Empowering The United Nations

Empowering the United Nations
Author(s): Boutros Boutros-Ghali

Source: Foreign Affairs, Vol. 71, No. 5 (Winter, 1992), pp. 89-102
Published by: Council on Foreign Relations
Stable URL: http://www.jstor.org/stable/20045405 .
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EMPOWERING THE UNITED NATIONS

Boutros
Historic
Boutros-Ghali
to Strengthen
Opportunities
World
Body
in the history of the United Nations

CHAPTER
has begun. With newfound
appeal the world or
t
is being utilized with greater frequency
ganization
of the United Nations,
and growing urgency. The machinery
which had often been rendered
inoperative by the dynamics of
at
the center of international
the Cold War, is suddenly
efforts
as
as
to deal with unresolved
of
the
decades
well
past
problems
ANEW
an
array
emerging
of
future
and
present
issues.
new credibility
to the United
The new era has brought
come
Nations. Along with it have
that the
rising expectations
will take on larger responsibilities
Nations
and a
United
cles
in overcoming
role
greater
to peace
and
community
the U.N.
and
pervasive
and development.
Together
Secretariat
interrelated
the
to seize
need
obsta
international
this
extraor
to expand,
the
adapt and reinvigorate
dinary opportunity
so that the lofty goals as originally
work of the United Nations
envisioned
by the charter can begin to be realized.
Peacekeeping
is a Growth
Industry
IS THE most prominent U.N. activity.

The
"blue helmets" on the front lines of conflict on
PEACEKEEPING
four
ment
continents
to
are
international
some 65 countries,
symbol
peace
representing
of
the United
and
security.
more
Nations'
They
commit
come
from
than 35 percent
of the
membership.
It was not specifically

is a U.N.
invention.
Peacekeeping
defined in the charter but evolved as a noncoercive
instrument
at a time when
of conflict
control
Cold War
constraints
the Security Council from taking the more forceful
prevented
steps permitted
oper
by the charter. Thirteen
peacekeeping
ations were established
1948 and 1978. Five of them
between
14 and 44 years old.
remain in existence,
and are between
Boutros
Boutros-Ghali
is Secretary
General
of the United

Nations.
FOREIGN AFFAIRS
90
sometimes
has
Peacekeeping
easier
proved
than
the
comple
This shows that peacekeep

function of peacemaking.
mentary
to a
cannot
the
solution
permanent
provide
ing, by itself,
can do that.
conflict. Only political negotiation
of peace
the Cold War years the basic principles
During
were
and
the
established
gained acceptance:
keeping
gradually
-
?err*!
T7
The former
via
United
Nations'
peacekeeping
ever.
ment
of
the
by
provided
Yugosla-
become
has
consent
troops
states
the command of
êrving und?
the
parties;
member
mini
the secretary
general;
use of force; collective
mum
It was also learned,
financing.
ften the hard wa?'that
,
Peacue"
success
the
largest
commit-
keeping
of
cooperation
requires
the
parties,
clear and practicable mandate,

the continuing
support of the
and
financial
Council
arrangements.
adequate
Security
in
The end of the Cold War has led to a dramatic expansion
Nations'
Since
services.
demand for the United
peacekeeping
have been established,
five of which
1988 14 new operations
their mandates
have already completed
and been disbanded.
In the first half of 1992 the number of U.N. soldiers and police
officers
increased fourfold;
by the end of the year they will
exceed 50,000.
have been of the traditional,
Some of these new operations
to
control unresolved
conflicts
type, deployed
largely military
between
states.
are
the
military
observers
who
Iran and Iraq from 1988 to

the ceasefire between
zone
those who currently patrol the demilitarized
monitored
1991 and
between
Examples
Iraq
and
Kuwait.
have been set up to help

operations
settlements
of long-standing
conflicts,
negotiated
implement
as in Namibia, Angola,
El Salvador and Mozam
Cambodia,
bique. Namibia was a colonial situation but each of the other
albeit with
four has been an internal
conflict,
significant
But most
external
of the new
dimensions,
within
sovereign
state
member
of
the
United Nations.
There
is another aspect to the end of the Cold War. The
has led to the
geography
political
thawing of its frozen
eruption
of
savage
conflicts
in, and
sometimes
between,
newly
states. The
has
former Yugoslavia
emerging
independent
commitment
Nations'
the
become
United
largest peacekeeping
ever. Ethnic conflict across political borders
and the brutal

THE
EMPOWERING
U.N.
91
of the ordeal that U.N.

killing of civilians there are reminiscent
in
in the then Congo.
the
faced
1960s
forces
peacekeeping
forces
U.N.
are
again
an
taking
level
unacceptable
of
casual
whether
the conditions
ties. It is difficult to avoid wondering
in what was Yugoslavia.
yet exist for successful peacekeeping
another new task: the
The
1990s have given peacekeeping
of
humanitarian
of
the
delivery
supplies to civilians
protection
a
conflict. This is currently underway
caught up in continuing
in
and
Bosnia-Herzegovina
states
member
Somalia,
whose
in a confused
and
have been largely destroyed
of civil conflicts. This
task tests the established
in
the circumstances
of peacekeeping,
especially
practices
which U.N.
soldiers may open fire. Existing rules of engage
ment allow them to do so if armed persons attempt by force to
them from carrying out their orders. This
license,
prevent
used sparingly in the past, may be resorted to more frequently
if the United
is to assert the Security Council's
Nations
institutions
cruel web
over
authority
those
for
who,
personal
Beyond
objectives,
destined
supplies
for
Peacekeeping
NEW
THESE
ALL
far-reaching
are
operations
modes
implications
organized
In internal
one
or war
gain
humanitarian
try to rob or destroy
civilian
suffering
populations.
conflicts,
and
of peacekeeping
have had
for the way in which U.N.
conducted.
or indeed
in interstate
conflicts where
or other
to exercise
in a
of the governments
is not
position
over
not all
under
full authority
its
control,
territory
nominally
are
a result
As
the parties
the
have
governments.
peacekeepers
had
The
to learn how to deal with a multiplicity

of "authorities."
leaders of such groups are often inaccessible
and their
even
identity
chains
unknown;
of
are
command
shadowy;
armed persons who offend against agreements

signed by their
are
or
leaders
is nonexistent
disowned;
supposed
discipline
brutal. And
there is an evil and uncontrolled
everywhere
of
proliferation
Peacekeeping
personnel.
more
help
was
But
important
implement
or
arms.
still
operations
now
the
civilian
role. This
comprehensive
invariably
elements
is especially
and
include
often
true when
complex
have
military
an
even
the task is to
settlements,
as
El Salvador, Cambodia
is the case in Namibia,
and
to
Political
action
is
resolve
Mozambique.
required
disputes

92
FOREIGN AFFAIRS
between
the parties
and
Information
arrangements.
agreed
them
persuade
programs
to implement
must
the
the
explain
United Nations'
role and advise the people of the opportuni
must be brought
ties the settlement
gives them. Refugees
home and resettled. Elections must be observed and verified or
and conducted
even, in Cambodia,
organized
by the United
Nations.
Local
must
police
to ensure
be monitored
that
carry
they
out
their duties in the spirit of the new order and not the old.
an especially
for human
Respect
rights must be verified,
In the latter
in
El
task
Salvador
and
Cambodia.
important
has
for control
United
the
Nations
also
country
responsibility
structures.
ling the key parts of the existing administrative
All of these tasks, some of them very intrusive, must be
carried out with complete
impartiality by civilian peacekeep
ers. Staff members
of the U.N. system, with policy and election
observers
new
made
civilian
available
by member
states,
have
to these
risen
challenges.
involvement
of such a variety of civilian personnel,
creates a need for tight
their military
colleagues,
alongside
of all aspects of an operation. As a result it has
coordination
become
normal for the overall direction
of a multifaceted
a senior civilian
to
to
be
entrusted
peacekeeping
operation
as
to
of the secretary general,
official
special representative
The
the
whom
force
of
director
elections
Must
Responses
commander,
and other
headlong
to accelerate
need
current
On
finance,
finance,
with
general
operations,
also
general
limits,
The
expansion
report.
learned during
the
of U.N.
peacekeeping
deployment
or four
three
Council's
Security
becoming
operational
fronts:
LESSONS
the
procedures
the
of
new
months
between
of a mission
authorization
in the field. Action
is required
personnel
the member
and
states
equipment.
should
provide
and its
on three
the
a working
capital fund for the start-up
so that cash is immediately
available. They
the

recent
is the
Under
operations.
can
elapse
so that
financial
existing
procedures
to
within
that
has
cash,
spend
authority
as soon
as the new
is authorized.
operation
more
of
is
question
complicated.
personnel
revise
the
commissioner,
Be Quick
OF THE
ONE
the police
directors
secretary
of new
should
secretary
reasonable
Procedures
EMPOWERING THE U.N.
93
of U.N. staff to new operations

in the field are
more
being simplified for
rapid reaction. But most peacekeep
are made
ing personnel
(troops, police, election observers)
for the transfer
available
by
standing
force, which would
to
but
extend
and
answer
The
governments.
more
make
is not
be impractical
systematic
ments
to create
a U.N.
and inappropriate,
arrange
standby
commit
to hold
themselves
governments
by which
an
at
of
trained
for
units
notice, specially
ready,
agreed period
service.
peacekeeping
A handful of governments
already do this. A recent invita
tion to all member
states to volunteer
information
about what
and
in
would
be
personnel
equipment
they
principle
ready to
if
results. I have
contribute,
asked, produced
disappointing
now decided
to take the initiative and put
to
specific proposals
in
to
order
with
reasonable
governments,
identify
certainty
sources of
and police personnel
and equipment
that
military
would
governments
notice. These
that
could
commitments
be
to make
undertake
when
used,
would
the
at very
available
constitute
moment
building
to
came,
short
blocks
construct
in various sizes and configurations,

operations
peacekeeping
a
small group of military
to a full
observers
ranging from
as
division,
required.
Allied
with this effort will be the provision of more extensive

to governments
on training troops and
guidance
police who
to
contribute
the
United
Nations
for
may
they
peacekeeping
duties.
can
Equipment
can
be
eased.
the United
(vehicles,
always
cause
are two
nel. There
First,
even
complementary
member
states
ways
should
to establish a reserve
Nations
radios, generators,
prefabricated
required
for
a new
than
bottlenecks
greater
in which
it
make
possible
for
stock of basic items

that are
buildings)
Second,
operation.
peacekeeping
person
this problem
states could agree to hold

member
ready, at various locations
around the world, reserves of such equipment. These would
remain their property but could be made
avail
immediately
able to the United Nations when the need arose.
An
even
more
radical
development
can
now
too often
to
that the parties
happens
ceasefire agreement
but then fail to respect
tions it is felt that the United Nations
should
This is a reasonable
if
the
United
expectation
an effective system of collective
security. The
enforcement
units (perhaps they should be
all
be
envisaged.
It
a conflict
sign a
it. In such situa
"do something."
Nations
is to be
of
purpose
peace
called "ceasefire

94
FOREIGN AFFAIRS
to
units") would be to enable the United Nations
a
to
coercive
enforce
ceasefire
by taking
deploy troops quickly
action against either party, or both, if they violate it.
This concept retains many of the features of peacekeeping:
the operation would be authorized by the Security Council;
the
enforcement
_;_
iTT
U.N.
to use
authorized
to ensure
WOUld
troops
respect
by member
untarily
be
would be under
of the secretary
be
they would
force
for
tween *e
the ceasefire."
be
would
troops
,
tion
them
^?if
only
violated
vol
provided
states;
they
the command
and
general;
impartial be
sides>
one
or
ac;
tak?n?
of
other
cease
the agreed
to the extent
fire. But the concept goes beyond peacekeeping
without
the express
would be deployed
that the operation
consent of the two parties (though its basis would be a ceasefire
reached between
them). U.N.
troops
agreement
previously
ensure
use
to
to
force
would be authorized
respect for the
ceasefire. They would be trained, armed and equipped accord
ingly; a very rapid response would be essential.
This
is a novel idea that involves some obvious difficulties.
considered
But it should be carefully
by the international
as
next
in
of the United
the
the
step
development
community
to
to take effective action on the ground
Nations'
capability
maintain
Unpaid
international
peace
and
security.
Bills
HAVE
BEEN prolonged
THERE states in meeting

peacekeeping
of the
largest
operations.
and most
delays by member
their financial
obligations
For
four
complex
instance,
U.N.
months
operations
regarding
into
ever,
one
only
to the U.N.
states had fully paid their obligations
nine member
in
in
Cambodia.
Transitional
payment add to
Delays
Authority
the
the fragility of an already delicate mission
by hampering
to
in
the
and
United Nations'
causing delays
deploy
capacity
turn
and
timetable
the agreed
in
threaten
schedule. These
a time when the United
At
entire
the
peace process.
jeopardize
than ever, it is being
is being asked to do more
Nations
states who have breached
their
shortchanged
by the member

EMPOWERING THE U.N.

legal obligations
and deprived
the United
Nations
95
of necessary
resources.1
occur against a background

of dramati
difficulties
costs
for
and
peace
cally increasing
establishing
maintaining
the first half of 1992 there was a
During
keeping operations.
in peace
increase
fourfold
These
some
costs?from
keeping
"The activities
to about $2.8 bil

$700 million
are likely to rise
lion. Expenses
even higher with new and ex
that could
operations
panded
in the coming
be launched
months.
Meanwhile
the
of the
United Nations for
peace and security

should not be carried
out at the expense of
its responsibilities
for
contin
ued failure of most member

states to meet
their financial
developmemt."
to peacekeeping
commitments
and to the United
operations
in general
is a most serious problem. The continued
Nations
as well as the
of
these
of the
missions,
viability
credibility
United Nations
itself, is threatened.
Development
Mounting
Needs
STABILITY
is not an end in itself; it is a
of
economic
and social develop
condition
durable
POLITICAL
ment and the fulfillment
of the human potential. At the same
time inseparable
links between peace and development
need
to be acknowledged
and understood.
The world has seen the
and social conditions
of economic
deterioration
give rise to
political strife and military conflict. The activities of the United
Nations for peace and security should not be carried out at the
for development.
It is essential
expense of its responsibilities
an
in
that peace and development
be pursued
integrated,
mutually
One
supporting
can
point
way.
to a number
of
situations
where
the United
has kept the peace, or at least prevented

conflicts from
but the balance sheet on the development
side is
escalating,
A billion people
less than encouraging.
live on less than one
in many parts of the world are dying
dollar a day; children
Nations
states with the largest arrears,

in both regular budget
five member
and
Êditor's Note: The
as of October
assessments
South Africa,
1992, are the United
States, Russia,
peacekeeping
and Ukraine.
Japan

FOREIGN AFFAIRS
96
of diseases
unnecessarily
that
could
and
striving to be both breadwinners
tions of intolerable
and
there
strain;
than merely
another
crisis is deeper
familiar disparity between
the developed
South.
and the developing
No such clear-cut pattern offers itself
and
countries
European
the
be
easily
are
in situa
homemakers
are too few jobs. The
of the
manifestation
nations of the North
to our eyes today. East
Soviet
former
women
cured;
are
Union
strug
and market-based
gling in their transition toward democracy
Even the nations of the Organization
economies.
for Economic
and
Cooperation
are
Development
not
to economic
immune
and
social ills. Poverty, unemployment,

inequity and growing
in
exist
of
the globe. Even rich
insecurity
virtually every part
are
turn
to
to
inward
attend to their own
nations
tempted
But today there is no longer any such thing as
agendas.
"someone
else's
the
problem";
communications
our
deepens
of
globalization
economies
and
interdependence.
of the United Nations

in the field of
The
responsibilities
are central to the purposes
social and economic development
of
and principles of the charter: first, because the maintenance
and
is
with
entwined
international
peace
security
inextricably
and social progress
economic
and stability; and second, be
cause the promotion
is a
of social and economic
progress
specific task given to the United Nations by the charter.
Development
policy was significantly
shaped by the Cold
War
and
being
the
at San Francisco
framed
current
world
were
today's
extensive
either
The
empires.
When
were
and
social
issues
charter
colonies,
notion
of
was
of our
most
of
parts
was
un
"development"
from
sprang
created,
or
being
semi-colonies
the concept of the "Third World"

formed;
The
idea that the United Nations
should
economic
the
in 1945, and when most
institutions
economic
states
of
of decolonization.
process
had not emerged.

be concerned with
what
has
been
called
which evolved in wartime planning

"welfare internationalism,"
influence on the Bretton
for the peace and was a formative
Woods
institutions dating from that period.
momentum
in
As demands
for independence
gathered
and Asian
African
cooperation
were joined
no
recent
while
lands,
of
programs
assistance
and
economic
were initiated by former colonial powers. These

established
by assistance programs
by states with
colonial
the World
past,
such
as
the Nordic
Bank was becoming
countries.
the lead institution

Mean
in the
EMPOWERING
channeling
of multilateral
development
THE
U.N.
97
to developing
finance
countries.
to newly independent
assistance
Provision of development
nations became part of the foreign policies of the industrial
ized countries,
intricately bound up with the global contest for
The
influence.
and
power
its ?nn
United
*.
ir
j
States,
through
for International De-
Agency
a major
became
velopment,
fiof
provider
development
nance and technical assistance
foreign
were
programs
an instrument
Cold
War,
aid
often
of the
remain
and
*?**> <$?** by con

Slderations
?T
?AiS?
Bilateral
was deeply involved with a relof political

states
small
number
of
and
national
atively
power
considered
signifipotentially
policy."
cant in its ideological
sphere,_
tech
substantial
and provided
assistance
nical support for them. In both cases development
was often interwoven with military aid.
the vision of collective
distorted
Just as the Cold War
set
in
it also impaired coop
forth
the U.N. Charter,
security
Bilateral foreign aid programs were
eration for development.
of the Cold War,
and remain deeply
often an instrument
of
affected
considerations
and national
power
by
political
policy.
Multilateral
programs,
development
even
when
man
ethical purpose,
derived from
aged well and with admirable
at
ideas and ideologies
best and in
that proved
inadequate
some
cases
ruinous.
At this time of change in world affairs, when restructuring

the institutions of international
relations is high on the agenda,
there are increasing demands
for action in the field of eco
nomic and social development.
The call for a new unity and
of
from
the
in the field of
United Nations
purpose
clarity
to include
is now commonly understood
development?which
social and economic development
and environmental
protec
come from developing
coun
tion as well?has
and developed
tries
alike.
U.N.
social development
activities have con
the most
of populations.
vulnerable
groups
at
in
countries
efforts
modernization
Increasingly
developing
that hold the social fabric together. Declin
tug at institutions
Traditionally
on
centrated
ing
social
cohesion,
in
turn,
can
undermine
economic

prog
98
FOREIGN AFFAIRS
ress. The
to take a closer look at

is beginning
organization
social cohesion and to view the
specific phenomena
affecting
of development
social and economic
dimensions
in a more
Issues
of
and
cultural, religious,
integrated way.
demography
ethnic and linguistic diversity are so closely related today to
that
prospects for political stability and economic advancement
in issues of social
the involvement
of the United
Nations
nature.
is acquiring a qualitatively
different
development
If the process of decolonization
is over and the Cold War has
ended, and now that there is no "struggle" or bipolar compe
tition to dramatize
and distract development
efforts, how can
consensus
on
the United Nations
seek
the need for a fairer,
more just, world and focus on the long-standing
needs of the
poor?
a
Today
is
are
the
resource
greatest
around
emerging
that the unfettered
perception
beings
consensus
talents
a
of
can
society
fundamental
human
individual
to bear
bring
on
the task of national development.

But the troubled state of the
we
are still far from achieving
that
indicates
global economy
economic
universal
social
prosperity,
justice
and
environmen
tal balance.
for development
will require
the
Cooperation
as
in
effort
the
ahead
intellectual
because,
greatest
period
not
and applied until now, it has
understood
resolved
the
of
the
of
the
The
need
is
urgent problem
development
planet.
Issues
comprehensive.
tially, now may
Changed
View
once
or
separately,
approached
be seen as essentially
sequen
indivisible.
of Sovereignty
era to
FROM one international
TRANSITION
as
at
is
it
has
been
earlier
another
THE
symbolized
today,
in
the
of
the United Nations,
turning points
history
by a new
states taking their seats in the General
group of member
(Armenia,
Assembly.
Azerbaijan,
Bosnia-Herzegovina,
San
Kazakhstan,
Croatia,
Moldova,
Georgia,
Kyrgyzstan,
Turkmenistan
and Uzbekistan
Marino,
Slovenia, Tajikistan,
all joined in 1992.) Their entrance reaffirms the concept of the
state as the basic entity of international
relations
and the
means by which peoples find a unity and a voice in the world
community.
While
of
the
respect
state
old doctrine
for the fundamental
remains
central,
of absolute
and exclusive
and integrity
sovereignty
it is undeniable
that
the
sovereignty

centuries
no
longer
EMPOWERING THE U.N.

stands,
and
was
rethink
which
to
the
so absolute
intellectual
of
question
that
as
its essence,
and cooperation,
one
than
to
conceived
of our time is to
to weaken
security
take more
it may
it was
requirement
sovereignty?not
to international
is crucial
recognize
never
in fact
be in theory. A major
99
form
and
but
perform
than one function. This perception

could help solve
states.
both
and
within
And
the
among
problems
underlying
a
of
the
and
of
is
the
individual
dimen
rights
peoples
rights
sion of universal
sovereignty
that resides in all humanity and
". . . the centuries-old
provides all peoples with legit
doctrine of absolute
in issues af
imate involvement
sover
fecting the world as a whole. It and exclusive
is a sense
that increasingly
eignty no longer
in the gradual
finds expression
more
expansion
of
international
law.
to this is the widen

that states and
ing recognition
Related
cannot
their
governments
solve
today's
International
alone.
and was
stands,
never
so absolute
was
to be in
conceived
problems
cooper
or
advancement
and
frustration
of
the United
the significance
setting
can match
evident and accepted. Nothing
of
network
global
information-gathering
which
it
face
quality, extent
the difference
and indispensable.
ation is unavoidable
The
will make
and timeliness of such cooperation
activity,
as
theory."
or
between
in fact
reaches
from
modern
In
despair.
this
Nations
should be
the United Nations'
and constructive
centers
world
of
power
down to the villages and families where people carry out the
of their lives.
irreducible responsibilities
can
At the other end of the scale only the United Nations
convene
or
global-scale
governments
integrated
to
approaches.
meetings
examine
Such
of ministers
complex
gatherings
and
heads
issues
and
can
have
of
states
propose
enormous
on
for the world's
the Conference
good. At
implications
in Rio de Janeiro
in June
Environment
and Development
states obligated
to take global
themselves
1992, for example,
in
into
consideration
their
domestic
decisions.
consequences
a
This is fundamental
philosophic
undertaking
by the world's
one
more
to
the
nations, adding
pillar
gradually growing array
of internationally
of national conduct.
accepted principles

100 FOREIGN AFFAIRS

the U.N.
Reforming
THE PROMISE
of an effective and coop
in the first instance,
erative United Nations means,
RENEWING
and the broader
reform of the organization
system of special
is much
that can be done
ized agencies from within. There
that this will be an evolutionary
now, but itmust be understood
process. The world is still in some ways in its "Middle Ages"
it comes
when
to international
Centuries
were
and
baronial
cal
required
forces
was
and
organizations
the struggle
before
among
into states
transformed
cooperation.
monarchi
of
capable
in the fields of security, economy

carrying out responsibilities
is no doubt that the institutions of the U.N.
and justice. There
system must travel such a path if chaos is to be avoided.
and a common
resolve by member
Given firm leadership
can be made by
states I am confident
that major achievements
the end of this century.
To initiate reform from within I launched, soon after taking
a
office
iat. My
a process
year ago,
first
short-term
and excessive
This process
redundancy
headquarters.
continue
a coherent
toward
harness
the work
in
preeminence
coherence
the
Bretton
missions
widespread;
of
the
various
the Economic
Similarly,
the
charter,
and form
Woods
and
the
duplication,
strategy.
and
has
to the work
institutions,
of U.N.
array
coordination
of
organizations
act more
must
committee
Secretar
layering of offices and duties at

some results and must
has brought
institutional
and
agencies
specialized
the U.N.
restructuring
was
to eliminate
on Coordination
Committee
heads
the executive
together
The Administrative
est body bringing
This
of
aim
is often
U.N.
the
Social
proved
system.
to guide
definitively
of
organizations
is the high
of all the
the
Council,
too weak
regional
programs.
nominal;
system.
its
despite
to
of the specialized
the
and
provide
agencies,
economic
Duplication
bureaucratic
com
is
bat
a particular
at monopolizing
subject are rife, and
are
in conflict.
sometimes
objectives
organizational
The proliferation
of institutions that characterize U.N. work
in the economic,
fields has been
social and environment
states often
of previous
another product
decades. Member
tles aimed
on a
Bureaucracies
basis.
for measures
piecemeal
pressed
as
set up
substitutes
for
sometimes
problem-solving
to
rather
in some
cases,
served,
camouflage
problems
to
them
serious
attention.
expose

were
and
than
EMPOWERING THE U.N.

I have
in a continuous
spond
the
and
economic
enable
It
sphere.
should
threats
encompassing
the
high
to
council
re
to new developments
and timely way

social
function
warning
to
mechanism
intersessional
level
of a flexible
the introduction
recommended
101
an
possess
to
and
security
in
early
well
being: from energy crisis to the burden of debt, from the risk
of famine to the spread of disease. As the Security Council can
so the Eco
in the cause of peace,
envision new possibilities
role can be significantly
nomic and Social Council's
strength
are
of development
ened. At this time when old conceptions
new
are
of
the
and
element
each
fading
departures
required,
anew
to
U.N.
reexamine
and justify
its
system will need
it employs.
mission
and the human and financial resources
The
of Peoples
Interaction
exist for shared, delegated

POSSIBILITIES
and
to
the
interactive
contributions
world
NEW
organization
from the burgeoning
number
of regional
and
associations
agencies and the huge network of nongovernmental
organi
zations that in the past largely operated from North America
and Europe but increasingly are a feature in countries all over
the world. More than a thousand NGOs are active in the United
Nations, working
through and with people everywhere.
There
an
is
level
to
ships
among
this
even
deeper
trend:
nations
relation
are in-
creasingly shaped by continu-
ous
interaction
bodies
among
and
politic
entire
"Governments
increas
ingly prove
ineffective
?n ?/^r
.
economic.
effortS
to COn
L
.jr
Such activity almost resembles ôl, guide or even keep

a force of nature, and indeed track of these flows of
may be just that. Political borders and geographic

boundaries
pose
process.
slight barriers
Governments
ingly prove
these
for
flows
influences
ideas,
the foreseeable
evolving
As
of
one
relationships
area
for
such
increas
in efforts
ineffective
and
ideas,
influences
transactions."
to this
to guide
and
or even keep
transactions.
The
sense
future will be to make
between and among peoples.
efforts,
I have
of
"post-conflict
peace-building."
concrete
cooperative
projects
challenge
of
these
the concept
put forward
the aftermath
of warfare,
link two or more
countries
In
that
track of

102 FOREIGN AFFAIRS

in a mutually
and peoples
beneficial
to economic
contribute
hance
the
can not only
undertaking
and
confidence
social
development
to peace.
is so essential
that
but
en
also
Freer
travel,
exchanges,
youth projects and changes in educational
serve
to forestall a reemergence
of cultural
practices all could
tensions
and national
that could spark renewed
hostilities.
not
will
be
Post-conflict
needed
peace-building
only in cases of
for
the
international
but
also
of
conflict,
increasing number
cultural
internal
intrastate,
tions, beyond
as
is now
achievement
crucial;
plans
Nations
United
action.
Beyond
must
undergo
required.
Beyond
declara
to look at ideas
the time is here
position-taking,
for
today.
the U.N. Charter was kept alive for

very difficult circumstances.
Hope has
SPIRIT OF
decades under
THE
been
arising
Culture
U.N.
Changing
conflicts
culture
the
restructuring,
a transformation.
of
the
to a status
The bipolar contest relegated
the United Nations
to rhetoric,
far removed from its original design. A propensity
to protocol and a delight in maneuvering
for marginal
advan
tage
tions'
or
national
prestige
Committees
activities.
came
to characterize
and
many
have
commissions
delega
as
been
to find
duties
governments
signed
important
only
of
lower level officials, un
through assignment
participating
to engage
authorized
tasks
too
urgent
today
is too
Time
seriously.
to
permit
these
precious
and
the
indulgences.
era a fundamental
In the Cold War
split was taken for
granted on virtually every issue. We have been relieved ofthat
we
But
burden.
or
cannot
debate.
expect
The
dispute
problems
not at all obvious.
the solutions
we must
serious
differences
expect
to be
free
us
before
If we work
of
of
controversy,
and
complex
on them,
seriously
Rather
than be
opinion.
are
deterred by this we should be grateful and eager to engage in

are
the intellectual
struggle that is needed.
Sharp differences
but
inevitable,
broad
dialogue
between
requires
ment
of
the
all
empowerment
at all
fullest
states,
states
authority
of
the
and
of the United
and
turn
society
and
Nations
engage
the
for their
institutions.

secretary
requires
in civil society and a hearing
international
to
committed
consultation,
participation
in
small. This
and
large
of people
levels
I am
is possible.
the member
the world
Preserving
general.
voices
consensus

Empowering The United Nations

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Empowering The United Nations

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Empowering the United Nations

Author(s): Boutros Boutros-Ghali

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