New York, 30 October 2007 – In the past month there have been several developments with the work and organization of the UN Peacebuilding Commission.

The General Assembly and Security Council debated the PBC’s first annual report. The report itself was adopted by the Commission and transmitted to the respective bodies in July, but it had not been considered formally until this month. Member States’ support for the work of the PBC seemed strong. However, a number of institutional and substantive issues were identified for further consideration, which may comprise the PBC’s primary challenges for its second year. They include: the relationship between the PBC and other main UN bodies, coordination between the work of the PBC and the Peacebuilding Fund, and the process and timing for adding countries to the PBC agenda. Other stakeholders have noted, in addition, the need for the Commission to find ways to allow more substantive input from civil society.

The peacebuilding plan between the PBC and the government of Sierra Leone (“Cooperation Framework”) was on hold for the national elections in the country, but meetings are resuming in order to finalize the framework before the end of the year. The next step for Burundi is to develop mechanisms to monitor implementation of the June 2007 peacebuilding strategy.

Institutional Developments

The PBC currently consists of: an Organizational Committee led by the Commission’s Chair and comprising 31 elected members; country-specific “configurations” focused on Burundi and Sierra Leone, and a Working Group on Lessons Learned. The PBC is supported in its work by the Peacebuilding Support Office in the UN Secretariat. A Secretary-General’s voluntary Peacebuilding Fund also exists, which provides funding envelopes for peacebuilding in countries receiving advice from the PBC and other countries deemed eligible by the Secretary-General.

New Chairperson

On 12 September the PBC formally elected Ambassador Yukio Takasu of Japan as chairperson. Takasu succeeds Japan’s previous ambassador, Kenzo Oshima, who was elected to head the Commission in June but stepped down as Permanent Representative of Japan in July.

In practice, the Chair-ship of the PBC is a national role. However, it is technically an individual position, and Takasu had to be elected formally after Oshima stepped down. In a statement after the election, Ambassador Takasu pledged both his and Japan’s commitment to achieving the objectives of the Commission.

Debate in General Assembly

On 10 October the General Assembly took up the first annual report of the PBC. The meeting is the mechanism by which the Commission annually reports to the General Assembly as one of its two founding bodies (along with the Security Council).

The report of the PBC highlighted the progress made since it became operational in June 2006 and the challenges ahead. In particular, the report identified the main challenge of the Commission going forward was to maximize its impact on the ground.

Member States – almost 40 delegations made statements – generally expressed enthusiasm for the work of the Commission in its first year, with many noting the institutional challenges that it has already overcome. Many stressed the importance of creating tracking and monitoring mechanisms in countries receiving advice to guide the work of the Commission and ensure sustained engagement. Additionally, States suggested strengthening relationships with the Security Council, the General Assembly and ECOSOC. This had been a theme at the Council’s debate on peacebuilding in January 2007. States also affirmed the importance of maximizing impact on the ground. The Netherlands declared that this is how the Commission would be judged. The United States’ comment stood out for its critique of the Commission; the delegation did not believe there had been tangible contributions to the lives of the people of Sierra Leone and Burundi, and that the Commission had instead spent the first year on institutional issues.

Debate in Security Council

On 17 October the Security Council considered the PBC’s annual report. The same report was presented to the Security Council as had been presented to the GA in July and debated on 10 October.

The PBC had requested that a speakers’ list be opened for the Council meeting. However, the Security Council limited speakers to Council members, the PBC co-chairs, representatives of the countries under consideration, and the chair of the Working Group on Lessons Learned (El Salvador). There was no precedent for the format, since it was the first such debate.

The Chair stated that it was time for the Commission to begin considering additional countries. Several Council members agreed that the Commission should add to its agenda, within its capacity. South Africa and Ghana voiced support for the request of Guinea-Bissau to be included on the agenda of the Commission (see below – Potential Engagement with Guinea-Bissau). Speakers urged caution when considering adding new countries to the Commission’s agenda, saying that the Commission should not overextend itself and build up experience gradually.

The Chair also said it was essential to strengthen the Commission’s relationship with other bodies and actors, including the Security Council, the General Assembly, ECOSOC and the Secretariat, as well as with international financial institutions and civil society. Many members echoed this.

Norway, chair of the country-specific configuration on Burundi, said implementation of the Strategic Framework for Peacebuliding, which outlines the engagement between the PBC and the government of Burundi, was the focus. To that end, a crucial monitoring and tracking mechanism was being set up. Mobilizing resources would be critical for the country.

The Netherlands, chair of the country-specific configuration on Sierra Leone, said the priorities for peacebuilding efforts in the country were: justice and security sector reform, good governance and consolidation of democracy, youth empowerment and employment, capacity-building, and the cross-cutting issues of gender equality and human rights. A priority responsibility of the PBC should be resource mobilization, possibly including a pledging conference. An additional focus should be capacity-building.

The Netherlands also called the Council’s attention to the fact that the PBC did not have pre-established working models. He noted that the regular country-specific meetings and the regular use of technologies such as video-link had been highly effective.

El Salvador, chair of the PBC’s working group on lessons learned, said the group had started to analyze concrete experiences in the transition to peace and development and found that employment opportunities and reform of the security sector were common to most peacebuilding situations.

Italy and Panama expressed disappointment that the Council was unable to hear the statements of certain stakeholders such as the European Union or the Non-Aligned Movement.

Nearly every member expressed the need for the PBC to develop tracking and monitoring mechanisms for the implementation of the strategic frameworks.

Many expressed the importance of national ownership of activities in each country.

Many States raised questions about the relationship between the PBC and the Peacebuilding Support Office, Peacebuilding Fund, and the Secretariat/Secretary-General.

Working Groups

The Working Group on Lessons Learned, currently chaired by El Salvador, explores issues that arise in the course of the country-specific work. It held three meetings in its first year. On 19 September the Working Group on Lessons Learned held its first meeting of the PBC’s second year, to discuss the Strategic Framework model, as well as the issue of indicators and tracking mechanisms in peacebuilding.

The Working Group on Pending Issues dealt specifically with formalizing the rules of procedure for the Commission. As that has been accomplished, the group no longer exists. However, an expert group is to be established eventually to review those rules of procedure.

Funding

The Peacebuilding Support Office requested $4 million from the UN budget for 2008-2009. The GA’s Advisory Committee on Administrative and Budgetary Questions (ACABQ) has reviewed it and sent the request to the Fifth Committee for consideration. The Fifth Committee was scheduled to begin discussion of the budget on 25 October.

Country-specific Work

Sierra Leone

The chair of the Sierra Leone configuration, Netherlands Ambassador Frank Majoor, visited the country from 9-16 October to examine progress following the recent national elections and to work for the development of the PBC’s peacebuilding strategy for the country (which is being called the “Framework for Cooperation”). He met with government officials including the president, vice-president, members of parliament, as well as UN representatives and civil society representatives.

Ambassador Majoor said that Sierra Leone faces several distinct challenges including an urgent need for infrastructure. He also called attention to the largely peaceful high-turnout recent elections and called them an important achievement. In his estimation, the PBC will be able to make a significant positive impact on peace in Sierra Leone.

The Security Council asked the PBC to monitor elections in the country, which was seen as a potential threat to peacebuilding in Sierra Leone. The Sierra Leone configuration recommended that the PBF fund the National Electoral Commission for the elections process, in part because donors to the country had frozen aid ahead of the elections and created a budget shortfall.

The PBC’s draft Framework for Cooperation was delayed until the national elections took place and is intended to be finalized by the end of the year.

Burundi

The PBC responded to an emerging political and security crisis in Burundi, which was due to several factors, including the withdrawal of the opposition group Palipehutu-FNL from the ceasefire agreement with the government, a coinciding parliamentary deadlock, and suspended funding from the IMF pending its review of the country, which put pressure on the socio-economic situation.

The Chair of the Burundi configuration, Ambassador Johan Løvald of Norway, visited the country from 5-7 September. He gave a report to the PBC’s Burundi configuration on 11 September. The Ambassador of Burundi spoke at this meeting to express concern about the IMF and its perceived lack of coordination with the work of the PBC. Several countries agreed with the Burundi statement, and the chair of the Burundi Configuration, Norway’s Ambassador Johan Løvald, noted that it was his intention to be in touch with international financial institutions.

The Commission also held an NGO briefing on the situation in the country, on 14 September. Participants in Burundi and at UN Headquarters provided updated information on the situation in Burundi and contributed in-depth analysis on the political and security crisis that had not been available previously to the PBC. NGO representatives also commented on what the international community could do to address the issues in Burundi. Several participants asked the PBC to put additional pressure on the government and opposition to end the political crisis. Others called for the PBC to urge support for civil society projects aimed at community and medical assistance which have not received funding. This briefing was regarded by several PBC members as an especially successful NGO interaction, and the issues and suggestions raised reportedly enriched the PBC’s consideration of the emerging crisis.

The PBC’s response to the crisis culminated in a set of recommendations to further peacebuilding in Burundi, which they adopted on 19 September.

Specifically,

To the Government of Burundi: Resolve differences with the FNL and address governance issues;

To the FNL: Promptly re-enter the ceasefire agreement;

To the African Union: Continue to support the peace initiative and fully implement the ceasefire by the end of 2007;

To the Security Council: Continue to closely monitor the situation in Burundi and take action if necessary to ensure implementation of the ceasefire;

To the International Financial Institutions, Donors & Governments: To continue to take into account the fragile situation of Burundi and to follow up on previous commitments; and

To the United Nations: Continue supporting the work of the PBC in Burundi.

Regarding the peacebuilding strategy that has been in place since June 2007, the Government of Burundi and PBC-initiated task force in the country have been working to develop a monitoring and tracking mechanism for its implementation.

Potential Engagement with Guinea-Bissau

Guinea-Bissau sent a request for PBC consideration to the Secretary-General, and he formally brought it to the Council’s attention on 19 October. The Council agreed to consider the government's request. The Council then issued a statement that it “takes note of the letter from the Prime Minister of Guinea-Bissau requesting that Guinea-Bissau be placed on the agenda of the Peacebuilding Commission, and expresses its intent to consider the request as a matter of priority.”

The PBC’s founding Resolution (OP 12) says that a request to add a country to the PBC agenda must come from the Security Council or the Secretary-General. In situations where the country is on the verge of relapsing into conflict but the country is not on the Security Council’s agenda, then the General Assembly or ECOSOC can refer it to the PBC with the country’s consent, or the country itself can request the PBC’s attention.

In practice so far, the countries wishing to be considered first sent a letter to the Secretary-General, who brought the requests to the Security Council. Possible other modalities for referring new countries and ways of applying the above agreement are still under discussion.

Coming Up

On Wednesday, 7 November the PBC will hold an open, informal meeting to consult on the draft peacebuilding strategy for Sierra Leone, which the Commission hopes to finalize by the end of the year.

On 27 November the PBC will hold an NGO briefing on Sierra Leone.

Resources

Special Research Report No. 2: Peacebuilding Commission by Security Council Report (9 Oct.): Analyzes the first year of operation of the PBC and assesses its impact since inception in June 2006. It also provides recommendations for “better synergy” between the PBC and the Security Council.

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