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This electronic representation of RAND intellectual property is provided for non- commercial use only. Permission is required from RAND to reproduce, or reuse in another form, any of our research documents. This product is part of the RAND Corporation monograph series. RAND monographs present major research findings that address the challenges facing the public and private sectors. All RAND mono- graphs undergo rigorous peer review to ensure high standards for research quality and objectivity. THE UN’S ROLE IN NATION-BUILDING FROM THE CONGO TO IRAQ James Dobbins, Seth G. Jones, Keith Crane, Andrew Rathmell, Brett Steele, Richard Teltschik, Anga Timilsina This research in the public interest was supported by the RAND Corporation, using discretionary funds made possible by the generosity of RAND’s donors and the fees earned on client-funded research. Library of Congress Cataloging-in-Publication Data The UN’s role in nation-building : from the Congo to Iraq / James Dobbins ... [et al.]. p. cm. “MG-304.” Includes bibliographical references and index. ISBN 0-8330-3589-4 (pbk. : alk. paper) 1. Democratization—Case studies. 2. United Nations—Peacekeeping forces—Case studies. 3. United Nations—Military policy—Case studies. 4. United Nations— Economic assistance—Case studies. 5. United Nations—Technical assistance—Case studies. 6. Peace-building—Case studies. I. Dobbins, James, 1942– JZ4984.5.U534 2005 341.5'84—dc22 2004027669 The RAND Corporation is a nonprofit research organization providing objective analysis and effective solutions that address the challenges facing the public and private sectors around the world. RAND’s publications do not necessarily reflect the opinions of its research clients and sponsors. R® is a registered trademark. Cover design by Stephen Bloodsworth © Copyright 2005 RAND Corporation All rights reserved. No part of this book may be reproduced in any form by any electronic or mechanical means (including photocopying, recording, or information storage and retrieval) without permission in writing from RAND. Published 2005 by the RAND Corporation 1776 Main Street, P.O. Box 2138, Santa Monica, CA 90407-2138 1200 South Hayes Street, Arlington, VA 22202-5050 201 North Craig Street, Suite 202, Pittsburgh, PA 15213-1516 RAND URL: http://www.rand.org/ To order RAND documents or to obtain additional information, contact Distribution Services: Telephone: (310) 451-7002; Fax: (310) 451-6915; Email: [email protected] DEDICATION The cover photographs are of UN Secretary-General Dag Hammarskjöld in the Congo (left) and UN Special Envoy Sergio Vieira de Mello in Iraq (right). They are the two most senior representatives to have given their lives in the course of UN nation-building operations over the last 60 years. This work is dedicated to them and their many colleagues who have made that ultimate sacrifice. iii PREFACE This study contains the results of research on best practices in nation- building. It is intended to complement a companion volume, America’s Role in Nation-Building: From Germany to Iraq, which focuses on U.S.-led nation- building efforts. Its purpose is to analyze United Nations military, political, humanitarian, and economic activities in post-conflict situations since World War II, determine key principles for success, and draw implications for future nation-building missions. The study contains the lessons learned from eight UN cases: Belgian Congo, Namibia, El Salvador, Cambodia, Mozambique, Eastern Slavonia, Sierra Leone, and East Timor. It also examines the nation- building effort in Iraq. This study was sponsored by the RAND Corporation as part of its mission to conduct research in the public interest. The effort was made possible by the generosity of RAND’s donors and the fees earned on client-funded research. RAND is a nonprofit institution that helps improve policy and decisionmaking through research and analysis. The research was conducted within the RAND National Security Research Division (NSRD). NSRD con- ducts research and analysis for the Office of the Secretary of Defense, the Joint Staff, the Unified Commands, the defense agencies, the Department of the Navy, the U.S. intelligence community, allied foreign governments, and foundations. For more information on the National Security Research Division, contact the Director of Operations, Nurith Berstein. She can be reached by e-mail at [email protected]; by phone at 703-413-1100, extension 5469; or by mail at the RAND Corporation, 1200 South Hayes Street, Arlington, Virginia 22202-5050. More information about RAND is available at www.rand.org. iv CONTENTS Preface ................................................................................................................. iv Figures ................................................................................................................xi Tables ................................................................................................................xiii Executive Summary ......................................................................................... xv Acknowledgments .......................................................................................xxxix Abbreviations ....................................................................................................xli Chapter One INTRODUCTION ......................................................................................... 1 Methodology ................................................................................................ 2 Outline of the Story ..................................................................................... 3 Chapter Two CONGO ......................................................................................................... 5 Challenges .................................................................................................... 7 Security ..................................................................................................... 7 Humanitarian .......................................................................................... 8 Civil Administration ................................................................................ 8 Democratization ...................................................................................... 9 Economic Reconstruction ...................................................................... 9 UN and Other International Roles ........................................................... 10 Military and Police ................................................................................ 11 Civil and Economic ................................................................................ 12 What Happened ......................................................................................... 12 Security ................................................................................................... 13 Humanitarian ........................................................................................ 18 Civil Administration .............................................................................. 19 Democratization .................................................................................... 20 Economic Reconstruction .................................................................... 23 Lessons Learned ........................................................................................ 25 v vi The UN’s Role in Nation-Building: From the Congo to Iraq Chapter Three NAMIBIA .................................................................................................... 29 Challenges .................................................................................................. 31 Security ................................................................................................... 31 Humanitarian ........................................................................................ 32 Civil Administration .............................................................................. 32 Democratization .................................................................................... 33 Economic Reconstruction .................................................................... 33 The UN and International Roles ............................................................... 34 Military ................................................................................................... 34 Civil and Economic ................................................................................ 35 What Happened ........................................................................................