Peacekeeping is one of the principal activities and foreign policy tools implemented by the international community to create and “maintain international peace and security.” Peacekeeping operations have grown in size and scope since the late 1980s and have included traditional peacekeeping, multidimensional peacekeeping, and peace enforcement. Peacekeeping operations pursue far-reaching objectives ranging from humanitarian assistance and the repatriation of refugees, over the disarmament, demobilization, and reintegration of former combatants, to liberal democratic assistance policies. The proliferation and increased scope of peacekeeping operations imply greater significance of peacekeeping as a tool of foreign policy. As such, peacekeeping operations are not deployed solely according to matters of global peace and security, but the deployment of and contribution to peacekeeping operations is increasingly shaped by individual state’s foreign and security policy considerations. An increasing literature studying the supply side of peacekeeping offers a broad range of arguments for why countries contribute to peacekeeping operations referring to realism, liberalism, alliance politics, or domestic politics. Foreign and security policy goals that states try to attain by participating in peacekeeping operations include status enhancement and influence in the international system, the reduction of the threat of conflict diffusion into its own territory and of a potential influx of refugees, or the stabilization of political relations, international trade, and alliance politics. The existing literature leaves some lingering questions and methodological challenges that require further attention. Of particular importance are questions related to the politics of tool choice and the effectiveness of peacekeeping as a tool of foreign policy. Methodological challenges exist regarding data availability and collection as well as the appropriate modelling of cooperation between different organizations conducting peacekeeping operations and the interdependence of countries’ decisions regarding their choice of peacekeeping as a tool of foreign policy.
Maline Meiske and Andrea Ruggeri
Kate M. Carter and Scott Straus
Contrary to common assumption, major forms of large-scale organized political violence in sub-Saharan Africa have declined in frequency and intensity, and the region is not uniquely prone to the onset of warfare. African civil wars in the 2000s and 2010s are less common compared to the mid-1990s. The character of warfare has also changed. Contemporary wars are generally small-scale, fought on state peripheries and increasingly across multiple states, and involve factionalized insurgents who typically cannot hold significant territory or capture state capitals. Episodes of large-scale mass killing of civilians are also on the decline. That said, other forms of political violence that receive less attention in the academic literature are increasing or persistent. These include electoral violence and violence over access to livelihood resources, such as land and water. Geopolitical shifts since the end of the Cold War are a leading candidate to explain the changing frequency and character of warfare in sub-Saharan Africa. New global priorities, including changes in external state funding opportunities for insurgents, an emphasis on change through elections, investments in conflict mediation strategies, and the rise of China are hypothesized as critical factors shaping the new patterns of warfare.
Africa is a place of enormous variation and its countries have had very different postcolonial experiences. However, it is clear that since the 1940s peace has been elusive for many across the continent. A series of wars driven by poverty, identity, political economy, and failing states led to a widespread crisis of governance and extensive international intervention. Reductions in the security capabilities of states have also led to the growth of violent transnational groups, particularly those related to Islamic extremism in the Maghreb, Nigeria, and Somalia but also criminal networks involved with drug and people smuggling. This wide variety of conflicts also generated an equally wide range of responses as the international community began to develop ways of combating conflicts through reform of its own peacekeeping capacity. The optimism of the 1992 Agenda for Peace, which called for the UN to become the central instrument in the prevention and ending of conflicts, has given way to a more sanguine approach, as mixed results have led to diverse outcomes for African countries and Africa’s own peace and security architecture. In the end, despite the rapid development of important local and localized bottom-up peacebuilding initiatives, the state remains central to the overarching aims of peace and stability across the continent. It is here where the variations in performance can be found in conflict prevention, peacekeeping, and post-conflict reconstruction.
Kai Michael Kenkel
Latin American states have become major providers of troops for UN peacekeeping operations (PKOs) since the early 2000s. MINUSTAH (Mission des Nations Unies pour la stabilisation en Haïti), the UN mission in Haiti, 55% of whose troops were from the region, was a major watershed for local security cooperation and PKO contributions. Led by Brazil, these states were able to develop a specific approach to peacebuilding that reflects regional strengths and experiences, rooted in minimizing the use of force and bringing successful domestic development policies to bear abroad. This approach also reflects the common security and intervention culture that underpins policy in the region. Two states in particular have taken on a role as major providers of peacekeeping contingents. Tiny Uruguay, with a population of 3 million people, has maintained over 2,000 troops deployed on UN PKOs (more than 10% of its armed forces) since 2005. While Uruguay’s motivations are mostly economic—UN reimbursements exceed the country’s costs—Brazil’s ascendance as a major peacekeeping provider during MINUSTAH was part of a larger emerging-power foreign policy project. Participating in peacebuilding allowed the country to provide security through actions in the development realm, bridging a key gap in many rising states’ capabilities, and to mount an incipient challenge to the Western-led peacebuilding paradigm. The remaining states of Latin America show considerable diversity in their peacekeeping engagement, with many others sending small or token contributions and some no troops at all. Latin American states’ involvement in PKOs cannot be understood without looking at their interaction with patterns of civil–military relations in the region. In the case of such states, the effect of peacekeeping participation on civil–military relations, while a key point in need of monitoring, has not been decisive, as other factors prevail. Finally, PKOs have served as the locus for a significant increase in policy coordination and cooperation in the defense arena in the region. As the UN moves toward stabilization operations which privilege counterterrorism measures over the peacebuilding paradigm that is a strength of Latin American countries, PKOs may lose attractiveness as a foreign policy avenue in the region. Additionally, the swing to the right in recent elections may serve to reduce the appeal of a practice which came to the fore under previous left-wing governments.
Interstate conflict has been rare in sub-Saharan Africa and militaries often do not fit the image of a force focused on external threats. Instead, they have often been heavily engaged in domestic politics, regularly serving as regime protection. For many militaries on the continent, the continued internal focus of the armed forces has been shaped by practices under colonialism. One defining feature of African militaries’ involvement in politics is the coup d’état. From the 1960s to the 1980s coups were the primary method of regime change, making the military central to the political landscape of the continent. By the start of the 21st century there were far fewer direct attempts at military control of African states, yet militaries continue to influence politics even under civilian leadership. While there are differences in the role of militaries based on the unique circumstances of each state, there are also general patterns regarding new missions undertaken by armed forces following the end of the Cold War. These include peacekeeping, counterterrorism, and humanitarian assistance, all of which generally involve international partnerships and cooperation. Yet these missions have also had domestic political motivations and effects.
Betcy Jose and Peace A. Medie
Studies have shown that civilians are often intentionally targeted in civil wars and that civilian protection efforts launched by the international community have not always been successful, if they occur at all. Civilians, therefore, have had to rely on themselves for protection in most conflicts. However, despite the pervasiveness of civilian self-protection (CSP) and its success at protecting civilians from violence in some cases, it is rarely discussed in the civilian protection literature, and its impact on civilian targeting is inadequately explored. Addressing this gap in the study and practice of civilian protection by carefully conceptualizing CSP and appreciating its role in civil war dynamics can further scholarly and practitioner discussions on civilian protection. CSP is defined as (a) actions taken to protect against immediate, direct threats to physical integrity imposed by belligerents or traditional protection actors; (b) primarily selected and employed by civilians; and (c) employed during an armed conflict. CSP strategies can be organized into three categories. The first, non-engagement, describes strategies in which civilians do not interact with belligerents or traditional protection actors who pose a threat to them. The second, nonviolent engagement, entails some interaction with one or more actors who may harm civilians. The third, violent engagement, includes CSP strategies that incorporate physical violence. These CSP strategies may actually render civilians more vulnerable to threats. First, some CSP strategies might lock civilians into unpredictable relationships with belligerents, which can become dangerous. Second, allying with one set of belligerents might lead to targeting by opposition forces, who view these CSP strategies as crucial support for their enemies. Third, civilians may overestimate how successful their CSP strategies can be, exposing them to harm. Fourth, civilian use of violence may cause belligerents to view them as threats, leading to intentional targeting. Appreciation of the reasons why civilians engage in CSP and understanding when and how this may endanger them can inspire more effective protection policies, as well as advance our understanding of civil war dynamics. For instance, further study on these issues can provide some insights into the conditions under which CSP is effective in protecting civilians and how the international community can support CSP. This information could be particularly useful in the design and execution of peacekeeping strategies that are sensitive to the efforts and needs of conflict-affected communities. Additionally, studying CSP can advance the vast literature on civilian targeting by shedding additional light on why belligerents kill civilians.
Jessica Di Salvatore and Andrea Ruggeri
Peacekeeping has been one of the main conflict management tools used by the international community to restore or safeguard peace and security. Since 1948, the United Nations has established 70 peace operations and has substantially evolved, adopting approaches to peace that extend beyond purely military concerns. Indeed, the promises of peacekeeping as effective instrument of conflict reduction may, to some extent, explain the evolution toward multidimensional missions and the unprecedented number of peacekeepers deployed in the last decade. As consequence, the growing importance of peacekeeping effectiveness has sparked a new wave of research that empirically investigates whether and under which conditions UN peacekeeping works. Peacekeepers are mostly deployed in conflict or postconflict environments where violence is either ongoing or lingering. Thus, violence remains a priority for peace missions. Consequently, peacekeeping is deemed successful or effective according to whether it curbs conflict in several dimensions. Effective missions are those responsible for decreasing the intensity of battle violence, protecting civilians, and containing conflict diffusion and recurrence in the postwar phase. Each mission, however, is deployed in different contexts and operates under variable conditions that affect the operation’s capacity to influence conflict. Concerning mission features, peacekeeping success is more likely when large contingents are deployed under robust mandates. Mission type, size, and composition signal credible commitment from the international community and empower peacekeepers to halt violence while guaranteeing the implementation of peace agreements. These nuanced understandings of peacekeeping stem from the availability of new data on both conflict and peace operations at the national and subnational levels of analysis. Moreover, the empirical study of the effectiveness of peace operations has recently been flanked by simulation-based forecasting, field experiments, and surveys investigating local-level outcomes of peace missions. Unsurprisingly, the focus on violence and conflict outcomes as indicators of success is debatable. First, in dealing with violence, peacekeeping operations produce spillover effects that are largely neglected, such as refugee flows and terrorist violence. Second, given the wide range of functions performed by UN peacekeepers, including electoral assistance, economic reconstruction, and state building, it is reasonable to include these aspects when defining effectiveness. Third, and relatedly, no assessment of short- versus long-term implications of peacekeeping for political, social, and economic development in the host country has been forthcoming. While reducing infant mortality, inequality, and crime are not necessarily tasks for peacekeepers, it is vital to study whether and how UN missions may have shaped the quality of peace in host countries.
David Altman and Nicole Jenne
Scholars have paid little attention to the Uruguayan armed forces, an institution that has never been fully entrusted with the country’s external security. This is explained by Uruguay’s geographical condition as a buffer state, sandwiched between South America’s biggest countries, Brazil and Argentina. The power differential with either one of them has rendered the prospect of a viable defense futile. Accordingly, those who have studied the Uruguayan military concur that it has traditionally had difficulties finding a place and recognition within the state and society. Throughout its history, the military has been a rather weak institution mostly subordinate to democratic control. After the creation of Uruguay in 1828, it took several decades until a truly national military was established. The late 19th and early 20th century represent an exception in the country’s history as the armed forces underwent a modernization process backed by government resources. Military professionalization consolidated civilian control. Yet, soon after, the strengthening of democratic institutions and a high degree of social stability maneuvered the armed forces into a position of political neglect. This changed rather abruptly in the late 1960s, when a severe social, economic, and political crisis drove the ruling elites to call upon the armed forces to restore order. The military launched a coup d’état in 1973 and remained in power until 1985, when a negotiated transition put an end to the dictatorship and the U.S.-supported National Security Doctrine. Subsequent democratic governments gradually reestablished civilian control and reduced the budget and size of the institution. However, given the stigmas from the dictatorship, together with the traditionally low esteem in which the military has been held, politicians have been slow in taking on necessary reforms in the military and defense sectors. Political neglect has allowed the armed forces considerable autonomy in military and defense policymaking, due to lack of civilian involvement. The decision to have the armed forces participate in UN peacekeeping—since 1992, Uruguay has almost consistently been among the top peacekeeping contributors per capita—has provided solutions to a number of pending questions regarding the role of the armed forces. Participation in peacekeeping allows for financial resources to supplement military salaries and acquisition funds. It provides the armed forces with a mission and has brought them closer to the civilian foreign policy elite. Yet, Uruguay still seems to wonder whether the country wants to have its armed forces.
T. David Mason
Once a civil war ends, there is high probability that the nation will relapse into renewed war within a few years. For a nation where a civil war has recently ended to relapse into renewed conflict, some dynamic process of contention must emerge that makes a resumption of armed conflict one—but not the only—possible outcome of that contentious episode. We can conceive of the dynamics by which contentious politics can lead to civil war recurrence as a function of three conditions. First, one or more dissident groups must emerge with the organizational and military capacity to mount and sustain an armed challenge to the postwar state. Second, one or more of those groups must have the incentive to resort to armed conflict rather than abide by the post–civil war order. Third, conditions and events in the postwar environment must evolve in a manner such that one or more of these groups must determine that they have an opportunity to revolt. This framework can be used to analyze how, in existing research, the outcome and key attributes of the now-ended civil war and conditions in the postwar environment affect whether dissident groups will resume armed conflict or sustain the peace.
Theodora-Ismene Gizelis, Han Dorussen, and Marina Petrova
Peacekeeping has evolved both in its focus and in setting increasingly ambitious goals. In effect, the referent object of peacekeeping—what and whose peace is to be kept—has changed. The peace that is to be kept has evolved from a negative conception of peace to encompassing an increasingly positive understanding of peace. Similarly, the object of the peace has shifted from the global to the national, and ultimately to the local. In effect, this has raised the bar for peacekeeping. Peacekeeping research has mirrored these changes in the expectations and practice of peacekeeping, where the (in)effectiveness of peacekeeping has remained a constant concern. The evaluation has shifted from the authorization and organization of peacekeeping missions to the impact of peacekeepers in avoiding the recurrence of conflict, to ultimately the ability of peacekeepers to change the situation on the ground as well as the interaction between peacekeepers and the local population. Research on peacekeeping has become increasingly methodologically sophisticated. Originally, qualitative case studies provided a largely critical evaluation of the effect of peacekeeping. Large-n quantitative studies have reassessed where peacekeepers are deployed and who provides peacekeepers. Controlling for selection bias and possible endogeneity, quantitative research finds that peacekeeping makes the recurrence of conflict less likely. Disaggregate data on peacekeeping confirm that peacekeeping contains local conflict and protects local civilian populations. At the same time, peacekeepers have had only limited success in positively affecting conflict societies by means of security sector reform and building state capacity. There is little evidence that peacekeeping is able to support democratization and economic development.