Moderator or Manipulator? How International–Local Relations Emerged as a Function of UN Authority-Building in Cambodia

ABSTRACT

The success or failure of international peacebuilding missions is predominantly evaluated in reference to interveners’ ability to exercise their mandated authorities. To test the value of an empirically based analysis of authority-building processes in the course of such missions the article turns to the United Nations Transitional Authority in Cambodia (UNTAC, 1992–1993). In order to safeguard the country’s stability many supported the idea of holding presidential elections in addition to the ones for the Constituent Assembly forming the new government. To organize such unforeseen elections UNTAC would have had to change its mandate as determined by the Paris Peace Accords (PPA). Based on extensive archival research the paper analyses the debate surrounding this proposal as a series of legitimacy claims that were selectively recognized and rejected. The article concludes that evaluations of peacebuilding missions are indeed too focused on interveners’ authority to decide, while neglecting or underestimating challenges to their authority to interpret. This fosters a false sense of control over the direction of political processes.

KEYWORDS:

• UNTAC
• interpretative authority
• legitimacy
• Norodom Sihanouk

Acknowledgements

An earlier version of this article was presented at the ISA West Annual Conference in Pasadena, 2016. I would like to thank the attendees and in particular the discussant David R. Andersen-Rodgers for their helpful comments. I am also grateful to Thorsten Bonacker, André Brodocz, Werner Distler and the two anonymous reviewers.

Disclosure statement

No potential conflict of interest was reported by the author.

Notes on contributor

Katrin Travouillon (Ph.D, Philipp University Marburg), is a Tobis Fellow at the Ethics Center of the University of California Irvine. Previously, she held a post as a research associate at the Center for Conflict Studies in Marburg (2010–2014). Her research focuses on the transformation of Cambodia’s political system after the United Nations Transitional Authority in Cambodia 1992–93. [email protected].

Notes

1 The Agreement on a Comprehensive Political Settlement of the Cambodia Conflict, 23 October 1991, section III, article 3.

2 English translation: National United Front for an Independent, Neutral, Peaceful and Cooperative Cambodia.

3 Quoted from the opening speech of Norodom Sihanouk at the 1989 Paris Peace Conference, 1991.

4 Radio UNTAC programme script, News in full, 6–7 May 1992, 5.

5 Office of the Special Representative of the Secretary General, United Nations Transitional Authority in Cambodia (UNTAC), Lettre à Son Altesse Royale le Prince Norodom Sihanouk, Chef de l’Etat et Président du Conseil National Suprême, 19 October 1992.

6 Rough translation – Interview His Royal Highness Norodom Sihanouk, Khemarin Palace, 22 October 1992, n.d.

7 Quoted from the opening speech of Khieu Samphan at the 1989 Paris Peace Conference, 1991.

8 FUNCINPEC – Kampuchea, n.d.

9 Supreme National Council of Cambodia, Speech of His Excellency Son Sann, 18–19 September 1992.

10 United Nations, United Nations Transitional Authority in Cambodia, (UNTAC). Confidence Building for Peace in Cambodia: Opening remarks, Timothy Carney, n.d.

11 United Nations, United Nations Transitional Authority in Cambodia, UNTAC. Compte-rendu de la réunion du Secrétaire général avec les représentants des partis politiques cambodgiens, n.d.

12 Unsigned protocol. All translations are my own.

13 Présidence de la République, Service de Presse. Allocution prononcée par M. François Mitterrand, Phnom Penh, jeudi 11 février.

14 For internal discussion. A Presidential Election in Cambodia? An opinion. 2 June 1992.

15 Ibid.

16 Ibid.

17 United Nations, UNTAC, Interoffice Memorandum. David Chandler’s Comments on Sihanouk, 30 November 1992.

18 Ibid.

19 Ibid.

20 Ibid.

21 Ibid.

22 Message de Norodom Sihanouk du Cambodge aux bien-aimés compatriots, Pékin, le 7 Janvier.

23 Message de Norodom Sihanouk du Cambodge à Son Excellence Monsieur Khieu Samphan, Président de la Partie du Kampuchea Democratique, Beijing, le 24 Janvier 1993.

24 United Nations, United Nations Transitional Authority in Cambodia, (UNTAC). Attitude de prince Sihanouk face à l’APRONUC, Le 4 février 1993.

25 Déclaration de Norodom Sihanouk du Cambodge, Phnom Penh, le 14 Février 1993.

26 United Nations, UNTAC, Interoffice Memorandum. David Chandler’s Comments on Sihanouk, 30 November 1992.

27 United Nations, United Nations Transitional Authority in Cambodia, (UNTAC). Attitude de prince Sihanouk face à l’APRONUC, Le 4 février 1993.

28 According to a former UNTAC official, the less he agreed, the further he withdrew, thus making a point of being asked to return: ‘When he was angry Sihanouk would go to Siem Reap and stay in his palace there. When he was really angry he went to Beijing and when he was really, really angry he went to Pyongyang’; quoted from an email to the author from the former UNTAC provincial director of Siem Reap (1992–1993) and UN Secretary-General’s Political Representative (1994–1997) Benny Widyono, 20 April 2014.

29 Report on a visit to the FUNCINPEC Zone on September 16, n.d.

30 United Nations, UNTAC, Interoffice Memorandum. Report on the Neak Tasou and Moulinaka for Freedom Party, 15 December 1992.

31 United Nations, UNTAC, Interoffice Memorandum. Report on the Republican Coalition Party, 11 January 1993.

32 United Nations, United Nations Transitional Authority in Cambodia, (UNTAC). Attitude de prince Sihanouk face à l’APRONUC, Le 4 février 1993.

33 United Nations, UNTAC, Interoffice Memorandum. Sihanouk Speech at SoC/CPP Birthday Ceremony on 29 October, 7 November 1992.

34 United Nations, UNTAC, Interoffice Memorandum Report on the FUNCINPEC Congress and a Visit to Rumchang. 5 March 1993.

35 Ibid.

36 Ibid.

Additional information

Funding

This work was supported by the German Research Foundation (DFG) through the Center for Conflict Studies, Philipp University Marburg [grant number BO 1712/6-1].