The UN Secretariat’s Influence on the Evolution of Peacekeeping

303 Pages·2014·1.168 MB·English

by  Silke Weinlich (auth.)

TransformationsoftheState
SeriesEditors:AchimHurrelman,nCarletonUniversity,CanadaS;tephanLeibfrie,dUniversityof
Bremen,GermanyK;erstinMarten,sUniversityofBremen,GermanPy;eterMaye,rUniversityof
Bremen,Germany.
Titlesinclude:
Outlinesofthethemesoftheseries:
AchimHurrelmann,StephanLeibfried,KerstinMartens
andPeterMayere(ditors)
TRANSFORMINGTHEGOLDEN-AGENATIONSTATE
SteffenMau,HeikeBrabandt,LenaLaubeandChristofRoos
LIBERALSTATESANDTHEFREEDOMOFMOVEMENT
SelectiveBorders,UnequalMobility
LutzLeiseringe(ditor)
THENEWREGULATORYSTATE
RegulatingPensionsinGermanyandtheUK
AndreasKruck
PRIVATERATINGS,PUBLICREGULATIONS
CreditRatingAgenciesandGlobalFinancialGovernance
MichaelDobbins
HIGHEREDUCATIONPOLICIESINCENTRALANDEASTERNEUROPE
ConvergenceTowardsaCommonModel?
MoritzWeiss
TRANSACTIONSCOSTSANDSECURITYINSTITUTIONS
UnravellingtheESDP
HeinzRothgang,MirellaCacace,SimoneGrimmeisen,UweHelmertandClausWendt
THESTATEANDHEALTHCARE
ComparingOECDCountries
AnnaHolzscheiter
CHILDREN’SRIGHTSININTERNATIONALPOLITICS
TheTransformativePowerofTransnationalDiscourse
KerstinMartens,Alexander-KennethNagel,MichaelWindzioandAnsgarWeymedaintonrs()
TRANSFORMATIONOFEDUCATIONPOLICY
SteffenSchneider,AchimHurrelmann,ZuzanaKrell-Laluhová,Frank
NullmeierandAchimWiesner
DEMOCRACY’SDEEPROOTS
WhytheNationStateRemainsLegitimate
AnjaP.Jakobi
INTERNATIONALORGANIZATIONSANDLIFELONGLEARNING
FromGlobalAgendastoPolicyDiffusion
MichaelJ.Warning
TRANSNATIONALPUBLICGOVERNANCE
Networks,LawandLegitimacy
ThomasRixen
THEPOLITICALECONOMYOFINTERNATIONALTAXGOVERNANCE
HartmutWesslere(ditor)
PUBLICDELIBERATIONANDPUBLICCULTURE
TheWritingsofBernhardPeters,1993–2005
HartmutWessler,BernhardPeters,Michaelu˝Bggremann,KatharinaKleinen-von
Ko˝nigslo˝wandStefanie
SifftTRANSNATIONALIZATIONOFPUBLICSPHERES
JochenZimmerman,JörgR.WernerandPhilippB.Volmer
GLOBALGOVERNANCEINACCOUNTING
PublicPowerandPrivateCommitment
JochenZimmermannandJörgR.Werner
REGULATINGCAPITALISM?
TheEvolutionofTransnationalAccountingGovernance
PeterStarke
RADICALWELFARESTATERETRENCHMENT
AComparativeAnalysis
JensSteffek,ClaudiaKissling,PatriziaNanedzi(tors)
CIVILSOCIETYPARTICIPATIONINEUROPEANANDGLOBALGOVERNANCE
ACurefortheDemocraticDeficit?
KlausDingwerth
THENEWTRANSNATIONALISM
TransnationalGovernanceandDemocraticLegitimacy
KerstinMartens,AlessandraRusconiandKathrinLeuezdeito(rs)
NEWARENASOFEDUCATIONGOVERNANCE
TheImpactofInternationalOrganizationsandMarketsonEducationalPolicyMaking
AchimHurrelmann,SteffenSchneiderandJensSteffeedkito(rs)
LEGITIMACYINANAGEOFGLOBALPOLITICS
JoanDeBardelebenandAchimHurrelmanendi(tors)
DEMOCRATICDILEMMASOFMULTILEVELGOVERNANCE
Legitimacy,RepresentationandAccountabilityintheEuropeanUnion
PeterStarke,AlexandraKaaschandFrancaVanHooreednito(rs)
THEWELFARESTATEASCRISISMANAGER
ExplainingtheDiversityofPolicyResponsestoEconomicCrisis
ChristofRoos
THEEUANDIMMIGRATIONPOLICIES
CracksintheWallsofFortressEurope?
SilkeWeinlich
THEUNSECRETARIAT’SINFLUENCEONTHEEVOLUTIONOFPEACEKEEPING
AnsgarWeymann
STATES,MARKETSANDEDUCATION
TheRiseandLimitsoftheEducationState
TransformationsoftheState
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978–1–4039–8545–3(paperback)
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The UN Secretariat’s
Influence on the Evolution
of Peacekeeping
Silke Weinlich
UniversityofDuisburg-Essen,Germany
©SilkeWeinlich2014
Softcover reprint of the hardcover 1st edition 2014 978-0-230-57249-2
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Contents
ListofTables,FiguresandBoxes viii
Acknowledgements ix
ListofAcronyms xi
1 Introduction 1
1.1 Theagencyofinternationalbureaucracies 3
1.2 Thecase:TheinfluenceoftheUNSecretariat
ontheevolutionofpeacekeeping 4
1.3 StudyingtheinfluenceoftheUNSecretariat:
Analyticalframeworkandmethodology 9
1.4 TheSecretariatasashapingagent 13
1.5 Structureofthebook 15
2 TheEvolutionofUNPeacekeeping:Towardsthe
Emergenceofa21st-CenturyPeacekeepingModel 17
2.1 Thegenesisofpeacekeeping 18
2.2 TheevolutionofpeacekeepingfromtheColdWarto
the21stcentury 21
2.2.1 Operationalcharacteristics:Fromcoldpeaceto
socialengineeringambitions 22
2.2.2 Conceptualcharacteristics:Growingmore
definite 26
2.2.3 Institutionalcharacteristics:Growingmore
professional 31
2.3 Conclusions 36
3 TheInfluenceofInternationalBureaucracies:
AFrameworkforAnalysis 38
3.1 Theinfluenceofinternationalbureaucracies
intheacademicliterature 38
3.1.1 Earlyliterature:Manygoodideas,mostly
forgotten 39
3.1.2 Thepredominanceofstate-centredtheoriesand
researchonregimes 41
v
vi Contents
3.1.3 The‘greatmaninhistory’:Literatureon
leadershipbytheexecutivehead 43
3.1.4 The(re)discoveryofinternationalorganisations
asactors 45
3.2 Theinfluenceofinternationalbureaucracies:
Anintegratedframeworkforanalysis 55
3.2.1 Elementone:Abilitytoactautonomously 55
3.2.2 Elementtwo:Adefinitionofinfluence 57
3.2.3 Elementthree:Meansofassessingtheextentof
influence 60
3.3 Applicationoftheframework 62
4 TheUNSecretariat’sCapacitiesforAutonomousAction 68
4.1 Resourcesforautonomousaction 68
4.1.1 TheSecretariat’smainfeatures:Contested
provisionsforindependence 68
4.1.2 TheSecretariat’smandate:Vaguebutpolitical 74
4.1.3 TheSecretariat’sfinancialmeans:Meagre
butmostlycontinuous 76
4.2 Constraintsonautonomousaction:Memberstates’
controlmechanism 79
4.2.1 ControllingtheSecretariat 80
4.2.2 ControllingtheSecretariat’speacekeeping
activities 82
4.3 Conclusions 87
5 TheOperationalDimension:ThePeaceOperationin
EastTimor 89
5.1 Preludeandconstellationofinterests 90
5.1.1 OverviewofUNengagementwithEastTimor 90
5.1.2 Constellationofinterestsandpolicypositions 93
5.2 ThedecisiontoestablishUNTAET 96
5.2.1 Theagenda-settingphase 98
5.2.2 Thepolicy-formulationphase 114
5.2.3 Theadoptionphase 125
5.3 Conclusions 131
6 TheConceptualDimension:TheDecisionstoReform
UNPeacekeepingandInstigateDoctrineDevelopment 136
6.1 Preludeandconstellationofinterests 138
6.1.1 SituationatUNheadquarters 138
6.1.2 Constellationofinterestsandpolicypositions 139
Contents vii
6.2 ThedecisionstoreformUNpeacekeepingandinstigate
doctrinedevelopmentin2000/1 143
6.2.1 Theagenda-settingphase 145
6.2.2 Thepolicy-formulationphase 152
6.2.3 Theadoptionphase 161
6.3 Conclusions 173
7 TheInstitutionalDimension:TheCreationofthe
StandingPoliceCapacity 178
7.1 Preludeandconstellationofinterests 179
7.1.1 InstitutionalforerunnerstotheSPC 179
7.1.2 Constellationofinterestsandpolicypositions 183
7.2 ThedecisiontoestablishtheSPC 186
7.2.1 Theagenda-settingphase 188
7.2.2 Thepolicy-formulationphase 193
7.2.3 Theadoptionphase 201
7.3 Conclusions 211
8 TheShapingPowersoftheUNSecretariat:Conclusions
andFutureProspectsforStudyingtheRoleof
InternationalBureaucracies 215
8.1 Empiricalfindings:TheinfluenceoftheUNSecretariat
ontheevolutionofpeacekeeping 216
8.1.1 TheSecretariat:Anautonomousactor? 216
8.1.2 TheSecretariat’sinfluenceontheevolution
ofpeacekeeping 218
8.2 Theoreticalcontributionsandavenues
forfurtherresearch 230
8.3 Concludingremarks 235
Notes 237
Bibliography 256
Index 286
Tables, Figures and Boxes
Tables
3.1 Synopsisofassumptionsaboutinternational
bureaucraciesandtheirinfluence 54
5.1 KeyeventsintheestablishmentofUNTAET 97
5.2 OverviewoftheSecretariat’sinfluenceonthe
establishmentofUNTAET 131
6.1 Constellationofinterestsamongkeypeacekeeping
stakeholdersin1999 140
6.2 Keyeventsforthe2000/1peacekeepingreformprocess 144
6.3 OverviewoftheSecretariat’sinfluenceonthereform
decisions2000/1 174
7.1 Constellationofinterestsamongkeyactorsin2004 184
7.2 KeyeventsfortheestablishmentoftheSPC 187
7.3 ChangestothelanguageontheSPCoverthecourseof
theintergovernmentalnegotiations 205
7.4 OverviewoftheSecretariat’sinfluenceonthe
establishmentoftheSPC 212
8.1 TheinfluenceoftheSecretariatonthreecrucial
peacekeepingdecisions 218
Figures
3.1 Stylisedfocusofanalysis 65
Boxes
5.1 UNTAET’smandateandobjectives 119
8.1 Examplesofstrategiesfordirectinfluence 228
viii
Acknowledgements
Thefirstideasforthisbookcametomindin2003when,asaninternin
theUNDepartmentofPoliticalAffairs,Iwitnesseddaybydaytheslow
yetdramaticbuild-upofwhatbecameanunauthorisedinterventionin
Iraq. During these months in New York I could not help but wonder
what kind of influence the UN Secretary-General (and his colleagues)
actuallywield.
Inthemoresystematicpursuitofthisquestion,manyfriendsandcol-
leaguesinBremen,Berlin,Bonnandabroadhavesupportedme.Among
those who contributed to this research project, special thanks go first
andforemosttoDieterSenghaasandPeterMayerfortheirguidanceand
patience. They supported me from the beginning and encouraged me
throughtheirconfidenceinmywork.Iamalsogratefultomycolleagues
and friends at the Institute for Intercultural and International Studies,
the Collaborative Research Centre 597 and elsewhere at Bremen Uni-
versity,includingMonikaHeupel,BernhardZangl,ChristophHumrich,
Klaus Dingwerth, Jennifer Gronau, Kerstin Blome and Achim Wiesner
forcontinuousintellectualandmoralsupport.IamthankfultoAndrea
LieseandSteffenBauerfortheirenthusiasticyetcriticalinterestinmat-
ters related to international bureaucracies in general and the UN in
particular.
Without the interest and support of members of the German diplo-
matic service in New York and Berlin it would have proved so much
harder to get access to the UN, its meetings and its people. Special
thanks are due, therefore, to Katja Wiesbrock-Donovan for opening
doors, for being up for intense discussions even on a hectic day, and
for showing interest in and encouragement of my line of enquiry.
I am similarly indebted to the national and international diplomats as
well as UN and peacekeeping experts who shared with me their time,
wisdom and experiences, and provided me with invaluable insights.
ColleaguesattheGermanDevelopmentInstitute/DeutschesInstitutfür
Entwicklungspolitik,especiallyDirkMessner,deserveaspecialmention
for creating the beneficial conditions that helped me to finalise the
book.Iwouldalsoliketogratefullyacknowledgetheconstructivecom-
mentsofananonymousreviewerandthekindsupport,professionalism
andpatienceoftheeditorialteamatPalgraveMacmillan.
ix