fl Con ict Management in Divided Societies This exciting and innovative new textbook takes a multi-perspective approach to the study of conflict management in divided societies. Offering a wide range of perspectives from leading experts in the field, the book examines the philosophies underpinning constitutional design, the actors and processes involved and the practicalities of the settlement process, combining conceptual and theoretical contributions with empirical case studies. In so doing, the contributors provide a comprehensive introduction to the study of conflict management in divided societies. Features and benefits of the textbook: (cid:1) clearly explains the theories underpinning constitutional design, including power sharing, centripetalism, power dividing and territorial self-governance; (cid:1) surveys the key actors and processes involved in designing and implementing peace settlements, including the evolution of diplomacy in peacemaking, with separate chapters on crafting solutions for divided societies from the perspectives of the UN, EU, AU and NGOs; (cid:1) explores the realities on the ground, with chapters written by specialists drawing on their experience of working in conflict zones. Written in a clear and engaging style, this book is essential reading for all students of conflict management. Stefan Wolff is Professor of International Security at the University of Birmingham, UK. Christalla Yakinthou is Country Manager of the International Center for Transnational Justice’s Cyprus Program and Honorary Research Fellow in the department of Political Science, University of Western Australia. fl Con ict Management in Divided Societies Theories and practice Edited by ff Stefan Wol and Christalla Yakinthou Firstpublished2012byRoutledge 2ParkSquare,MiltonPark,Abingdon,Oxon,OX144RN SimultaneouslypublishedintheUSAandCanada byRoutledge 711ThirdAvenue,NewYork,NY10017 RoutledgeisanimprintoftheTaylor&FrancisGroup,aninformabusiness ©2012editorialandselectedmatter,StefanWolffandChristallaYakinthou;the contributors,theircontributions. TherightofStefanWolffandChristallaYakinthoutobeidentifiedaseditorsofthis workhasbeenassertedbytheminaccordancewiththeCopyright,DesignsandPatents Act1988. Allrightsreserved.Nopartofthisbookmaybereprintedorreproducedorutilizedinany formorbyanyelectronic,mechanical,orothermeans,nowknownorhereafterinvented, includingphotocopyingandrecording,orinanyinformationstorageorretrievalsystem, withoutpermissioninwritingfromthepublishers. Trademarknotice:Productorcorporatenamesmaybetrademarksorregistered trademarks,andareusedonlyforidentificationandexplanationwithoutintent toinfringe. BritishLibraryCataloguinginPublicationData AcataloguerecordforthisbookisavailablefromtheBritishLibrary LibraryofCongressCataloginginPublicationData Conflictmanagementindividedsocieties:theoriesandpractice/editedbyStefanWolff& ChristallaYakinthou. p.cm. Includesbibliographicalreferencesandindex. 1.Conflictmanagement–Philosophy.2.Conflictmanagement–Methodology.3.Conflict management–Casestudies.4.Ethnicconflict–Prevention–Casestudies.5.Divided government.I.Wolff,Stefan,1969–II.Yakinthou,Christalla,1980– JZ6368.C652011 303.6’9–dc22 2011013052 ISBN:978-0-415-56373-4(hbk) ISBN:978-0-415-56374-1(pbk) ISBN:978-0-203-80300-4(ebk) TypesetinSabonbyTaylor&Francis Contents List of tables vii List of contributors viii Foreword by Álvaro de Soto xiii Acknowledgements xvii List of abbreviations xviii Introduction 1 CHRISTALLA YAKINTHOU AND STEFANWOLFF PART I Theories of conflict management 21 1 Consociationalism: power sharing and self-governance 23 STEFANWOLFF 2 Centripetalism: cooperation, accommodation and integration 57 BENJAMINREILLY 3 Power dividing: the multiple-majorities approach 66 PHILIP G.ROEDER PART II Processes and actors 85 4 The diplomacy of conflict management 87 I.WILLIAMZARTMAN 5 Quiet diplomacy: preventing conflict through discreet engagement 100 CRAIGCOLLINS ANDJOHN PACKER 6 Imperfect but indispensable: the United Nations and global conflict management 116 ANOULAK KITTIKHOUNANDTHOMASG.WEISS vi Contents 7 Regional origins, global aspirations: the European Union as a global conflict manager 135 NATHALIE TOCCI 8 Limited capabilities, great expectations: the African Union and regional conflict management 151 JOHN AKOKPARI 9 Political engagement, mediation and the non-governmental sector 167 KATIA PAPAGIANNI PART III Case studies 185 10 Between theory and practice: Rwanda 187 JANINENATALYA CLARK 11 The challenges of implementation: Guatemala 201 VIRGINIE LADISCH 12 The failure of prevention: Kosovo 217 MARC WELLER 13 A never-ending story: Cyprus 233 CHRISTALLA YAKINTHOU 14 The potency of external conflict management: Northern Ireland 249 ADRIANGUELKE Index 263 Tables 1.1 Content and context as success conditions for consociational conflict management 31 1.2 Groups and their corresponding territorial entities 34 1.3 Institutional arrangements 36 14.1 European Parliament elections, main parties’ percentage of first preferences, 1979–2009 256 14.2 Assembly elections of 2007, 2003 and 1998: results for five main parties in terms of percentage of first-preference votes and seats 257 Contributors John Akokpari holds a doctorate from Dalhousie University, Nova Scotia, Canada. He has taught and researched in Dalhousie University, St. Mary’s University (both in Canada), the University of Lesotho and is currently Senior Lecturer in the Department of Political Studies at the University of Cape Town, South Africa. He was a Visiting Research Fellow at the Institute of Developing Economies at Chiba, Japan, between January and June 2007. Akokpari has published widely on a variety of topics on African politics, including civil society, democratisation, development, foreign policy, globalisation, international migration, conflicts, regionalism, conflict management and the environment. Janine Natalya Clark is a lecturer in International Politics and Ethnic Conflict in the Politics Department at the University of Sheffield. She received her PhD in 2006 from theUniversityofNottinghamand wassubsequentlyaPostdoctoralResearchFellow in the International Politics Department at Aberystwyth University (2006–2009). Before joining the University of Sheffield, she held lecturing posts at the University of York andQueen’sUniversityofBelfast.Herresearchinterestsincludepost-conflictsocieties, particularly in the former Yugoslavia and the African Great Lakes; conflict resolution; war crimes; transitional justice and the relationship between criminal trials and inter- ethnic reconciliation. Clark is the author of Serbia in the Shadow of Miloševic´: The Legacy of Conflict in the Balkans (I.B. Tauris, 2008), and recent work includes: ‘Justice, Peace and the International Criminal Court: Limitations and Possibilities’, Journal of International Criminal Justice (2011); ‘UN Peacekeeping in the Democratic Republic of Congo: Reflections on MONUSCO and Its Contradictory Mandate’, Journal of International Peacekeeping (2011); ‘Transitional Justice, Truth and Recon- ciliation:AnUnder-ExploredRelationship’,InternationalCriminalLawReview(2011) and ‘Missing Persons, Reconciliation and the View from Below: A Case-Study of Bosnia-Herzegovina’, Southeast European and Black Sea Studies (2010). Craig Collins is Coordinator of the Initiative on Quiet Diplomacy (IQd), which seeks to address the causes of conflict by developing institutions within inter-governmental organizations, by providing key actors with tools and techniques to address recurring issues, and supporting and facilitating dialogue and mediation processes. In his work with IQd since its inception in 2004, Collins has engaged representatives of governments, regional and other IGOs, and conflict parties to build effective inter- governmental conflict prevention mechanisms, effectively employ a quiet, problem- solving approach to working with parties, and promote the meaningful participation of women and marginalized groups. Among other experience in this field, Collins has Contributors ix contributed to official and non-official processes in the Middle East, South Asia and the Pacific Islands; advised IGOs, governments and NGOs; and advocated policy change and early action. Hehas also workedfor the UNDPto developPacificregional capacitiesforpreventivediplomacy. Collinshasspecializedin thestructures,mandates andconflictpreventionpracticeofIGOs,andintherelationshipbetweenhumanrights protection, good governance and conflict management. He holds a Master’s of Law and Diplomacy from The Fletcher School of Law and Diplomacy. Adrian Guelke is Professor of Comparative Politics and Director of the Centre for the Study of Ethnic Conflictin the School of Politics, International StudiesandPhilosophy atQueen’sUniversity,Belfast.RecentpublicationsincludeTheNewAgeofTerrorism and the International Political System (IB Tauris, 2009), Terrorism and Global Disorder (IB Tauris, 2006) and Rethinking the Rise and Fall of Apartheid (Palgrave Macmillan, 2005), as well as the co-edited second edition of A Farewell to Arms? (Manchester University Press, 2006) on the Northern Ireland peace process. Studies he has edited in the field of politics and ethnicity include The Challenges of Ethno- Nationalism (PalgraveMacmillan, 2010) and Democracyand Ethnic Conflict(Palgrave Macmillan, 2004). He is the chair of the International Political Science Association’s research committee on politics and ethnicity, as well as the editor of the journal Nationalism and Ethnic Politics. Anoulak Kittikhoun is a political affairs officer at the UN Department of Political Affairs in New York. Previously, he was Research Associate at the Ralph Bunche Institute for International Studies, Adjunct Professor at Brooklyn College, and Adviser at the Permanent Mission of Laos to the UN. He received his PhD in political science from The City University of New York Graduate Center. He was the co-editor, with ThomasG. Weiss, of the March 2011 special issue of the International Studies Review on ‘Theory vs. Practice’, bringing together leading scholars and practitioners to explore issues such as regionalism, rising powers, disarmament, fragile states, respon- sibility to protect, sanctions, human rights, development, environment and financial governance. Virginie Ladisch leads the International Center for Transitional Justice’s work on chil- dren andtransitional justice, aswell as the country program in Cyprus. From the time she joined ICTJ in 2006 until 2009, Ladisch worked as part of the Reparative Justice Unit, and with the Canada and Turkey country programs. Prior to joining ICTJ, sheconductedresearchonreconciliationinCyprus,wastheProjectCoordinatoratthe Crimes of War Education Project and served as an election monitor in Guatemala. In 2000, Ladisch was awarded a Thomas J. Watson Fellowship for independent research, during which she carried out extensive fieldwork on truth commissions and reconci- liationinSouthAfricaandGuatemala.Theresultsofherresearchonthechallengesof reconciliationinCyprushavebeenpublishedintheJournalofPublicandInternational AffairsandtheCyprusReview.Ladisch holdsanMA inInternational Affairsfromthe School of International and Public Affairs (SIPA) at Columbia University and a BA in Political Science from Haverford College. John Packer is Professor of International Law and the Director of the Human Rights Centre at the University of Essex. Before taking up this post in 2007, he was the project coordinator and principal investigator for the Initiative on Quiet Diplo- macy, as well as acting as a consultant to several international organizations, x Contributors governments and NGOs. He was Director of the Office of the OSCE High Commis- sioner on National Minorities from 2000 to 2004, where he previously served as legal advisor (1995–2000). From 1991 to 1995 he was a human rights officer at the United Nations, where he investigated serious violations of human rights in Iraq, Burma and Afghanistan. He has also worked for the International Labour Organisation and the UN High Commissioner for Refugees. Packer has an extensive publication record and is an internationally recognized expert in the field of minority rights and conflict prevention. He is a member of a number of editorial boards of scholarly journals, including the Human Rights Law Journal, the International Journal on Minority and Group Rights, the European Yearbook of Minority Issues and Ethno- politics. He also sits on the Boards of a number of NGOs and is an Advisor to the Club de Madrid. Katia Papagianni heads the Mediation Support Programme at the Geneva-based Centre for Humanitarian Dialogue. Before joining the Centre, she worked for the Office of the UN High Commissioner for Human Rights and UNDP. Her work has focused on political transitions, power-sharing in mediation efforts and constitution-making processes. Her experience includes work for the National Democratic Institute in Russia, the OSCE in Bosnia and Herzegovina and the UN in Iraq. She holds a doc- torate in political science from Columbia University, New York; a Master’s degree in Public Administration from Princeton University; and a Bachelor’s degree from Brown University. She has taught on peace- and state-building at Columbia University and the Geneva Graduate Institute for International Studies. She has published extensively on mediation and peacebuilding. Benjamin Reilly is Professor of Political Science in the Crawford School of Economics and Government at the Australian National University. He is the author of six books and over 60 journal articles and book chapters on issues of democratization, con- stitutional reform, party politics, electoral system design and conflict management, and has advised numerous governments and international organizations on these subjects. His latest books are a study of democratization and political reform in Asia and the Pacific, Democracy and Diversity: Political Engineering in the Asia-Pacific (Oxford University Press, 2006), and an edited volume, Political Parties in Conflict- Prone Societies (United Nations University Press, 2008). He is currently a Visiting Professor at Johns Hopkins University’s School of Advanced International Studies (SAIS) in Washington, DC. Philip G. Roeder is Professor of Political Science at the University of California, San Diego. He received his PhD from Harvard University. A specialist on the politics of the Soviet successor states and on nationalism, Roeder is the author of Where Nation- States Come From: Institutional Change in the Age of Nationalism (Princeton Uni- versity Press) and Red Sunset: The Failure of Soviet Politics (Princeton University Press). He is the co-author of Postcommunism and the Theory of Democracy (Princeton University Press) and co-editor of Sustainable Peace: Power and Democracy After Civil Wars (Cornell University Press). His articles have appeared in such jour- nalsastheAmericanPoliticalScienceReview,WorldPoliticsandInternationalStudies Quarterly. He is currently working on two longer-term projects on ‘Nationalist Secessionism and Independence’ (i.e., when is granting secessionists independence the best policy option) and on ‘Alternatives to Independence’ (i.e., what are the