UN Peacekeeping Operations: Consequences of Peace-Enforcement Mandates

Introduction to the Article

  • Author: John Karlsrud, Peace Operations Group, Norwegian Institute of International Affairs (NUPI), Oslo, Norway
  • Focus: Examines consequences of peace-enforcement mandates in UN peacekeeping operations in Central African Republic (CAR), Democratic Republic of Congo (DRC), and Mali.
  • Context: In 2013, UN operations in these regions were given mandates to use all necessary measures to ‘neutralize’ and ‘disarm’ certain groups.

Context and Evolution of UN Peacekeeping

  • UN peacekeeping evolved significantly since the 1950s, primarily focusing on maintaining peace through impartiality and minimal force.
  • Traditional principles from the Brahimi Report:
    • Peacekeeping requires a peace to keep.
    • Operations must be impartial with minimal force use (only in self-defense).
    • Necessary consent from primary conflict parties.
  • The article asserts that new mandates step away from these core principles, especially in the context of peace enforcement, raising concerns about UN's impartiality and the safety of peacekeepers.

Case Studies

1. DRC and MONUSCO

  • Operation Details:

    • Force Intervention Brigade established under Resolution 2098 to ‘neutralize’ armed groups threatening civilian security.

  • Challenges: Accusations of failing to protect civilians, inaction during conflict (e.g., M23 occupation) despite robust mandates.

2. Mali and MINUSMA
  • Operation Details:
    • Mandate includes stabilizing key population centers and preventing the return of armed elements.
  • Controversies:
    • Relations with the French military (Operation Serval) and the complexities of insurgency dynamics, including jihadist groups.
  • Risks of turning into counter-terrorism operations.
3. CAR and MINUSCA
  • Operation Details:
    • Aimed at stabilizing the country amid ongoing conflicts between Christian and Muslim factions.
  • Concerns: The ability of MINUSCA to effectively manage peacekeeping given its robust mandate amidst prevailing instability.

Implications of New Mandates

  • The shift towards peace enforcement changes the nature of UN operations potentially compromising the UN's position as an impartial mediator and increasing risks to its peacekeepers.
  • Historical Precedent: Concerns about the UN entering a combat-oriented role reminiscent of past operational failures (e.g., Srebrenica, Rwanda).

Conclusions and Recommendations

  • Overall Assessment: A mismatch between current operational practices and traditional peacekeeping principles indicates potential long-term negative consequences for UN operations.
  • Strategic Recommendations:
    • Limit use of force to crucial incidents.
    • Avoid specifying enemies in mandates to maintain impartiality.
    • Consider engagement of regional organizations to handle robust operations while UN focuses on traditional peacekeeping contexts.

Final Thoughts

  • Lift awareness regarding increasing complexities and challenges in peace enforcement operations without losing sight of historical lessons on effective peacekeeping.