R A N D - I N I T I AT E D RESEARCH CHILD POLICY This PDF document was made available CIVIL JUSTICE from www.rand.org as a public service of EDUCATION the RAND Corporation ENERGY AND ENVIRONMENT HEALTH AND HEALTH CARE Jump down to document6 INTERNATIONAL AFFAIRS NATIONAL SECURITY POPULATION AND AGING PUBLIC SAFETY SCIENCE AND TECHNOLOGY SUBSTANCE ABUSE TERRORISM AND HOMELAND SECURITY TRANSPORTATION AND INFRASTRUCTURE The RAND Corporation is a nonprofit research organization providing objective analysis and effective solutions that address the challenges facing the public and private sectors around the world Support RAND Purchase this document Browse Books & Publications Make a charitable contribution For More Information Visit RAND at www.rand.org Explore RAND-Initiated Research View document details Limited Electronic Distribution Rights This document and trademark(s) contained herein are protected by law as indicated in a notice appearing later in this work This electronic representation of RAND intellectual property is provided for noncommercial use only Permission is required from RAND to reproduce, or reuse in another form, any of our research documents This product is part of the RAND Corporation monograph series RAND monographs present major research findings that address the challenges facing the public and private sectors All RAND monographs undergo rigorous peer review to ensure high standards for research quality and objectivity THE UN’S ROLE IN NATION-BUILDING FROM THE CONGO TO IRAQ James Dobbins, Seth G Jones, Keith Crane, Andrew Rathmell, Brett Steele, Richard Teltschik, Anga Timilsina This research in the public interest was supported by the RAND Corporation, using discretionary funds made possible by the generosity of RAND’s donors and the fees earned on client-funded research Library of Congress Cataloging-in-Publication Data The UN’s role in nation-building : from the Congo to Iraq / James Dobbins [et al.] p cm “MG-304.” Includes bibliographical references and index ISBN 0-8330-3589-4 (pbk : alk paper) Democratization—Case studies United Nations—Peacekeeping forces—Case studies United Nations—Military policy—Case studies United Nations— Economic assistance—Case studies United Nations—Technical assistance—Case studies Peace-building—Case studies I Dobbins, James, 1942– JZ4984.5.U534 2005 341.5'84—dc22 2004027669 The RAND Corporation is a nonprofit research organization providing objective analysis and effective solutions that address the challenges facing the public and private sectors around the world RAND’s publications not necessarily reflect the opinions of its research clients and sponsors R® is a registered trademark Cover design by Stephen Bloodsworth © Copyright 2005 RAND Corporation All rights reserved No part of this book may be reproduced in any form by any electronic or mechanical means (including photocopying, recording, or information storage and retrieval) without permission in writing from RAND Published 2005 by the RAND Corporation 1776 Main Street, P.O Box 2138, Santa Monica, CA 90407-2138 1200 South Hayes Street, Arlington, VA 22202-5050 201 North Craig Street, Suite 202, Pittsburgh, PA 15213-1516 RAND URL: http://www.rand.org/ To order RAND documents or to obtain additional information, contact Distribution Services: Telephone: (310) 451-7002; Fax: (310) 451-6915; Email: order@rand.org DEDICATION The cover photographs are of UN Secretary-General Dag Hammarskjöld in the Congo (left) and UN Special Envoy Sergio Vieira de Mello in Iraq (right) They are the two most senior representatives to have given their lives in the course of UN nation-building operations over the last 60 years This work is dedicated to them and their many colleagues who have made that ultimate sacrifice iii PREFACE This study contains the results of research on best practices in nationbuilding It is intended to complement a companion volume, America’s Role in Nation-Building: From Germany to Iraq, which focuses on U.S.-led nationbuilding efforts Its purpose is to analyze United Nations military, political, humanitarian, and economic activities in post-conflict situations since World War II, determine key principles for success, and draw implications for future nation-building missions The study contains the lessons learned from eight UN cases: Belgian Congo, Namibia, El Salvador, Cambodia, Mozambique, Eastern Slavonia, Sierra Leone, and East Timor It also examines the nationbuilding effort in Iraq This study was sponsored by the RAND Corporation as part of its mission to conduct research in the public interest The effort was made possible by the generosity of RAND’s donors and the fees earned on client-funded research RAND is a nonprofit institution that helps improve policy and decisionmaking through research and analysis The research was conducted within the RAND National Security Research Division (NSRD) NSRD conducts research and analysis for the Office of the Secretary of Defense, the Joint Staff, the Unified Commands, the defense agencies, the Department of the Navy, the U.S intelligence community, allied foreign governments, and foundations For more information on the National Security Research Division, contact the Director of Operations, Nurith Berstein She can be reached by e-mail at Nurith_Berstein@rand.org; by phone at 703-413-1100, extension 5469; or by mail at the RAND Corporation, 1200 South Hayes Street, Arlington, Virginia 22202-5050 More information about RAND is available at www.rand.org iv CONTENTS Preface iv Figures xi Tables xiii Executive Summary xv Acknowledgments .xxxix Abbreviations xli Chapter One INTRODUCTION Methodology Outline of the Story Chapter Two CONGO Challenges Security Humanitarian Civil Administration Democratization Economic Reconstruction UN and Other International Roles 10 Military and Police 11 Civil and Economic 12 What Happened 12 Security 13 Humanitarian 18 Civil Administration 19 Democratization 20 Economic Reconstruction 23 Lessons Learned 25 v vi The UN’s Role in Nation-Building: From the Congo to Iraq Chapter Three NAMIBIA 29 Challenges 31 Security 31 Humanitarian 32 Civil Administration 32 Democratization 33 Economic Reconstruction 33 The UN and International Roles 34 Military 34 Civil and Economic 35 What Happened 36 Security 36 Humanitarian 39 Civil Administration 39 Democratization 40 Economic Reconstruction 41 Lessons Learned 42 Chapter Four EL SALVADOR 45 Challenges 47 Security 47 Humanitarian 48 Civil Administration 48 Democratization 49 Economic Reconstruction 50 The UN and International Roles 51 Military and Police 51 Civil and Economic 52 What Happened 53 Security 54 Humanitarian 58 Civil Administration 59 Democratization 61 Economic Reconstruction 63 Lessons Learned 64 Chapter Five CAMBODIA 69 Challenges 70 Security 70 Humanitarian 71 Contents vii Civil Administration 72 Democratization 73 Economic Reconstruction 74 The UN and International Roles 75 Military and Police 76 Civil and Economic 77 What Happened 78 Security 78 Humanitarian 81 Civil Administration 82 Democratization 85 Economic Reconstruction 87 Lessons Learned 88 Chapter Six MOZAMBIQUE 93 Challenges 95 Security 95 Humanitarian 96 Democratization 96 Economic Reconstruction 97 The UN and International Roles 97 Military and Police 97 Civil and Economic 98 What Happened 99 Security 99 Humanitarian 102 Democratization 102 Economic Reconstruction 103 Lessons Learned 103 Chapter Seven EASTERN SLAVONIA 107 Challenges 110 Security 110 Humanitarian 110 Civil Administration 111 Democratization 111 Economic Reconstruction 112 The UN and International Roles 112 Military and Police 114 Civil and Economic 115 What Happened 116 viii The UN’s Role in Nation-Building: From the Congo to Iraq Security 116 Humanitarian 118 Civil Administration 120 Democratization 121 Economic Reconstruction 122 Lessons Learned 123 Chapter Eight SIERRA LEONE 129 Challenges 131 Security 131 Humanitarian 134 Civil Administration 134 Democratization 135 Economic Reconstruction 135 UN and Other International Roles 136 Military and Police 137 Civil and Economic 138 What Happened 138 Security 139 Humanitarian 142 Civil Administration 143 Democratization 144 Economic Reconstruction 145 Lessons Learned 146 Chapter Nine EAST TIMOR 151 Challenges 153 Security 153 Humanitarian 153 Civil Administration 156 Democratization 156 Economic Reconstruction 157 The UN and International Roles 158 Military and Police 159 Civil and Economic 160 What Happened 162 Security 162 Humanitarian 166 Civil Administration 168 Democratization 171 ... Cataloging -in- Publication Data The UN’s role in nation-building : from the Congo to Iraq / James Dobbins [et al.] p cm “MG-304.” Includes bibliographical references and index ISBN 0-8 33 0-3 58 9-4 ... administrators • the uneven quality of military components • the even greater unevenness of police and civil administrators xviii The UN’s Role in Nation-Building: From the Congo to Iraq • the. .. operations xxx The UN’s Role in Nation-Building: From the Congo to Iraq In both cases, these smaller American-led forces proved unable to establish a secure environment In both cases, the original U.S