Rhetoric versus reality in the rise of policing in UN peace operations: ‘More blue,less green’?

ABSTRACT

United Nations police (UNPOL) have become increasingly important to operational effectiveness of peace operations. For some time, their contribution to re-establishing the rule of law in conflict-affected states has been seen as a cornerstone for building sustainable peace and enabling mission exit strategies. In a departure from traditional peacekeeping and post-conflict assistance, recent years have seen UN peace operations directed to stabilise countries and protect civilians in the context of on-going violent conflict. As a result, UNPOL have had to undertake a range of expanded tasks, exacerbating long-standing challenges and producing new impediments to their operational effectiveness. At the same time, a ‘pragmatic turn’ is generating increased interest in more police-centric concepts of peacekeeping as a possible alternative to today’s expensive and military-focused peace operations. Drawing on extensive fieldwork in multiple peace operations and at UN headquarters, this article examines the changing roles of UNPOL in a new breed of UN peace operations, identifies the major associated challenges and proposes a series of recommendations for overcoming them. It argues that if police are to respond to unfolding challenges while becoming more central to peacekeeping outcomes, then significant reforms and further research into their impacts will be required.     

Book Reviews

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Powerful State,Powerless Mediator: The United States and the Peace Efforts of the Palestine Conciliation Commission, 1949–51

The Arab–Israeli War of 1948 produced complex questions that needed to be solved to obtain peace. Whereas the Arab states suffered humiliating defeats, Israel was the undisputed winner, expanding and solidifying its power. For the Palestinians, the outcome was catastrophic. Between 600,000 and 760,000 Palestinians fled, becoming refugees on the West Bank, the Gaza Strip, and in surrounding Arab states. Palestinian society collapsed and Palestine became divided between Israel, Egypt, and Jordan, leaving the borders undecided. The Palestinians’ dreams of statehood were crushed. After the war, Israel used diplomacy to achieve its goals, defending the post-war status quo to preserve its expanded territory and resisting the return of Palestinian refugees. Through its membership in the Palestine Conciliation Commission (PCC), established by the United Nations (UN) in 1948 to solve these problems, the United States was deeply involved in the negotiations. The United States became the informal, yet undisputed leader of the PCC, thus, it would seem, empowering it with the muscles of a superpower. After three years of struggling for peace the PCC had toadmit failure. Knowledge about these negotiations gives important insights into how mediators approached the conflict and shows that power asymmetry may explain why the belligerents could not obtain peace.     

‘In the very eye of the storm’: India,the UN,and the Lebanon crisis of 1958

This paper effectively provides the view from New Delhi of the crisis in Lebanon in 1958, UN intervention in the conflict, and subsequent peacekeeping in the region. The account uses archival material from the National Archives of India, the Nehru Memorial Museum and Library, New Delhi, the UNARMS, the National Archives, UK, and published primary material. Most significantly, the paper revisits the memoirs of Ambassador Rajeshwar Dayal (the UN Secretary General’s Special Representative) who was seconded from the Indian Foreign Service for the special purpose of UN arbitration in the Lebanon Crisis. Dayal played a pivotal role in defining India’s position in the crisis, and through Indian contributions to mediation and peacekeeping, in the UN. Furthermore, given India’s relationships with many other non-aligned nations in the region, the paper takes a broader view of the narratives surrounding the crisis and eventual US intervention and victory from mainly Indian sources, thus contributing to the study of the short-lived crisis.     

Pre-deployment ‘gender’ training and the lack thereof for Australian peacekeepers

In the area of peacekeeping training, Australia has a reputation of promoting ‘best practice’ internationally. Training for Australian police peacekeepers has been described by the United Nations as ‘one-of-a-kind’ and ‘a world-class model of best practice’. This article provides a case study of how gender training is conducted, and how ‘gender’ is understood from a critical feminist perspective. This article focuses only on the pre-deployment training stage and is informed by confidential interviews with staff from the Australian Federal Police and the Australian Defence Force, as well as observing training in 2013–14. The findings suggest that the training is inadequate because it is not carried out for all peacekeeping personnel, despite international and national requirements to do so. In addition, the findings suggest that ‘gender’ is understood in a very limited way that does not problematise power relations between the sexes and is only covered as a way of understanding the peacekeeping context, and not in relation to the attitudes and behaviours of peacekeepers themselves. This raises the question of whether and how other troop-contributing countries conduct the training and to what standard, given the documented problems of Australia's supposedly ‘best-practice’ training.     

‘We Have Been Making History’: The League of Nations and the Leticia Dispute (1932–1934)

This article sheds a historical light on the League of Nations’ role in the settlement of the Leticia dispute between Peru and Colombia (1932–1934). It first describes how the Geneva organization conducted the negotiations with the two opposing parties and reached an agreement for the establishment of a temporary territorial administration of Leticia. Then, it examines the work of the International Commission, scrutinizing the challenges the Commissioners had to overcome to fulfil their mandate. Based on the League of Nations’ archives, this research contributes to a more comprehensive understanding of the settlement of the Leticia dispute. It also shows the innovative character of the Geneva organization's intervention to maintain international peace.     

Remembrance Diplomacy by the Mayors of Hiroshima and Nagasaki in the UN, 1976–2015

This article investigates how the successive mayors of Hiroshima and Nagasaki have worked to institutionalize their collective memory of the nuclear bombings in the United Nations since 1976. Increased institutionalization of the memory in the UN can serve to influence the value system shared by diplomats engaged with nuclear disarmament by making remembrance activities surrounding that memory obligatory. With their moving testimonies, the mayors of Hiroshima and Nagasaki have primarily promoted Hiroshima and Nagasaki remembrance in the UN by tapping into the moral authority traditionally credited to survivors or witnesses of atrocity. They have been largely successful in achieving institutionalization; however, UN institutionalization of Hiroshima and Nagasaki remembrance does not automatically transform into a global collective memory without also being accepted at the national level.     

How Constitutional Concerns Framed the US Contribution to the International Human Rights Regime From Its Inception, 1947–53

The United States has been reluctant to agree to binding international human rights instruments ever since the very first meeting of the United Nations Commission on Human Rights in 1947. This article explores structural causes for that reluctance. Internal government papers show that US government officers worried that a human rights treaty might expand federal jurisdiction at the expense of the jurisdiction of the United States' constituent states and could provide an opening for judicial activism by the courts. These concerns made domestic political sensitivities more acute and raised principled questions about the desirability of pushing domestic reforms through international law-making. US representatives made repeated efforts to ensure that an international bill of rights was drafted as an aspirational declaration rather than a legally binding treaty. They also proposed clauses designed to delay or limit the domestic effects of any agreement, while reassuring the US Senate that domestic power balances would not be disturbed. Constitutional concerns thus framed the United States' contribution to the creation of an international human rights system from the very beginning.     

‘A Hazardous Task’: Britain and the 1961 Vienna Convention on Diplomatic Relations

In 2014, the Vienna Convention on Diplomatic Relations celebrated its fiftieth anniversary since its coming into force in 1964. Setting out the privileges and immunities accorded to diplomats and diplomatic missions, the negotiations of this convention were part of the United Nations' plan to strengthen the international rule of law. This article analyses the role of Britain, one of the major actors in the negotiation process. It explores how Britain's negotiation position was shaped by diplomatic realities of the 1950s, and the strategies used to ensure Britain's interests being reflected in the final convention. The focus will be on the overall political pressure that underlined Britain's negotiation position, in order to reveal the general UK position on the codification of diplomatic privileges and immunities. Despite the remarkably friendly atmosphere at the 1961 Vienna conference, Britain could not press through all its amendments which, through the concluding legislation process, protracted Britain's ratification process. The article shows while London was supporting the codification of international law, codification by convention was not its ultimate choice. Therefore, the subsequent legislation process was marked by an inter-departmental dispute between the Foreign Office and Treasury, inter alia, on the exemption of Scotch whisky from excise duties.     

Laying it down in stone: delimiting and demarcating Iraq's boundaries by mixed international commission

Mixed international commissions have been centrally involved in shaping the outer margins of the state territory of Iraq over the last century and a half. Laborious Anglo-Russian efforts to narrow the traditional Perso-Ottoman frontier in the seventy-year period before the Great War contrasted with the League of Nations' ostensibly speedy treatment of Iraq's more arbitrary northern and north-western territorial limits in the early inter-war years. Most recently, a team appointed by the UN Secretary-General finalised definition of Iraq's international boundaries with Kuwait when the emirate was liberated from Iraqi occupation in the spring of 1991. This article scrutinises the role played by these bodies in the boundary evolutionary process from a review of their primary records. It highlights the fact that the evolution of Iraq's (and those of its Ottoman forbears) international boundaries to the east, north and west was rarely straightforward and reflected both regional considerations and imperial contexts. The problem of reconciling inadequate textual definitions with features on the ground has been a constant phenomenon. Deciding whether commissions actually delimited or demarcated territory was as valid a question following the UN's Iraq–Kuwait settlement as in the mid-nineteenth century. Whether many historical treaty delimitations were ever designed to be anything more than territorial allocations is another theme explored in this article.     

美英在联合国中国代表权问题上的分歧与协调(1950-1951)

有关中国在联合国的代表权问题,美国的基本立场是反对中国代表权变更,尽管在朝鲜战争爆发前后有微妙的区别,此前主要是私下操纵,此后则公开阻挠。英国的投票立场经历了从弃权、赞成中国代表权变更到最终支持美国在联合国搁置对中国代表权问题讨论的演变过程。而且,英国赞成新中国取得合法代表权并不意味着取缔国民党集团的非法代表,其政策转轨亦不同步。在1950年1-6月,英国开始由弃权走向有条件赞成新中国取得席位,美英分歧凸现,各自为自己的立场游说其他安理会成员国。1950年6月-1951年1月是美英分歧与协调的高峰时期,英国逐渐走向赞成接纳新中国代表同时驱逐国民党非法代表的立场。美国则不遗余力地反对中国代表权的变更。1951年2-6月,英国由赞成中国代表权变更转向支持美国在联合国搁置对这一问题的讨论,美英纷争基本平息。美英在这一问题上的分歧除了反映两国对华政策的差异外,也折射出两国对联合国组织的不同理念。     

1992年联合国环境与发展大会评析

联合国环境与发展大会是继1972年联合国人类环境大会后国际环境保护史上的又一个里程碑事件。大会的召开与20世纪80年代后期世界范围的环保主义高潮有着直接的联系。在预备会议和正式会议上,南北国家代表围绕全球可持续发展的几个主要焦点议题产生了分歧并展开了激烈的辩论。会议取得的主要成果表现在两个方面:一是确立了世界各国在可持续发展和国际合作的一般性原则。二是制订了可持续发展和国际合作的战略措施。     

美国社会组织与联合国人权规范的起源

二战爆发后,美国社会组织在对战争与和平问题的研究中提出依靠国际组织保障人权的规范构想。美国政府则并未重视人权议题,人权在敦巴顿橡树园会议上只处于边缘地位。社会组织在此后掀起大规模的游说活动,要求提高人权议题的地位,这使得美国政府考虑融合社会组织的人权规范构想与主权规范原则。旧金山会议上,美国说服其他大国接受其人权立场,极力否决拉美国家的人权提案,体现出美国借人权话语行使霸权的实质意图。最终出台的《联合国宪章》多处涉及人权,奠定了此后联合国人权规范的基础。但是,社会组织与美国政府围绕人权的争论凸显了宪章人权条款的复杂特征,这使得美国在此后联合国人权规范的发展中面临更多的挑战。     

The United States,Great Britain,and the Creation of the Iranian Oil Consortium, 1953–1954

This article examines the attitudes of US, British, and Soviet policy-makers as they planned for the forthcoming peace during the Second World War. It charts how they moved from planning a ‘peace by dictation’ of the great powers, to planning one which would be based on a model of collective security involving all members of the United Nations alliance. The latter plan would reflect both the great powers’ special responsibilities for maintaining international peace and security and the stake which lesser powers had in such a venture. In addressing these historical developments the article employs two concepts familiar to International Relations scholarship, namely concert and hierarchy. It shows how the understandings which the principal post-war planners had of these concepts – and crucially of their inter-relationship - changed over time and the consequences of these changes. The article makes two core claims: firstly, that as post-war planning progressed, the attitudes of the Big Three towards the acceptable nature of the great power–lesser power hierarchy changed radically; and secondly, that the structure and nature of today's United Nations Organisation is in significant part a consequence of these changes.     

Branding the United Nations: The Adoption of the UN Insignia and Flag, 1941–1950

Abstract

This article contends that the symbols of the United Nations (UN) have played a vital role in establishing the organization’s identity and in protecting its personnel. The design and usage of these emblems developed in a number of steps in the 1940s and early 1950s, a process dominated mainly by Americans. Although private admirers of the UN originated a number of serviceable and aesthetically pleasing designs, products mainly of their own self-initiative, the emblems chosen by the UN were prepared by professional designers, starting with an Office of Strategic Services (OSS) team operating under the aegis of the U.S. State Department. The author compares this process to product ‘branding’, and he also sees it as reflecting a longstanding claim to predominance in the internationalist project by technical specialists. In the 1940s, this dynamic revealed itself in rivalry between an elite of liberal internationalist technocrats and ‘populist internationalists’, the former coming to determine the character and choice of UN emblems. Members of the OSS design team had backgrounds in advertising and – not surprisingly – produced a logo-like design. The ultimate product of this process, a UN flag, was adopted in 1947, but it was treated by early UN bureaucrats like a protected trademark of the UN, at least until popular pressure-driven by an outpouring of mass emotion at the time of the Korean War – forced its release for broader public use.