New conflicts, new challenges: the evolving role for non-governmental actors.

• Author: Mawlawi, Farouk
• Position: Keeping the Peace: Conflict Resolution in the Twenty-First Century

The post-Cold War period marks the downfall of the bipolar paradigm that had governed the understanding and conduct of international relations since the end of the Second World War. This period has been dominated by the outbreak of new types of conflicts throughout the world that can no longer be neatly explained within the context of superpower confrontation. Conflicts increasingly result from tensions between regional or intrastate parties rather than from the influence or intervention of external actors. Whether rooted in ethnic, sectarian, tribal, economic or a combination of these factors, today's conflicts have more complex implications than did those in the past.

While regional and intrastate conflicts continue to escalate, external nation-states appear less likely to become involved. Facing severe economic constraints and pressing domestic problems, the major global powers are reluctant to devote the resources essential to conflict resolution in areas that they no longer consider to be of vital or strategic interest. As United Nations Secretary-General Boutros Boutros-Ghali observed,

Once the worry was intervention; today the worry is that the outside world will watch in horror but lack the will or the means to act to stop the warfare.(1)

This changing context calls for an ongoing redefinition of the relationship between conflicts and diplomacy, and forms the basis of a new international relations paradigm. Current conditions emphasize the need for collective security, placing greater responsibilities with the United Nations and regional organizations.(2) Yet with the multipolarity of the new global order as its premise, this new paradigm also recognizes the enhanced influence of smaller actors in the international system and the increasing importance of coordination among them. Thus, the ranks of recognized actors in modern-day diplomacy have expanded necessarily to include non-state or non-governmental actors.

The significant proliferation of non-governmental organizations (NGOs) in recent years, and their growing contributions to the improvement of the human condition, have led to increased - and long overdue - recognition of the important role they can and do play in preventing and resolving conflicts. When traditional diplomacy fails, nation-states often resort to using military or economic muscle to achieve their goals. While NGOs lack such leverage, they do possess certain enabling characteristics, particular to their non-governmental nature, that enhance their ability to contribute to a more enduring peace. An examination of the unique nature of NGOs, the strengths they bring to the diplomatic process and present NGO efforts in mediation, humanitarian assistance and peace-building will illustrate the numerous ways in which NGOs can effectively contribute to conflict resolution around the world.

The Nature and Scope of NGOs

Broadly defined, NGOs are private, voluntary, non-profit organizations whose members combine their skills, means and energies in the service of shared ideals and objectives. NGOs vary in scope, resource base and influence as well as in functional and ideological orientation. They may be local, national or international, and include service groups, prominent foundations and professional or other membership organizations. NGOs are generally dependent on private resources, but in several countries they receive government support as well. In some cases, government funding may compromise an NGO's independence;(3) nevertheless, as they become an integral part of international politics, NGOs enjoy growing autonomy with respect to governmental decision makers.

The earliest NGOs included religious and humanitarian groups.(4) The number of NGOs began to increase after the First World War, with the creation of such organizations as the International Federation of Trade Unions, the International Federation of University Women and the International Chamber of Commerce.(5) Since the end of the Second World War and the founding of the United Nations, the work of NGOs has expanded considerably. Today, NGO activities and programs address issues of economic and social development, peacemaking and disarmament, the environment, human rights, education, crime, drug abuse, health, population, youth and families. NGOs have shown themselves to be powerful advocates of positive change as well as vociferous opponents of restrictive policies. As expert groups, they have been increasingly effective at influencing policies and programs of national governments and intergovernmental organizations.(6)

NGOs and the United Nations

Largely as a result of lobbying by U.S. NGOs,(7) the United Nations established the basis for a consultative relationship with NGOs through Article 71 of the U.N. Charter.(8) The U.N. General Assembly quickly recognized the importance of collaborating with NGOs and called upon the U.N. Department of Public Information (DPI) to work with NGOs interested in communicating information about the United Nations.(9) Later, the NGO and Institutional Relations Section was established within DPI to provide information and other liaison services to the growing number of NGOS accredited to the United Nations. Currently, approximately 20,000 NGOs from every part of the world have entered into some type of relationship with the U.N. system.(10) NGOs have become key partners with the United Nations in development assistance, providing over $5 billion annually to less-developed countries (LDCs).(11)

In 1968, the U.N. Economic and Social Council (ECOSOC) strengthened and formalized its consultative relationship with NGOs.(12) NGOs with ECOSOC consultative status may participate as observers in sessions of the Council and of its subsidiary bodies.(13) They may also submit written or oral statements to the Council, and present their views and positions at important intergovernmental fora.(14) Thousands of NGOs participated in the U.N. Conference on Environment and Development (UNCED) held in Rio de Janeiro in June 1992. Most U.N. agencies and programs, including the U.N. Children's Fund (UNICEF), the U.N. Educational, Scientific and Cultural Organization (UNESCO) and the U.N. High Commissioner for Refugees (UNHCR), also have established mechanisms for NGO relations. Furthermore, the World Bank has greatly expanded its working relations with local and international NGOs.(15)

The U.N. Division for Palestinian Rights regularly holds international and regional symposia on the question of Palestine for over 960 NGOs accredited with the General Assembly's Committee on the Exercise of the Inalienable Rights of the Palestinian People. NGOs also support the public information campaigns of the U.N. Special Committee Against Apartheid, which holds regular consultations with anti-apartheid activists.

To build awareness and strengthen the involvement of NGOs in the work of the United Nations, DPI convenes annual conferences for NGOs on major issues facing the international community.(16) As regional conflicts pose one of the greatest challenges today, the DPI/NGO conference held in September 1992 focused on the theme, "Regional Conflicts: Threats to World Peace and Progress." Aspects of the following discussion draw on the recommendations and conclusions presented at this important meeting.

Roots in Conflict Resolution

Although religion often has been a divisive influence in human relations, religious and spiritually oriented NGOs have been among the earliest and most prominent actors in conflict mediation and resolution. Religious beliefs, rooted in spiritual values, motivate these groups to undertake the difficult and often frustrating -task of mediation. These NGOs' presence at the grassroots level in many countries also gives them a relative advantage in mediating certain disputes, often making it easier for parties in conflict to accept NGOs' role and to make subsequent concessions with their urging.

Since the Second World War, the American Friends Service Committee and the British Friends - best-known as the Quakers - have been actively involved in conflict mediation, and at times have seconded some of their professional conciliators for assignments on behalf of the United Nations.(17) Well-known for their pacifism and practice of consensual decision making, the Quakers have developed a socially activist program based on their religious beliefs in peace, justice and reconciliation. For many years, Quaker representatives and mediators have demonstrated exceptional patience and perseverance in dealing with complex disputes. Their ability to gain the trust of the disputants during conflicts in the Middle East in 1955 and after the 1967 war, between the two Germanys from 1962 to 1973, during the 1965 India-Pakistan war, as well as the Nigeria-Biafra civil war in 1968 to 1969, attests to the Quakers' skills and credibility. Quaker mediators credit their diplomatic conferences, humanitarian work and other activities with helping them to earn the trust and goodwill of the disputants.(18) The Quakers' wide societal impact is evident from the results of a survey conducted on an exploratory visit to Nigeria, in which nearly half of those interviewed before the outbreak of the civil war had had previous exposure to Quaker activities.(19)

Over the years, other NGOs have expanded their activities in conflict resolution and put their knowledge, skills, reservoirs of goodwill and friendships with disputing parties to constructive use. In many cases, they have proven to be valuable catalysts in defusing dangerous situations. For example, in 1980 Moral Re-Armament (MRA) helped prevent a coup by the Rhodesian army against the then-newly elected prime minister of Zimbabwe, Robert Mugabe, by arranging for direct talks between Mugabe and former Rhodesian prime minister Ian Smith.(20) MRA's success stemmed from its spiritual commitment to peacemaking, combined with its presence as an external but knowledgeable...