Canada & the UN >  Canada on the Security Council (1999-2000)

Discussion of Presentations

In the discussion that followed the presentations, there was a general consensus that the increase in open debates and the trend toward greater inclusiveness promoted by Canada, Slovenia and other like-minded non-permanent members constituted important advances. It remained for Canada to sustain the momentum of change and look to the challenges still ahead.

The major emphasis was on exploring the human security agenda and the conceptual framework for humanitarian intervention. One speaker asked if Security Council effectiveness in implementing the human security agenda might be furthered by establishing a set of objective criteria for intervention. Another expressed concern that the term humanitarian intervention itself had come to have too much of a reactive connotation, rather than one that suggested the need to look at the root causes of particular conflicts. Actively encouraging responses that acknowledge root causes might be more constructive than attempting to create a set of consistent or formal guidelines. It was observed, however, that in some cases we do not have the in-depth knowledge of root causes or means to address the deep historical roots of a particular conflict.

That some encouraging steps have been taken in the direction of acknowledging root causes was noted by participants. For instance, the UN intervened in Haiti to counter state violence, but there was a recognition that poverty and the existence of a dual society played a role in the conflict. Nonetheless, it was emphasized that if there is to be pro-active peace-building based on an assessment of root causes, member states and the UN will have to be prepared to make the necessary commitment to that concept.

The participants concurred with the morning’s presenters that the human security agenda must be viewed as a long-term project. Participants concluded that, rather than attempting to have the Security Council adopt humanitarian intervention as a separate theme, or attempt to establish precise rules for the use of force in the context of humanitarian intervention, Canada should work on building the conceptual groundwork for its human security agenda through an emphasis on issues like the protection of civilians and conflict prevention. Above all, it should adopt a case by case approach to international security issues. One participant suggested that Canada should also recognize that some problems are better dealt with at the domestic level and that “self-initiation” of intervention, rather than the imposition of a solution by the international community may be better suited to some states.

Some speakers expressed concern that the maximalist approach to the international security agenda favoured by Canada could overwhelm the capacities of the Security Council and inadvertently lead back to the exclusiveness and inefficiency that Canada and others are working to overcome. Participants agreed that there must be an effort to reconcile the Council’s role with that of other bodies such as ECOSOC and the General Assembly, traditionally the organs charged with addressing humanitarian and peace-building issues.

Several speakers were anxious to point out that ECOSOC and the General Assembly were not likely to surrender their prerogatives. The conflict in Haiti was referred to the General Assembly and the Security Council following ECOSOC deliberations. In that example, the North-South divide within the General Assembly was overcome and consensus on action in the Security Council was reached, largely due to the active role of Latin American countries. The recent referral of the HIV/AIDS issue to the Security Council was also the result of ECOSOC and General Assembly deliberations. These occurrences are not likely to become more common because the General Assembly is currently exhibiting an unfortunate “lack of vigour” that makes forceful responses difficult. Another participant observed that the General Assembly does not have the ability or authority to manage security missions. As such, it was suggested, there was a need to reinvigoration of ECOSOC.

In doing so, however, there should be an awareness of the danger that the use of Article 65 could turn ECOSOC into the “trash can of the Security Council,” with issues diverted to that body when the Security Council had wearied of them. In the future, the General Assembly will need to find a way to overcome its divisions and respond more effectively to pressing issues, as it did in was the case of Haiti. Cooperation between the major organs of the UN is possible, and Canada should continue promoting coherence.

It was pointed out that there is not always agreement in the Council on what constitutes a legitimate problem for its consideration. Those that are “championed,” by the media and public opinion are much more likely to receive attention. It is important, therefore, for Canada to look at the Security Council’s capacity to tackle multiple problems. If media and public opinion push a problem before a Security Council lacking in both political will and adequate resources, the stage is set for failure and a loss of credibility.

One speaker acknowledged that whatever credibility the Security Council has regained in the past year will not endure if the issue of ECOSOC, General Assembly and Security Council coherence is not resolved. There was a view evident during the seminar that the Security Council is learning from experience. The point was made that expectations for the UN are very high at present, but that credibility will always be a challenge. Furthermore, there may be times when alternative means, like regional coalitions, will have to be employed to initiate steps towards a resolution. As one participant noted, it is a matter of what is possible given each set of circumstances. It was suggested that Kosovo and East Timor are positive developments in the area of peace-building and conflict prevention, in that these complex peace support operations seek to head off a recurrence of violence. While there is still the ongoing need to address the problem of member states failing to live up to their financial obligations, it was noted that preparing UN peace-keeping capabilities to meet new security challenges, like peace-building and the protection of civilians is to be focused on in the coming year.