Challenges for the New Peacekeepers Stockholm International Peace Research Institute SIPRI is an independent international institute for research into problems of peace and conflict, especially those of arms control and disarmament. It was established in 1966 to commemorate Sweden’s 150 years of unbroken peace. The Institute is financed mainly by the Swedish Parliament. The staff and the Governing Board are international. The Insitute also has an Advisory Committee as an international consultative body. The Governing Board is not responsible for the views expressed in the publications of the Institute. Governing Board Professor Daniel Tarschys, Chairman (Sweden) Sir Brian Urquhart, Vice-Chairman (United Kingdom) Dr Oscar Arias Sánchez (Costa Rica) Dr Ryukichi Imai (Japan) Professor Catherine Kelleher (United States) Dr Marjatta Rautio (Finland) Dr Lothar Rühl (Germany) The Director Director Dr Adam Daniel Rotfeld (Poland) Stockholm International Peace Research Institute Frösunda, S-171 53 Solna, Sweden Cable: SIPRI Telephone: 46 8/655 97 00 Telefax: 46 8/655 97 33 E-mail: [email protected] Internet URL: http://www.sipri.se Challenges for the New Peacekeepers SIPRI Research Report No. 12 Trevor Findlay OXFORD UNIVERSITY PRESS 1996 Oxford University Press, Walton Street, Oxford OX2 6DP Oxford New York Athens Auckland Bangkok Bombay Calcutta Cape Town Dar es Salaam Delhi Florence Hong Kong Istanbul Karachi Kuala Lumpur Madras Madrid Melbourne Mexico City Nairobi Paris Singapore Taipei Tokyo Toronto and associated companies in Berlin Ibadan Oxford is a trade mark of Oxford University Press Published in the United States by Oxford University Press Inc., New York © SIPRI 1996 All rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted, in any form or by any means, without the prior permission in writing of Oxford University Press. Within the UK, exceptions are allowed in respect of any fair dealing for the purpose of research or private study, or criticism or review, as permitted under the Copyright Designs and Patents Act, 1988, or in the case of reprographic reproduction in accordance with the terms of the licences issued by the Copyright Licensing Agency. Enquiries concerning reproduction outside these terms should be sent to the Rights Department, Oxford University Press, at the address above. Enquiries concerning reproduction in other countries should be sent to SIPRI The paperback edition of this book is sold subject to the condition that it shall not, by way of trade or otherwise, be lent, re-sold, hired out or otherwise circulated without the publisher’s prior consent in any form of binding or cover other than that in which it is published and without a similar condition including this condition being imposed on the subsequent purchaser British Library Cataloguing in Publication Data Data available Library of Congress Cataloguing-in-Publication Data Findlay, Trevor. Challenges for the new peacekeepers/ Trevor Findlay —(SIPRI research report; no. 12) Includes index ISBN 0–19–829198-1 ISBN 0–19–829199-X (pbk.) Typeset and originated by Stockholm International Peace Research Institute Printed in Great Britain on acid-free paper by Biddles Ltd, Guildford and King’s Lynn Contents Preface viii Acronyms x 1. The new peacekeeping and the new peacekeepers 1 Trevor Findlay I. Introduction 1 II. The new peacekeepers 2 III. The new peacekeeping 12 IV. Challenges for the new peacekeepers 14 V. Conclusion 31 Table 1.1. First-time participants in UN peacekeeping and 4 observer missions since 1989 Table 1.2. First-time participants in non-UN peacekeeping and 6 observer missions since 1989 2. Germany 32 Hans-Georg Ehrhart I. Introduction 32 II. The legacy of German history 32 III. The incremental approach of the new Germany 34 IV. Somalia: a turning-point 36 V. The Constitutional Court’s decision 39 VI. The political parties 41 VII. The armed forces 45 VIII. German society 48 IX. Facing the peacekeeping challenge 50 3. Japan 52 Takao Takahara I. Introduction 52 II. Constitutional and historical restraints 53 III. The Cambodian experience 56 IV. Prospects 61 Appendix 3A. The ‘pacifist clauses’ of the Constitution of Japan 67 vi CHALLENGES FOR THE NEW PEACEKEEPERS 4. Russia 68 Dmitriy Trenin I. Introduction 68 II. The legal and policy framework 75 III. The management of peacekeeping 77 IV. Russian peacekeeping and the international 82 community V. Conclusion 84 5. The United States 85 Donald C. F. Daniel I. Introduction 85 II. Competing foreign policy tendencies 86 III. Ambivalence towards the UN 88 IV. President Clinton and foreign policy 89 V. Congress and public opinion 91 VI. Peacekeeping and public opinion 93 VII. Summary of PDD 25 95 VIII. Conclusion 97 6. Other new and emerging peacekeepers 99 Angela Kane I. Introduction 99 II. China: strict observance of Charter principles 99 III. France: strong political engagement 101 IV. Europe: Spain leads the way 103 V. Asia: diversity 105 VI. Latin America: prospects for involvement 111 VII. Africa: a continent in need of peacekeepers 115 VIII. Conclusion 119 7. The Organization for Security and Co-operation in Europe 121 Jerzy M. Nowak I. A glance at the recent past 121 II. OSCE instruments for conflict prevention, 123 management and resolution III. The OSCE’s peacekeeping doctrine 128 CONTENTS vii IV. The OSCE conflict management and peacekeeping 131 infrastructure V. New challenges for the OSCE peacekeepers 133 VI. Cooperation and division of labour with other 138 institutions VII. Conclusion 140 8. NATO 142 Steven R. Rader I. Introduction 142 II. NATO’s formal acknowledgement of a new mission 143 III. Alliance strengths 144 IV. NATO support of the UN in the former Yugoslavia 145 V. NATO’s conceptual approach to peacekeeping 152 VI. NATO’s experience of the new challenges 154 VII. Summary 157 About the contributors 159 Index 161 Preface This volume differs from the increasingly familiar literature on peace- keeping in its emphasis on the challenges faced by individual nations which have, since the end of the cold war, begun to participate in peacekeeping operations for the first time. Without their contributions many of the new, expanded, ‘muscular’ variety of operations would be impossible. In particular this study focuses on the political and constitutional challenges which some of the most important of these ‘new peacekeepers’—Germany, Japan, Russia and the USA—have faced and will continue to face in becoming involved in peace- keeping. Attention is also given to two international organizations— the North Atlantic Treaty Organization (NATO) and the Organization for Security and Co-operation in Europe (OSCE)—which are, respectively, actual and potential new peacekeepers. One of the findings of this volume is that the effectiveness of peace- keeping activities will be determined not only by the new norms, procedures and institutions but first of all by the determination of states and their government policies—those of both small and medium-sized countries and the great powers. The chapters in this volume all derive from papers presented at a conference held in Bonn on 21–22 April 1994 on ‘Challenges for the New Peacekeepers’, jointly organized by the Stockholm International Peace Research Institute (SIPRI) and the Friedrich-Ebert-Stiftung. SIPRI is grateful to the Friedrich-Ebert-Stiftung for funding and helping arrange that event. Dr Erfried Adam, head of the Develop- ment Policy Project Group at the Friedrich-Ebert-Stiftung, worked above and beyond the call of duty to organize the meeting. This volume is the second produced by SIPRI’s Project on Peacekeeping and Regional Security, which was established in 1993. Its editor is Dr Trevor Findlay, the Leader of this Project, whose work and com- mitment to producing this book deserve great credit. Special thanks go to the authors of the chapters for their diligence in producing high- quality work to tight deadlines. Olga Hardardóttir and Anneli Berntsson, Research Assistants with the Project, assisted with the research for the volume, and Eve Johansson contributed her considerable editorial skills. PREFACE ix The following analyses of the policies and experiences of the ‘new peacekeepers’ will, it is hoped, not only be of academic interest but will also make a contribution to the burgeoning international effort to scrutinize the entire peacekeeping enterprise with a view to improving and refining it. Adam Daniel Rotfeld Director of SIPRI October 1995 Acronyms AHG Ad Hoc Group on Cooperation in Peacekeeping (NACC) AIFV Armoured infantry fighting vehicle ARF ASEAN Regional Forum ARRC Allied Command Europe Rapid Reaction Corps (NATO) ASEAN Association of South-East Asian Nations AWACS Airborne warning and control system BHC Bosnia–Herzegovina Command (UNPROFOR) CEE Central and Eastern Europe CFE Conventional Armed Forces in Europe CIO Chairman-in-Office (OSCE) CIS Commonwealth of Independent States CJTF Combined Joint Task Force CPC Conflict Prevention Centre (OSCE) CSBM Confidence- and security-building measure CSCE Conference on Security and Co-operation in Europe DMZ Demilitarized zone EC European Community ECOMOG ECOWAS Monitoring Group (in Liberia) ECOWAS Economic Organization of West African States ECR Electronic combat and reconnaissance aircraft EU European Union FMLN Frente Farabundo Martí para la Liberación Nacional (Farabundo Marti National Liberation Front, El Salvador) FRG Federal Republic of Germany FSC Forum for Security Co-operation (OSCE) GDR German Democratic Republic HCNM