Mika Inoue, Chigumi Kawaguchi, Yukako Tanaka (Sakabe), Shinichi Yamamoto

The Theory and Practice of International Peace Operations:
Challenges in South Sudan
Horitsu Bunka Sha, 2020, 188 pp.

Table of Contents
Part I

Introduction

Chapter 1
The Theory and Practice of International Peace Operations
Introduction
1. Research Questions
1.1. What are International Peace Operations?
1.2. Summary of Previous Research
1.3. Issues and Scope of Research
1.4. The Interdisciplinary Approach
1.5. Potential Readers
2. International Peace Operations
2.1. Types of International Peace Operations and Their Development during the Cold War
2.2. International Peace Operations in the 1990s
2.3. Review of International Peace Operations and the Rise of Regional Organizations
2.4. The Forefront of International Peace Operations—Action for Peacekeeping (A4P)
3. Complex Crises
4. South Sudan as a Case Study
4.1. A Breakthrough in the Transition of International Peace Operations
4.2. Japan’s Legislation on Peace and Security and Participation in PKOs in Africa
Conclusion

Chapter 2
International Peace Operations in South Sudan: Focusing on the Transition and the Period
After Independence
Introduction
1. The Second Sudanese Civil War
1.1. Background1.2. The War1

2. International Peace Operations during the Transition Period
2.1. The Diplomatic and Military Means of Support for the Peace Process
2.2. Humanitarian and Reconstruction Support
2.3. Sudan As a Recipient of International Peace Operations
3. International Peace Operations Since Independence
Conclusion: The Complex Crisis Never Ends
Essay 1 (by Kenro Oshidari and Takuya Yuasa)
Humanitarian Assistance—Co-Ordination Amongst Stakeholders
Essay 2 (by Naoki Ishikawa)South Sudan and United Nations Peacekeeping―Cooperation Between “Actors” in theField
Essay 3 (by Masahiko Kiya)
South Sudan and International Peace Operations From the Perspective of Japan’s Foreign
PolicyPart IIResearch Approach and a Case Study on International Peace OperationsChapter 3
International Peace Operations and Law
Introductionl. International Peace Operations under the UN Charterl.1. The Categorization of International Peace Operations
l.2. International Peace Operations and International Law
2. The Discipline of International Law and International Peace Operations
2.1. International Law and International Organization as a Discipline
2.2. The Historical Study of International Peace Operations in the Discipline ofInternational Law
3. The Legal and Institutional Framework of Japan’s International Peace Cooperation withSouth Sudan
3.1. The Legal and Institutional Framework from Sudan to South Sudan
3.2. The Legal and Institutional Framework in Relation to Japan’s International PeaceCooperation
3.3. The Significance of Focus on the Legal and Institutional Framework
2Conclusion: Discussion Points and Issues for Research and Practice
Chapter 4International Peace Operations and Institutions: The Political Science Perspective
Introduction
1. Analysis of International Peace Operations in the Field of Political Science
2. Characteristics of Inter-Actor Cooperation and the Whole-of-Government Approach toInternational Peace Operations
2.1. Who are the Actors? What is Inter-Actor Cooperation in International PeaceOperations?
2.2. Why Adopt the Whole-of-Government Approach?
3. What Promotes the Whole-of-Government Approach? What Level of Cooperation CanWe Achieve?
4. UK Support for South Sudan: Applying Institutionalization in the Whole-of-Government
Approach
5. Assistance by the UK and the Application of Institutions for Inter-Ministry Cooperation
5.1. Defense (UN Peace Operations)5.2. Diplomacy (Political)
5.3. Development (Including Humanitarian Assistance and Reconstruction)
5.4. What Cooperation is Achieved by Institutions’ Applications?
Conclusion
Chapter 5International Peace Operations and International Organization
Introductionl. What is International Organization as a Discipline?
l.1. What is International Organization Itself?
l.2. Actor and Forum
2. International Peace Operations and International Organization
2.1. International Law
2.2. International Politics
2.3. Memoirs, Oral Histories, and International Peace Operations
3. The Forefront of Research on International Peace Operations—Beyond “UN Studies”
3.1. History
3.2. Interdisciplinary Approach
3.3. Relationships Among International Organizations33.4. Member States
4. The Complex Crisis and International Organizations in South Sudan
5. The UN Integrated Approach and Cooperation Among Actors in South Sudan
5.1. Changes in the UN Integrated Approach
5.2. The UN Integrated Approach and Cooperation Among Actors in South Sudan
Conclusion
Chapter 6
International Peace Operations and Policy Studies
Introduction
1. What is Policy Studies?
1.1. Fundamental Characteristics of Policy
1.2. What is “Policy”?
2. Framework for Policy Studies
2.1. Components of Policy
2.2. Policy Process
2.3.1. Study of the Policy Making Process
2.2.2. Study of the Policy Implementation Process
3. International Peace Operations from the Perspective of Policy Studies
3.1. International Peace Operations as a Result of Three Policy Processes
3.2. Components of the Policy Process of International Peace Operations
3.2.1. Objective
3.2.2. Policy Subjects
3.2.3. Beneficiaries
3.2.4. Services, Public Goods, and Means
3.2.5. Financial Resources
3.3. The Policy Process of International Peace Operations
3.3.1. The Policy-Making Process for International Peace Operations
3.3.2. The Policy Implementation Process for International Peace Operations
3.3.3. Monitoring, Evaluation, and Feedback
3.4. Possibilities and Limitations of Research on International Peace Operations fromthe Perspective of Policy Studies
4. Examination of International Peace Operations as a Foreign Policy: A Case Study ofODA-PKO Collaboration by Dispatch of Self-Defense Forces to UNMISS
Conclusion

4Essay 4 (by Norihito Kubota)
Quantitative Analyses of International Peace Operations
Essay 5 (by Tomoaki Murakami)
Historical Studies: Historical Materials on International Peace Operations
Chapter 7Issues and Prospects of International Peace Operations in Interdisciplinary ResearchIntroduction
1. International Peace Operations and Different Research Approaches
1.1. Law
1.2. Political Science (Institutional Perspectives)
1.3. International Organization
1.4. Policy Studies
1.5. Significance of Interdisciplinary Research
2. The Practice of International Peace Operations: Inter-Actor Cooperation
2.1. UN International Peace Operations in South Sudan
2.2. Japan’s International Peace Operations in South Sudan
2.3. The UK’s International Peace Operations in South Sudan
3. The Complex Crisis of South Sudan and the Challenges of External Actors
3.1. The UN: Scrapping and Building Institutions
3.2. Japan: Beyond ODA-PKO Collaboration
3.3. The UK: Challenges in the Most Advanced Case of Institutionalization
The Agenda for Future Research5SummaryPart IIntroduction
Chapter 1 The Theory and Practice of International Peace Operations
What “institutions,” such as domestic and international laws, organizations, and policies that supportand enable international peace operations, help external actors deal with conflicts and the resulting
complex crises? This book focuses on international peace operations and conducts interdisciplinary
analysis using four research approaches: international law, political science, international organization,and policy studies. We use South Sudan as a case study, analyzing how various external actors havecollaborated in this complex crisis caused by conflict. Throughout, the focus is on the relationshipbetween institutions and the cooperation that they require. This book examines and clarifies what kindsof institutions are normally created, how much cooperation they actually produce, and where thechallenges in cooperation lie. It discusses inter-actor cooperation at the state and international levels.
Stopping short-term violence alone is not enough to fundamentally resolve conflicts andprevent their recurrence. This has led international organizations to call attention to the need to respondto multiple crises. The efforts of the United Nations (UN) known as Peacekeeping Operations (PKOs)
during the Cold War came to be called “Peace Operations” in the 2000s, following a dramatic change
in the 1990s. In the process, the PKOs became “multi-dimensional,” monitoring elections and helping
nations construct software and hardware. “Robust” mandates, which are responsible for disarmamentand civilian protection activities under Chapter 7 of the UN Charter, also became prominent. In recentyears, many activities have been led by regional organizations. The UN’s creation of “triangularcooperation” between the UN, member states who provide technics and resources, and those who
participate in the operations, has also attracted the attention of researchers, as well as policy makers.
Because of these trends, external actors are expected to build and establish peace locally by promoting
mutual cooperation.

Chapter 2 International Peace Operations in South Sudan: Focusing on the Transition and thePeriod After Independence
The Republic of South Sudan (South Sudan) became the newest independent nation in the world inJuly 2011. This chapter provides an overview of the civil war behind the birth of South Sudan andpeace operations by the international community, especially during the periods of transition and postindependence state-building, to understand the four research approaches considered in Part II.

6

The analysis of the period begins with an explanation of the Comprehensive Peace
Agreement (CPA) of July 2011. This agreement was between the Republic of Sudan (Sudan) and theSudan People’s Liberation Movement, also known as the Sudan People’s Liberation Army (SPLM/A).
It then discusses the period of independence of the Republic of South Sudan in July 2011 and theaftermath of the disturbance between President Kiir and the opponent Marchar in July 2016. First, thechapter outlines the second civil war between North and South Sudan. Next, it examines the processes
and complexity of the transition period from the end of the civil war to the independence of SouthernSudan. Finally, it examines the period after independence was achieved, with special focus on politicalsupport and humanitarian and reconstruction assistance.
This overview reveals that South Sudan, despite international peace operations provided bya wide variety of actors, is constantly moving between conflict and peace in a complex, ongoing crisis.
This poses a serious challenge for the international community responsible for international peace
operations.

Part II
Research Approach and a Case Study on International Peace Operations
Chapter 3

International Peace Operations and Law

International peace operations are characterized as political and policy issues, and this chapter
discusses what kind of analysis and study can be conducted from a legal perspective. This includes
determining what subjects can be studied and practiced from this perspective. First, it considers how
international peace operations are positioned under the UN Charter System, and examines theirrelationship with international law, categorizing the types of international peace operations in theprocess. Next, it reviews how the research on international peace operations has progressed in the fieldof international law.
The second half of this chapter focuses on the case of Japan’s international peacecooperation in South Sudan, applying a legal and institutional framework. The analysis clarifies that
this legal and institutional framework can be a starting point for understanding inter-actor cooperationin international peace operations. The final section presents discussion points and issues in law for thefuture study and practice of international peace operations.

Chapter 4International Peace Operations and Institutions: The Political Science Perspective

This chapter discusses different approaches to analyzing how international peace operations canfunction. It is generally believed that achieving peace is in the common interest of all countries; and7

yet, international peace operations are created in the result of mediating the interest of different
countries. Institutions can be understood as encouraging actors to cooperate in a way that ensures thecontinuous existence of all actors both at international and national levels. The “whole-of-government”
approach (WGA) is an inter-actor cooperation involving diplomatic agencies, development, anddefense from supporting countries to assist other countries struggling with complex crises that require
a wide range of expertise. The WGA’s “top-down” tactic pursues policy coherence by promoting
cooperation at the stages of policy planning, monitoring, and evaluation. This tactic is mainly
prominent in Western countries, and has been largely institutionalized. Alternatively, the “bottom-up”
tactic seeks to create cooperation at the stage of policy implementation on an ad hoc basis.
This chapter examines the United Kingdom’s (UK’s) assistance to South Sudan as a casestudy. The UK has established a variety of institutions to implement the WGA by placing human andfinancial resources within an international support framework developed for South Sudan. It has also
created its own version of a top-down tactic which includes creating joint office between diplomaticand development actors in Juba. However, because institutional cooperation occurs primarily during
policy making, the analysis reveals that the UK has faced challenges in adapting its policy
implementation to recent drastic changes in the field.

Chapter 5International Peace Operations and International Organization

This chapter discusses the discipline of international organization, which studies international peace
operations. This discipline’s analytical focus on international organizations’ role in international peace
operations clarifies how actors, especially states, fortify international peace operations and allocate
resources through a system of international organizations that they form and maintain. However, if theinternational environment and structure surrounding the organization are not considered, there is adanger that the importance and problems of international peace operations may be obscured, sinceinternational organizations are historical products of international politics. In other words, theapproach of international organizational research can be used to explore the characteristics andchallenges of international peace operations.
Analyzing the case of South Sudan’s shows three issues with the UN “integrated approach”
to complex crises, especially when attempting to promote cooperation among actors. First, there arebarriers between the actors involved, due to different budgets and different channels for approval andaccountability. Second, making organic interconnection between peacekeeping activities andhumanitarian assistance has become even more difficult than normal given the context in South Sudan.
Third, the scope of the UN’s integrated approach is within UN organizations themselves, especiallythose at the Secretariat headquarters. Further, the UN has not been well-integrated with otherorganizations, such as regional actors.
8The UN’s integrated approach functions as a mechanism to promote cooperation amongactors in the planning, implementation and evaluation of international peace operations. However,there is always a gap between the approach’s theory and its practice.

Chapter 6

International Peace Operations and Policy Studies

International peace operations are policies that are carried out across national borders to support not
only highly political but also conflict-affected situations. Therefore, by simply analyzing international
peace operations, many studies suggest certain policy changes. Policy studies is a research approachthat expressly considers international peace operations as policies and primarily aims to improve theoutcomes of such policies. This chapter investigates how this approach understands peace operations,what kind of research on international peace operations it advocates, and the benefits and limitationsof policy studies.
To answer these questions, the first section explains the definition and basic characteristics
of policy studies. Section 2 describes the policy components and processes that form the main
framework for this approach. In Section 3, this framework is used to examine international peace
operations, and the possibilities and limitations of policy studies are discussed. In Section 4, theinternational peace operations precipitated by Japan’s dispatch of the Self-Defense Forces to South
Sudan are examined, and provide an example how to approach international peace operations fromthe perspective of policy studies.

Chapter 7

Issues and Prospects of International Peace Operations in Interdisciplinary

Research
This book attempts to apply four different research approaches, in order to communicate all thecharacteristics of international peace operations. From a legal perspective, it examines the issues ofinternational law caused by the involvement of external actors in international and domestic conflicts.
With the political science approach, it investigates whether inter-actor cooperation can occur inorganizations and states, each of which pursue both common and self-interests. The internationalorganization approach allows us to recognize that international organizations are not only the actors
in international peace operations but also provide opportunities for member states to discuss the way
operations are implemented. Finally, policy studies help us to articulate the international public
policies, foreign policies, and host country policies relevant to creating international peace operations.
Further, two essays in Part II introduce quantitative analysis and historical studies as well as otheruseful research methods. The book also notes the usefulness of regional studies and social/cultural
anthropology in understanding the background of local conflicts.
9

The case of South Sudan is used to analyze the inter-actor cooperation between the UN,
Japan, and the UK, as well as the international support framework designed to effect cooperation witheach action and the legal system of the involved states. In other words, the book clarifies thecharacteristics and applications of a wide range of “institutions” such as domestic and internationallaws, organizations, and policies that support and enable international peace operations. This analysis
shows that it is difficult for any actor to be involved in a complex crisis that is constantly changing,even if institutions for cooperation are established. Three essays in Part I detail the practices ofcooperation between the UN, Japan, and World Food Programme, all of which involved in South
Sudan’s peacebuilding.
Together, the book’s insights provide an agenda for future research, which includes
clarifying the conditions of cooperation between external actors (that is, inter-organizationalcooperation), the effect of cooperation in host countries, and the cause of the conflict in South Sudan,
as well as an assessment of the international peace operations from the perspective of local people.

10