3.4 National Reconciliation Promoted

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National reconciliation is a key priority in a post-conflict setting because it is critical to attaining a lasting peace and political stability. The political process, supported by the work of the mission, must create enough opportunities and space for this to take place. Reconciliation is a long-term process. In the immediate term the mission can provide crucial political leadership that inspires the parties to a recently ended conflict. Ultimately, however, the leaders and the population must desire reconciliation more than conflict in order to achieve a sustainable peace. Domestic political institutions retaking control is an important phase as conflict gives way to development but unless this is accompanied by the long process of reconciliation, challenges can very easily resurface. The MLT’s continued engagement on this front – for example by monitoring consent and progress and mentoring change – will be critical. The role of the mission is to help consolidate legitimate institutions, not a particular group or party. This requires sensitivity in handling the changing relationship between the mission and the host government.

3.4.1 Operational activities

Operational activities by the mission to support this output include:

Contributing to a secure environment free from violent conflict and
Engaging with the host government’s leadership to promote national dialogue and reconciliation over the recent past, including supporting truth and reconciliation commissions.
Acting as a bridge between local communities and host authorities to rebuild trust and engaging the civilian population in all stages of the process through traditional social mechanisms or democratic representation.
Ensuring that the civilian population begins to consider itself secure and able to live without fear in the new political dispensation.
Providing training and capacity-building for key societal figures and youth who are managing the reconciliation process or are part of it, taking account of their independence and how representative they are of the different parties and actors, and the level of female representation.
Capacity building for national/local media as they provide critical support for the reconciliation process.

3.4.2 Benchmarks

Short-term

Agreements among relevant groups, such as a power-sharing agreement, peace accord or amnesty, have been signed and are credible and durable.
Key legitimate and credible persons have been identified who will be involved in the reconciliation.
Training programmes in legal, conflict-resolution or mediation skills have been put in place for those individuals who will manage the reconciliation.
Advocacy and education programmes to promote and explain the reconciliation process have been put in place and are working effectively.
Evidence of increasing perceptions of security among the local population.
Women and youth are appropriately represented and are at the forefront of the reconciliation process.
Inclusive discussions on the drafting of a new constitution are under way.

Medium-term

Laws have been promulgated or modified to allow successful implementation of the agreed reforms.
The process of restoring civil society activities and participation has begun.

Long-term

Domestic political institutions are robust enough to manage the effects and results of the reconciliation process (e.g. reintegration of former combatants, criminal sentences for those found culpable, forgiveness and/or amnesty).
National and international policies and responses are better integrated with long-term development frameworks.

3.4.3 Responsibilities and coordination

The mission must support the creation of national reconciliation and enable a secure environment in which it can take place. In addition, the HoM can provide a sustained political voice to underpin the process and to nudge the parties and local populace in this direction. At the same time, the HoM needs to be mindful of what constitutes a sustainable pace for the local population. The HoM is responsible for coordinating the international community’s efforts towards national reconciliation, particularly within the UN system, and the role of UNDP, OHCHR and others in bringing together different groups in reconciliation efforts.

The HoM should therefore be aware of some of the programmatic tensions in this regard.

3.4.4 Resources

In coordinating the international system’s efforts, the MLT should help to convene international stakeholders, including regional and subregional actors, international financial institutions, the UNCT and relevant Member States to support the reconciliation process. The MLT should also do its utmost to generate not just donor interest but engagement in supporting the often-fragile process of national reconciliation. In this context, advocating and pinpointing concrete projects to donors would be one way of supporting the process. Another would be to show some creativity in the way key donors could be invited to support a special fund at the disposal of the HoM for initiating political support and reconciliation functions. Under such a scheme, which has been implemented in some peacekeeping operations in the past, the HoM would be accountable to those donors for how funds are allocated and for furtherance of the more political aims of the peace process.

3.4.5 Challenges and risks

National reconciliation is a long-term endeavour and peacekeeping operations can only provide a helping hand in starting and supporting the process. There can be frequent breakdowns or reversals due to disagreements between the parties. While the time horizon of the mission is necessarily shorter and based on its time-limited mandate, it must always take a long-term view. Exit strategies are needed for the handover of its political functions and support for national reconciliation to other organizations on the departure of the mission.
National reconciliation processes do not necessarily result in the most just political dispensation. They require constant management, and great sensitivity and judgment. Political stability sometimes has to be balanced against justice, but this requires a nuanced approach as there is no simplistic trade-off between peace and justice.
If possible, the exact role of formal judicial bodies in the context of reconciliation should be negotiated and settled before any specific measures are taken, otherwise ongoing judicial investigations and proceedings may be compromised.
An uncoordinated relationship with judicial entities could lead to untimely prosecutions or the undoing of a locally managed reconciliation process.
Reconciliation risks establishing a regime of revenge and a reanimation of tensions. At the same time, general pardons can undermine the accountability of individual actors. Attempts by the parties to provide amnesties for war crimes, violations of international humanitarian law (IHL) and crimes against humanity should not be condoned by the UN.
National reconciliation processes resulting in regimes that combine democratic and non-democratic elements can affect the political culture and challenge political stability.
The lack of a constructive relationship between citizens and political parties, and political parties driven by narrow interests, can undermine the promotion of national reconciliation.
Premature withdrawal of a mission in order to meet the requirements of a timely exit strategy before reconciliation has taken root would jeopardize the long-term peace process.

3.4.6 Considerations

Understanding both the national and the multi-locals of the conflict

Missions tend to focus on the national level with national partners, but it is important for the mission leadership to recognize that conflict often has multiple local manifestations and is experienced differently across national populations. It is essential to understand local conflict dynamics by regularly reaching out to engage with local populations whose views may be at variance with those at the national level.

Peace and justice

Peace and justice are fundamental to ending violence and preventing its recurrence. Building a durable peace involves addressing the underlying causes and sources of peace and violent conflict, along with sequencing justice activities. If the process is hastened, it risks igniting a short-term tension between peace and justice. Justice is not just about respecting the victims and punishing the perpetrators; it is also about re-establishing trust in institutions and reconstituting the fabric of an atomized society. The MLT may also need to consider a situation in which actors on the ground insist on addressing issues through national customs, but progress is not made over an extended period.

Promoting international advocacy while supporting national ownership

There will inevitably be tensions between those international partners and donors that urge national reconciliation on the parties and the inclination on the part of local partners to favour a slower, more gradual process of national reconciliation.