The UN leans forward
The UN last week leaned forward on two important conflicts. The Secretariat went ahead with a Libyan peace deal, despite the refusal of the chairs of the country’s two competing parliaments and some armed groups to sign. A couple of days later, the UN Security Council passed a Syria resolution endorsing the so-called Vienna 2 road map for a ceasefire, negotiations, a new constitution, transition and elections. Neither move ends either war. Optimists hope they are first steps in the right direction.
The roads ahead will be difficult. In Libya, many armed groups seem unready to end their struggle, which is more about control of oil, the country’s substantial sovereign wealth funds and patronage than it is about religion or identity. But that is little comfort. It is not clear whether the Tobruk-based parliament, recognized under the agreement as a powerful lower house, will be able to move to Tripoli. Nor is it clear that the Tripoli-based parliament, which is to become a kind of advisory upper house, accepts its reduced role. Without a substantial deployment of peacekeepers, there is little the international community can do beyond the threat of sanctions against individuals to change their minds. In the meanwhile, the Islamic State is expanding its presence and aiming to control Libya’s vital oil facilities. Maybe that will get the attention of the warring factions.
Syria is no less difficult. The United States and Russia may nominally agree that it should remain united and become a state in which its citizens decide how it is governed, but they differ on whether and when Bashar al Assad should go, who is a terrorist and what should be done to fight the Islamic State. Washington thinks Assad has to leave in order to enable a serious fight against terrorists. Russia thinks he is fighting terrorists but might eventually leave, if and when the Syrian people decide. Russia is mostly bombing people the Americans thinks are moderates vital to Syria’s future, not the Islamic State. Washington is beefing up moderate forces, but refuses to give them the means to end barrel bombing and Russian strikes. Even a ceasefire in Syria will be difficult. The Islamic State and Jabhat al Nusra (an Al Qaeda affiliate) won’t participate. Who will monitor the ceasefire, reporting on violations and who commits them?
None of this means the UN is wrong to try. What it means is that our expectations should be tempered.
A serious ceasefire in all of Syria isn’t likely. Some parts of the country may calm, but the international community will need to settle for “fight and talk,” a time-honored tradition. Agreement on transition isn’t likely either. The day Bashar al Assad agrees that at some future date he will be leaving power will be the day he leaves power. The notion that he will preside over a credible democratic transition is bozotic. He intends to remain in power and will likely be able to do so as long as the Russians and Iranians back him.
In Libya, it is unlikely that the UN-sponsored accord will be implemented without some sort of international peacekeeping presence, to secure at least Tripoli so that the united government the agreement foresees can safely meet and deliberate. That may be neccessary, but not sufficient, since the Islamic State threat is not in Tripoli (yet), but rather in Qaddafi’s hometown of Sirte, and civilians in Benghazi need protection even more than those in Tripoli. Washington isn’t going to bother with Libya, except when it targets an Islamic State militant or two (or two dozen). If Libya is to be stabilized, the Europeans will need to step up to the task, or convince Arab countries to do it. Italy is attached by umbilical pipelines to Libyan gas production. France also enjoys Libyan oil and gas. Europeans with interests need to stop talking and start acting if they want their investments and energy supplies saved.
The UN is also leaning forward in Yemen, where the more or less Shia Houthis allied with forces loyal to former President Saleh are fighting the Saudi- and Emirati-backed effort to restore President Hadi to power in Sanaa. The effort to get a ceasefire and political settlement there is just beginning, without much initial success. Meanwhile, Al Qaeda in the Arabian Peninsula is expanding and enjoying relative immunity in Yemen’s vast hinterlands. The Islamic State can’t be far behind.
The seemingly shy and hesitant Secretary General Ban Ki-moon is proving to be a bold risktaker. The UN is doing the right things. If it didn’t exist, we would have to invent it. American politicians should be more appreciative.
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