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I NTERNAT IONAL ORGAN I SAT IONS

AND PEACE ENFORCEMENT

What distinguishes a peace enforcement operation from an invasion?This question has been asked with particular vehemence since the USintervention in Iraq, but it faces all military operations seeking to imposepeace in countries torn by civil war. This book highlights the critical roleof international organisations as gatekeepers to international legitimacyfor modern peace enforcement operations. The author analyses fiveoperations launched through four organisations: the ECOWAS inter-vention in Liberia, the SADC operations in the Democratic Republic ofCongo and Lesotho, the NATO Kosovo campaign and the UN interven-tion in East Timor. In all these campaigns, lead states sought the mandateof an international organisation primarily to establish the internationallegitimacy of their interventions. The evidence suggests that inter-national relations are structured by commonly accepted rules, that bothdemocratic and authoritarian states care about the international legiti-macy of their actions, and that international organisations have a keyfunction in world politics.

K A T H A R I N A P . C O L E M A N is an Assistant Professor in theDepartment of Political Science at the University of British Columbia.

© Cambridge University Press www.cambridge.org

Cambridge University Press978-0-521-87019-1 - International Organisations and Peace Enforcement: The Politics ofInternational LegitimacyKatharina P. ColemanFrontmatterMore information

http://www.cambridge.org/0521870194

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INTERNATIONAL

ORGANISATIONS AND

PEACE ENFORCEMENT

The Politics of International Legitimacy

KATHAR INA P . COLEMAN






CAMBR IDG E UN I V ER S I T Y P R E S S

Cambridge, New York, Melbourne, Madrid, Cape Town, Singapore, Sao Paulo

Cambridge University Press

The Edinburgh Building, Cambridge CB2 8RU, UK

Published in the United States of America by Cambridge University Press, New York

www.cambridge.org

Information on this title: www.cambridge.org/9780521690348

# Katharina P. Coleman 2007

This book is in copyright. Subject to statutory exception

and to the provisions of relevant collective licensing agreements,

no reproduction of any part may take place without

the written permission of Cambridge University Press.

First published 2007

Printed in the United Kingdom at the University Press, Cambridge

A catalogue record for this book is available from the British Library

ISBN 978-0-521-87019-1 hardback

ISBN 978-0-521-69034-8 paperback

Cambridge University Press has no responsibility for

the persistence or accuracy of URLs for external or

third-party internet websites referred to in this book,

and does not guarantee that any content on such

websites is, or will remain, accurate or appropriate.






CONTENTS

List of maps page vii

List of figures viii

List of tables ix

Acknowledgements x

List of abbreviations xii

1 Introduction 1

2 States, international organisations, and legitimacy:

a theoretical framework 19

3 Peace enforcement through sub-regional organisations:

the Economic Community of West African States and

Operation Liberty in Liberia 73


the Southern African Development Community and

Operation Sovereign Legitimacy in the Democratic

Republic of Congo 116


the Southern African Development Community and

Operation Boleas in Lesotho 160

v






6 Peace enforcement through a military alliance: the North

Atlantic Treaty Organisation and Operation Allied Force

in Kosovo 194

7 Peace enforcement through a global organisation:

the United Nations and INTERFET in East Timor 240

8 Conclusion 278

Epilogue: UN intervention in Lebanon 314

Appendix: Summary of interviews conducted 326

Bibliography 327

Index 349

vi C O N T E N T S






MAPS

1.1 NATO, ECOWAS, and SADC members page 14

3.1 Economic Community of West African States (ECOWAS)

in 1990 75

4.1 Southern African Development Community (SADC)

in 1998 118

6.1 North Atlantic Treaty Organisation (NATO) in 1999 197

7.1 Geographical distribution of INTERFET forces 272

vii






FIGURES

3.1 Troop contributions to ECOMOG page 82

3.2 National shares of total 1989/90 ECOWAS GDP

(excluding Liberia) 83

3.3 Deviations from burden-sharing for ECOMOG 84

4.1 National shares of total 1998 SADC GDP

(excluding DRC) 129

4.2 Deviations from burden-sharing for Operation

Sovereign Legitimacy 130

5.1 National shares of total SADC GDP, 1998 170

5.2 Troop contributions for Operation Boleas 171

5.3 Deviations from burden-sharing in Operation Boleas 172

6.1 National distribution of sorties during Operation

Allied Force 203

6.2 National contributions to NATO relative to shares of

total NATO GDP 204

7.1 Operating outside the UN assessment system: winners

and losers 254

7.2 INTERFET troop contributions, 29 October 1999 271

viii






TABLES

1.1 Peace enforcement operations page 8

1.2 Interventions with peace enforcement attributes 10

4.1 Troop contributions to Operation Sovereign Legitimacy 128

8.1 Summary of case studies 280

ix






ACKNOWLEDGEMENTS

I encountered many kinds of generosity while I was researching andwriting this book, and I am very grateful for them all. The empiricalchapters could not have been written without the help of the individualswho consented to be interviewed for this project. They are not all quoteddirectly in this book, but they all helped inform its argument. I wouldlike to thank them for their time and their insights. I would also like tothank the Smith Richardson Foundation, the Christian A. JohnsonEndeavor Foundation, the Princeton University Center of InternationalStudies, the Princeton University Research Program in InternationalSecurity, and the Princeton University Council of Regional Studies forenabling me to travel to Australia, Belgium, Botswana, Ethiopia, Nigeria,and Zimbabwe to conduct these interviews. The success (and fun) of thesetrips owed a great deal to a few individuals who made me welcome andhelped me find my bearings. Heartfelt thanks to Desmond Ball and RobertAyson in Canberra, Sascha Fong in Brussels, RumbidzaiMashozhera, TerryFarnham, and Yusuf Hassen in Addis Ababa, Halima Ahmed andMercedesMensah in Abuja, and Ngoni Mararike in Harare.

I was also fortunate enough to receive exceptional academic adviceand support in writing this book. Jeffrey Herbst and Michael Doyleoffered invaluable guidance in the initial stages of planning and execut-ing the research. Together with Aaron Friedberg, they also read multipledrafts of the emerging study and invariably provided insightful andconstructive comments. Peter Dauvergne, Brian Job, Richard Price,and Allen Sens all read drafts of chapters and I am deeply grateful fortheir time, support, and perceptive observations. Angela O’Mahonyhelped me think through parts of the argument aloud and was fabulousabout the maps. My colleagues make UBC a wonderful place to work.Ana-Maria Blanaru proofread a complete draft with unfailing attentionto detail. At Cambridge University Press, John Haslam, Carrie Cheek,and Jo Breeze expertly guided this project towards publication, and two

x






anonymous reviewers contributed greatly to the quality of this book.Any remaining flaws, of course, are mine alone.

At a personal level, I would like to thank my wonderful parents, Karinand Heinz Pichler, who waited a long time for this book. Thanks also toSascha Fong, my sister and reality-check, who actually does what I juststudy. I am also grateful to Soledad Salas, Debbie Thompson, RosalieJanowicz and Kathleen Cauley, who made it possible for me to write abook and be the happy mother of happy children. Finally, my greatestthanks go to my husband David, who has been there every step of theway – even when I was a continent away. This book is for him, and forSophia and Alisa.

A C K N OW L E D G E M E N T S xi






ABBREVIATIONS

ADF Australian Defence ForceANAD Accord de Non-aggression et d’Assistance en matiere de

Defense (Mutual Non-Aggression and Defence Pact)ANC African National CongressAPEC Asia-Pacific Economic CooperationARRC Allied Command Europe Rapid Reaction CorpsASEAN Association of South East Asian NationsAU African UnionBCP Basotholand Congress PartyBNP Basotho National PartyCIS Commonwealth of Independent StatesCTF Combined Task Force (Operation Boleas)DPKO Department of Peacekeeping Operations (UN)DRC Democratic Republic of CongoEAPC Euro-Atlantic Partnership Council (NATO)ECOMOG ECOWAS Ceasefire Monitoring GroupECOWAS Economic Community of West African StatesFRETLIN Revolutionary Front for an Independent East TimorFRY Federal Republic of YugoslaviaINTERFET International Force East TimorKLA Kosovo Liberation ArmyMNF Multinational forceMSC Mediation and Security Council (ECOWAS)NAC North Atlantic Council (NATO)NATO North Atlantic Treaty OrganisationNPFL National Patriotic Front of LiberiaOAS Organisation of American StatesOAU Organisation of African UnityOSCE Organisation for Security and Cooperation in EuropeRLDF Royal Lesotho Defence Force

xii






ROEs Rules of EngagementSADC Southern African Development CommunitySANDF South African National Defence ForceSMC Standing Mediation Committee (ECOWAS)TNI Tentara Nasional Indonesia (Indonesian military)UN United NationsUNSAS United Nations Standby Arrangement System

L I S T O F A B B R E V I A T I O N S xiii






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INTERNATIONAL ORGANISATIONS AND PEACE ENFORCEMENT …assets.cambridge.org/97805218/70191/frontmatter/9780521870191... · INTERNATIONAL ORGANISATIONS AND PEACE ENFORCEMENT What distinguishes