Task-Sharing and Peace Operations: The Role of the Organisation internationale de la Francophonie

Abstract

Task-sharing in peace operations raises questions about the relationships between intergovernmental institutions. Since it adopted a new institutional architecture in 1997, the Organisation internationale de la Francophonie (OIF) has been involved in such relationships. Due to new prerogatives in conflict management, this actor has emerged as an institutional ‘third party’ that supports the efforts of peace operations rather than filling the classic task-sharing role of subcontractor. This article focuses on two sides of the OIF in terms of inter-organizational cooperation: a secondary role in the diplomatic sphere, and a major role in the capacity-building of peace operations (from peacekeeping to peacebuilding).

Notes

Boutros Boutros-Ghali, An Agenda for Peace, UN doc., A/47/277, S/24111, 17 June 1992, p.17.

Malte Brosig, ‘The Multi-actor Game of Peacekeeping in Africa’, International Peacekeeping, Vol.17, No.3, 2010, pp.327–42.

Edwin M. Smith and Thomas G. Weiss, ‘Beyond UN Subcontracting: Task-Sharing with Regional Security Arrangements and Service-Providing NGOs’, Third World Quarterly, Vol.18, No.3, 1997, p.611.

In 2012 the OIF brought together 56 states and governments and 19 observers.

Brian Weistein, ‘Francophonie: A Language-Based Movement in World Politics’, International Organization, Vol.30, No.3, 1976, pp.485–507.

Boutros Boutros-Ghali, ‘La naissance d'une nouvelle institution internationale: l'Organisation Internationale de la Francophonie’, Humanisme et entreprise, No.243, 2000, p.13.

Ibid., p.22.

Christine Desouches, ‘Médiation et francophonie: principes, démarche, pratique’, in Jean-P. Vettovaglia (ed.), Médiation et facilitation dans l'espace francophone. Théorie et pratique, Brussels: Bruylant, 2010, pp.281–90.

Joseph Maïla, ‘Y-a-t-il une spécificité de la médiation en francophonie?’, in Vettovaglia (see n. 8 above), p.342.

‘I often repeat, the day where all States will speak the same language, and will be set to think in the same way, then we risk to establish a totalitarian regime in the world’: Boutros Boutros-Ghali, ‘La francophonie: un espace de coopérations politiques et économiques’, Revue française de géoéconomie, Summer 1999, p.88.

OIF, ‘Déclaration de Bamako’, 3 Nov. 2000 (at: http://apf.francophonie.org/IMG/pdf/decla_bamako.pdf).

OIF, ‘Déclaration de Saint-Boniface’, 14 May 2006 (at: www.francophonie.org/IMG/pdf/Declaration_Saint-Boniface.pdf).

For example, Nigeria in the Economic Community in West African States (ECOWAS). See Clement E. Adibe, ‘The Liberian Conflict and the ECOWAS–UN Partnership’, Third World Quarterly, Vol.18, No.3, 1997, pp.484–5.

Such as the capacities of regional actors and their access to adequate resources or the degree of acceptability and the legitimacy of these regional actors. Brosig (see n. 2 above), pp.328–30.

For another methodological perspective, see Rafael Bierman, ‘Inter-organizationalism in Theory and Practice’, Studia diplomatica, Vol.62, No.3, 2009, p.11.

Before the adoption of the Charter of Hanoi, missions had already engaged in electoral observation (consolidated by a series of guidelines): Benin (April 1995); Niger (February 1996); Mali (1997). But reaction to emergency situations was systematized after 1997.

Georg Simmel, Sociology, trans. Kurt H. Wolff, Glencoe, IL: Free Press, 1950, pp.146–7.

OIF, Francophonie. Agir pour prévenir [Francophonie: Act to Prevent], Rapport du panel d'experts de haut niveau sur la problématique du passage de l'alerte précoce à la réaction rapide, Sept. 2010.

Thomas Greminger and Carol Mottet, ‘Le point de vue de la Suisse sur la médiation et la facilitation francophones en Afrique’, in Vettovaglia (see n.8 above), p.335.

The comprehensive approach as a holistic use of tools also deals with inter-organizational cooperation. See Claudia Major and Chritian Mölling, ‘More than Wishful Thinking? The EU, UN, NATO and the Comprehensive Approach to Military Crisis Management’, Studia diplomatica, Vol.62, No.3, 2009, pp.21–8.

Boutros Boutros-Ghali, En attendant la prochaine lune … Carnets: 1997–2002, Paris: Fayard, 2004, p.90.

Ibid., p.24

Boutros Boutros-Ghali, Emanciper la francophonie, Paris: L'Harmattan, 2002, p.8.

Boutros-Ghali (see n. 21 above), p.264.

Ibid., p.126.

The OIF signed a memorandum on facilitation with the AU in 2005.

Boutros-Ghali (see n. 23 above), p.267.

The situation gradually deteriorated from 2007. André Salifou, ‘L'expérience de médiation de l'OIF aux Comores’ [The OIF's experience of mediation in the Comoros], in Vettovaglia (see n.8 above), p.558.

Boutros-Ghali (see n.21 above), p.449.

Abdou Diouf, Passion francophone, Brussels: Bruylant, 2010, p.252.

Boutros-Ghali (see n.10 above), p.108.

See General Assembly resolution, UN doc., A/RES/33/18.

Kofi Annan, ‘Cooperation between the UN and the International Organisation of la Francophonie’, Report of the Secretary General, 20 Sept. 2001, UN doc., A/56/390, p.2.

General Assembly, ‘Cooperation between the UN and the International Organisation of la Francophonie’, Jan. 2002, UN doc., A/RES/56/45; General Assembly, ‘Cooperation between the UN and the International Organisation of la Francophonie’, May 2011, UN doc. A/RES/65/263.

Secretary General, SM/13146, 24 Sept. 2010 (at: www.un.org/News/Press/docs/2010/sgsm13146.doc.htm).

Sarjoh A. Bah and Bruce D. Jones, ‘Peace Operations Partnerships: Lessons and Issues from Coordination to Hybrid Arrangements’, Center on International Cooperation, New York University, May 2008, p.2. See also Brosig (see n.2 above), pp.327–42.

Diouf (see n.31 above), p.252.

Kofi Anan, Cooperation between the UN and the Organisation internationale de la Francophonie, Report of the Secretary-General, UN doc., A/56/390, 20 Sept. 2001, p.9.

Francis Wilcox, ‘Regionalism and the UN’, International Organization, Vol.19, No.3, 1965, pp.788–811.

S. Neil MacFarlane and Thomas G. Weiss, ‘The UN, Regional Organizations and Human Security: Building Theory in Central America’, Third World Quarterly, Vol.15, No.2, 1994, p.277.

Ibid., p.603.

Björn Hettne and Fredrik Söderbaum, ‘The UN and Regional Organizations in Global Security: Competing or Complementary Logics?’, Global Governance, Vol.12, No.3, 2006, pp.227–32.

Not to mention other UN actions through offices located in Burundi, CAR or Guinea.

David Morin and Lori-Ane Théroux-Bénoni, ‘Maintien de la paix et espace francophone’ [Peacekeeping and the Francophone Space], Bulletin du maintien de la paix, No.96, 2009.

Jean-Marie Guéhenno, ‘Synthèse’, Forum regional de Bamako, 17 June 2009 (at: www.operationspaix.net/IMG/pdf/gueheno_conclusion_17_juin_rev1.pdf).

See Final declaration of Quebec Summit (2008) (at: www.francophonie.org/IMG/pdf/decl-quebec-2008.pdf).

OIF, ‘Contribution de l'OIF aux opérations de maintien de la paix’ [OIF contributions to peacekeeping], p.10 (at: www.operationspaix.net/IMG/pdf/Contribution_de_l_OIF_maintien_de_la_paix.pdf).

Babacar Gaye, ‘Vers une integration renforcée de la Francophonie aux efforts de la Communauté internationale’ [Towards reinforced integration of Francophonie in efforts by the international community], Revue internationale et stratégique, Vol.3, No.71, 2008, p.115.

On SSR, see Kossi Agokla, Niagalé Bagayoko and Boubacar N'Diaye (eds), La réforme des systèmes de sécurité et de justice en Afrique francophone [Reform of Security and Judicial Systems in Francophone Africa], Paris: OIF, 2010.

Pierre Buyoya, ‘Le processus de paix au Burundi’, in Vettovaglia (see n.8 above), pp.488–9.

He was replaced by Lansan Kouyaté after his death in 2002.

On Togo, see Boutros-Ghali (see n.21 above), pp.190, 483, 608, 634.

Boutros-Ghali wrote, ‘I have the feeling to have ploughed the sea’ [English would read: ‘I feel like I've ploughed the sea’], in Boutros-Ghali (see n.21 above), p.199.

Rafael Bierman, ‘Inter-organizationalism in Theory and Practice’, Studia diplomatica, Vol.62, No.3, 2009, p.8.

For an evaluation of the situation, see Hugo Sada, ‘Les perspectives et besoins pour la médiation de la Francophonie’ [Perspectives and needs of Francophone mediation], in OIF, Retraite sur la médiation de la francophonie, 2007, p.5 (at: http://democratie.francophonie.org/IMG/pdf/Retraite_mediation_francophonie.pdf). On the OIF as a conflict prevention actor, see Camille Sicourmat, ‘De la prévention des conflits aux opérations de paix’ [On conflict prevention in peace operations], Cahier du CEREM, May 2009 (at: www.irsem.defense.gouv.fr).

On divergences between Canada and France as a structural constraint in francophone cooperation, see Jean-Philippe Thérien, ‘Cooperation and Conflict in the Francophonie’, International Journal, Vol.48, No.3, 1993, pp.492–526.

Jean-Pierre Vettovaglia, ‘Inventory and Tracks for the Strengthening of the Instruments (Process and Resources) Available to the Mediators of the Francophonie’, in OIF (see n.58 above), p.16.

Christopher Hill, ‘The Capability–Expectations Gap, or Conceptualizing Europe's International Role’, Journal of Common Market Studies, Vol.31, No.3, 1993, pp.305–28.

Robert Keohane and Lisa L. Martin, ‘The Promise of Institutionalist Theory’, International Security, Vol.20, No.1, 1995, pp.39–51.

OIF (see n.58 above), p.13.

For pragmatism, see Claudia Morsut, ‘Effective Multilateralism? EU–UN Cooperation in the DRC, 2003–2006’, International Peacekeeping, Vol.16, No.2, 2009, pp.261–72. For a more critical approach, see Bruno Charboneau, ‘What Is So Special about the European Union ? EU–UN Cooperation in Crisis Management’, International Peacekeeping, Vol.16, No.4, 2009, pp.546–61.

Michael N. Barnett, ‘The Limits of Peacekeeping, Spheres of Influence, and the Future of the UN’, in Joseph S. Lepgold and Thomas G. Weiss (eds), Collective Conflict Management and Changing World Politics, Albany, NY: SUNY Press, 1998.

Tom Woodhouse, ‘Peacekeeping, Peace Culture and Conflict Resolution’, International Peacekeeping, Vol.17, No.4, 2010, pp. 486–98.