participate ties felt deceived because the consultants in the decision-making about the priorities. who wrote the study did not meet with them This would have been the political discussion and thus a personal recognition of their situ- they expected. However, the study estab- ation was missing. Instead of meetings, the lished a reality based on technocratic experts conducted anonymous phone inter- knowledge that made the debate futile. The views and a few focus group discussions. technical logic stood in opposition to the po- Politically, personal meetings between the litical logic. This lead to a blockage of the pro- authors and the population would have been cess and the parties lost – at least at a certain very important for the conflict parties. It moment – trust in it. would have given them more weight and cred- According to Hannah Arendt, social (or infra- ibility in the process. The idea that a needs structural) issues are often tackled as non- assessment had been produced without go- political and respectively they are treated ing to see the area in question was inconceiv- separately: The counting of missing water able to them. In their understanding numbers wells is a social or infrastructural issue; the and figures could have been invented, con- right of a population to have access to water trary to the observable hard facts of life that is a political question. In that sense, techno- one encounters in a remote household in the cratic expertise escapes the democratic con- desert. In other words, for them it was not an trol of the majority of a population.6 This goes expert’s long-distance interpretation of data against the aim of a meditation process which that counted but a face-to-face meeting with should encourage participation of those pre- the population needed to understand local re- sent and of those represented at the table. alities. At the same time, the study indeed provided A similar thing happened in the mediation precious data and a comprehensive overview process: Changing experts who presented the of the needs. It was therefore important to study did not install trust in the conflict par- make use of it. However, in order to foster in- ties. They were unable to enter into what they novation, it would have been excellent to de- understood would have been a real conversa- clare the study as a starting point open for tion. The discussion centered around the

6 Becker, Michael (2013; Die Eigensinnigkeit des Politi- Macht und Herrschaft, Imbusch, Peter (Hrsg) 2013; schen – Hannah Arendt und Jürgen Habermas über Macht und Herrschaft, S. 217-246. p. 228-229.

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discussion and verification by the local popu- lation. A facilitated process that would have Conclusions brought the data of the experts and the expe- rience of the population together to find fea- sible ideas could have launched a meaningful It is easy to criticize very messy and chaotic process for all. By mixing the expert mediation processes from the outside. How- knowledge and the practical knowledge, the ever, this is not the only case where we can thinking outside of conventional boxes could observe the trade-off between the techno- have been worth a try. This would have called cratic and the political dimension. I would ar- for an excellent facilitation and much more gue that this often blocks international medi- time that was not available due to an already ation processes as much as the lack of politi- scheduled international donor conference. cal will to make progress. Both, the techno- cratic and the political dimension have their value and place in international mediation Technocratic Knowledge Might Shortcut Par- processes. However, they should be comple- ticipatory Processes mentary. To maintain the innovative potential Another issue concerned the unpredictability of of mediation, mediators need to be very vigi- the process: Bureaucratic institutions aim for predictability. They rely on administrative proce- lant and firm regarding the basic principles of dures, budgets, rules and regulations that are mediation as described above. They could not flexible regarding their service provision and openly prepare the parties involved for this performance. The needs assessment study in- dilemma7. Technocratic knowledge can sup- tended to calculate and to determine the needs port mediation processes but it is not the es- in the North of Mali based on quantitative measures and scientific criteria. However, an sence. The conflict parties do not need to ac- open and political debate about the same sub- cept or reject a scientific study but they need ject would probably have come up with other, to come up with an agreement on the use of even changing results and decisions. How to scarce resources that goes beyond the ac- overcome the dilemma between the institutional need for predictability and the required open- ceptance of a document. Sometimes, political ness for the mediation process? The study as compromise stands in contrast to techno- such was not a problem in the process, as it was cratic evidence. A politically sustainable so- part of the peace agreement and thus accepted lution has only a chance if the solution is sup- by all parties involved. The problem was the ported by and adapted to a wide spectrum of handling of the results of the study in the pro- cess: a) the top down authority that techno- the population. cratic evidence brought into the process; b) the attempt to determine the needs before the par- References ties and the population got involved; and c) the subsequent justification of the attempt to shortcut the political and participatory debate. Becker, Michael (2013): Die Eigensinnigkeit des These factors contributed to a closure of the de- Politischen – Hannah Arendt und Jürgen Haber- bate. The study could have been used by the mas über Macht und Herrschaft, Imbusch, Peter mediators for the closure of the process once all (Hrsg) 2013; Macht und Herrschaft, S. 217-246. else had been clarified, i.e. the timing would Hagmann, Tobias, Goetschel, Laurent (2009): have been ripe. Civilian Peacebuilding: Peace by bureaucratic

7 The authors of a study about norms in mediation sug- lenge that can be managed. They broadly agreed that dif- gest a more open discussion about content-related and ferent norms are rarely mutually exclusive. It is often not process-related norms in the process: “A more thorough an “either or” question (e.g., inclusivity vs. efficiency), discussion about the nature of norms in mediation and but a question of how norms are sequenced, which how they are prioritized would add clarity and create mu- mostly depends on what is most appropriate for a given tual understanding about their relevance and appropri- context.” Hellmüller, Sara, Palmiano Federer, Julia, ateness. Virtually all the interviewees underlined that Zeller, Matthias (2015); The Role of Norms in Interna- such a prioritization should not be seen in terms of a di- tional Mediation. Swisspeace/NOREF p.10. lemma with associated trade-offs, but rather as a chal- 6

means? Conflict, Security and Development, 9:1, 55-73. Hellmüller, Sara, Palmiano Federer, Julia, Zeller, Matthias (2015); The Role of Norms in International Mediation. swisspeace/NOREF. Mason, Simon (2007): Mediation and Facilita- tion in Peace Processes. ISN ETH Zürich. Weber, Max (1956): Wirtschaft und Gesell- schaft, Tübingen. Zartman, William I (2001): The Timing of Peace Initiatives: Hurting Stalemates and Ripe Mo- ments. The Global Review of Ethnopolitics, Vol.1, No.1, September 2001, p. 8-18.

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Deutsche Zusammenfassung nur Auseinandersetzungen zwischen den Parteien über die infrastrukturellen Bedürf- nisse des Nordens, sondern auch darüber, Die Technokratiefalle wie diese Bedürfnisse festgestellt werden und wer diese festlegt. Im Artikel wird aufge- Innovation oder Techno- zeigt, wie ein auf persönlichen Erlebnissen fundiertes Verständnis der betroffenen Kon- kratie in der internatio- fliktparteien auf ein technokratisches Ver- nalen Mediation? ständnis von Drittparteien stösst. Wenn die- ser Zusammenprall von den Mediatoren nicht sorgfältig begleitet wird, erstickt dies die Dis- Mediationsprozesse sind grundsätzlich krea- kussion und mündet letztlich in Unverständ- tiv und innovativ, da die Konfliktparteien mit nis und einem Gefühl der Machtlosigkeit bei den Mediatorinnen und Mediatoren neue Lö- den Konfliktparteien. Für sie droht der Pro- sungen, die für alle tragbar sind, finden müs- zess an Glaubwürdigkeit zu verlieren und de- sen. Auch Konflitlösungsexpertinnen und Ex- ren Engagement für eine potentiell innovative perten auf internationaler Ebene haben ein Lösung wird von einem Gefühl der Resigna- entsprechend positives Verständnis von Kon- tion überschattet. flikten, helfen diese doch Probleme anzu- Der Artikel schliesst mit der Feststellung, sprechen, und im besten Fall können politi- dass die Einflussnahme einer technokrati- sche soziale Entwicklungsprozesse in Gang schen Logik und Vorgehensweisen in Mediati- gesetzt werden, die letztlich zu einem friedli- onsprozessen unter der Bedingung, dass cheren Zusammenleben führen. diese im Prozess in die richtige Perspektive Gleichzeitig stellt die internationale Frie- und an den richtigen Platz gerückt werden, densgemeinschaft – eine Vielfalt von Organi- eine unterstützende Rolle spielen können. sationen und Individuen, die sich auf interna- Um die Innovationskraft und die Kredibilität tionaler Ebene für den Frieden einsetzen – von Mediationsprozessen zu erhalten, muss fest, dass Mediationsprozesse oft ineffizient jedoch die Wahrnehmung der Konfliktpar- sind. Hier werden Beispiele wie Syrien oder teien ernst genommen werden und die Ent- Libyen genannt. Für die Ineffizienz werden scheidungsmacht klar bei diesen bleiben. meist vertrackte politische Interessenslagen verantwortlich gemacht. Deshalb werden oft neue und innovative Konfliktlösungsansätze gefordert. In diesem Artikel argumentiert die Autorin, dass es gerade in solch vertrackten Situatio- nen wichtig wäre, die der Mediation inhärente Innovationskraft besser zu nutzen. Und dies bevor man nach neuen Ansätzen ruft. Der Ar- tikel zeigt auf, wie ein technokratisches Ver- ständnis von bi- und multilateralen Drittpar- teien, das Innovationspotential von Mediati- onsprozessen beeinträchtigen kann. Die Autorin greift dabei auf eigene Erfahrun- gen in Mali zurück. Nach dem Abschluss eines Friedensvertrages im 2015 geht es anschlies- send um die detaillierte Aushandlung von Entwicklungsmassnahmen im Norden des Landes. Im Mediationsprozess gibt es nicht 8