Towards Lasting Peace: Leveraging Peacebuilding Successes from the Pacific to Inform Strategies in the MENA Region

By Rooan Al Kalmashi, Y20 National Scholar

Disclaimer: This paper was drafted prior to the recent escalation of the Israel-Palestine conflict and before the signing of the Free Trade Agreement between Australia and the United Arab Emirates. Additionally, the analysis incorporates insights from the 2023-24 Federal Budget regarding aid allocations. Consequently, some of the recommendations and observations made herein may be affected by these significant geopolitical developments and shifts in policy.

'Despite ending its 20-year military operations in the Middle East, Australia’s diplomatic, defence, and economic equities in the region are now more substantial than when the global war on terror was declared in 2001.' (Shanahan, 2022).

Executive Summary

Australia's involvement in the Middle East and North Africa (MENA) region has historically been shaped by its strong alignment with the United States, guided by the principles of liberal internationalism. The belief that transforming fragile states into stable democracies would lead to lasting peace, known as the 'democratic peace' hypothesis, has steered peacebuilding efforts. However, despite significant commitments of resources and personnel, the application of neoliberal approaches, coupled with inadequate 'exit strategies,' has exacerbated tensions and resulted in security vacuums. The failure to achieve set objectives has subsequently diminished Australia's appetite for intervention in the region.

These military engagements have disproportionately harmed women and local communities, leaving them more vulnerable to violence and displacement. To address these challenges, this paper recommends:

• Adaptation of the Peace Monitoring Group Model (MPMG): A neutral, multinational group to facilitate peace processes in conflict-affected areas, incorporating lessons from Pacific interventions like the Peace Monitoring Group (PMG) and Regional Assistance Mission to Solomon Islands (RAMSI), with a strong focus on regional partnerships and clear exit strategies.

• Appointment of a Special Envoy for the Women, Peace, and Security (WPS) Agenda: To champion gender-inclusive peacebuilding, enhance women's participation in peace processes, and prevent gender-based violence in MENA conflict zones.

The implementation of these recommendations is estimated to cost $45 million over five years, including personnel and programmatic funding for peace monitoring and gender-based initiatives.

Problem Identification

The Australian Position on Peacebuilding

Australia has been deeply engaged in peace operations for over 75 years, both independently and as part of United Nations and multilateral peace and security efforts (Department of Foreign Affairs and Trade, n.d.). Despite this, there is a notable gap in proactive peacebuilding within Australia’s official discourse. While Australia has committed significant resources to peacekeeping missions, there remains an absence of focus on peacebuilding efforts that address the root causes of conflicts. Unlike peacekeeping, which primarily enforces ceasefires, peacebuilding aims for long-term solutions through support for the UN Peacebuilding Architecture and contributions to the UN Peacebuilding Fund. Australia’s past efforts in the Pacific, such as in Timor-Leste and Papua New Guinea, have demonstrated the impact of investing in conflict prevention and sustainable peace, but this focus has largely been limited to the Pacific region (Langmore, Miletic, Martin, & Breen, 2020).

Australia continues to spend approximately $100 million annually in the MENA region on military and humanitarian initiatives (Department of Foreign Affairs and Trade, n.d.). Pivoting even a fraction of these funds towards peacebuilding strategies, such as conflict mediation and gender-inclusive peace processes, could significantly enhance Australia's impact and strengthen regional stability. Given the proven success of peacebuilding in the Pacific and the increasing instability in MENA, this shift in focus would offer a more sustainable and cost-effective approach to Australia's engagement in the region.

Context

Australia's commitment to peacebuilding is particularly pronounced in the Indo-Pacific region. This tight regional focus stems from China’s expanding presence in the South China and East China Seas as a potential geopolitical threat. Ensuring stability and development in fragile states is not only essential for regional peace, but also aligns with Australia's agenda to promote a rules-based order as a framework for strategic and economic policy (Feller & Langmore, 2023).

Australia also has significant motivations for engaging in the MENA region, including economic interests, energy security, and counterterrorism. Historically, Australia's engagement in the MENA has centred around military presence, reflecting a reactive approach rather than proactive diplomatic efforts. The Australian Defence Force (ADF) maintains a significant presence in the region, engaging in nine active peacekeeping operations. (Totman, 2023).

While Australia's position as a donor may lag behind, with recent figures ranking it 27th out of 30 OECD countries in terms of foreign aid contributions as a percentage of Gross National Income, the imperative to prioritise peacebuilding and relations in the MENA remains compelling (ACFID, 2023). Australia's engagement in the MENA region has significant implications for its foreign policy regarding counterterrorism, energy security, and economic interests (Shanahan, 2022).

Australia's dependence on imported oil and gas fuels its interest in ensuring stable global energy supplies. The Middle East holds substantial reserves and production capacity, accounting for 32.8% of global oil production and 29.1% of gas production (Biceroglu, Canik, & Dursun, 2023). This reliance underscores the importance of maintaining stable energy transit routes, prompting active involvement in regional security arrangements and maritime security initiatives.

Despite ongoing efforts since 2007 to establish a Free Trade Agreement with the Gulf Cooperation Council (GCC) countries, success has yet to be achieved. Nevertheless, economic ties have grown steadily, with the UAE emerging as Australia's largest trade and investment partner in the Middle East. Trade in goods and services between Australia and the UAE surpassed $5.7 billion in 2020-21. The region is also a significant market for Australian agricultural exports, particularly beef, with both the UAE and Saudi Arabia ranking among Australia's top 20 beef export markets (Department of Foreign Affairs and Trade, n.d.).

Options

It is important to note that Australia's interventions in the Pacific haven't been without critique—both within Australia and in impacted countries like Solomon Islands. While these interventions have aimed to promote stability and security, they have also faced scrutiny regarding their effectiveness and implications for local sovereignty (Jenkins, Subedi, & Jenkins, 2017). Nonetheless, the RAMSI support for Timor-Leste's post-independence transition, and collaborative projects with Bougainville, Papua New Guinea offer valuable lessons about Australia’s capacity for effective intervention missions (Bagshaw & Porte, 2009).

The evolving nature of these interventions brought about significant changes in how government departments and agencies operate in the region, giving rise to a whole-of-government approach. The Bougainville intervention, for instance, witnessed the ADF and Australian Federal Police (AFP) working closely alongside civilian personnel. It expanded the scope of the ADF's work to encompass civil-military tasks such as mediation, negotiation, and humanitarian assistance delivery. The AFP's role similarly expanded to include maintaining law and order and providing training, investigating human rights abuses, and assisting in managing refugee movements (Lutmar & Ockey, 2019).

The emergence of a more deliberate whole-of-government approach took shape with RAMSI, involving personnel from various government agencies, including the Department of Foreign Affairs and Trade (DFAT), the Australian Agency for International Development (AUSAID), the Attorney-General's Department, the Australian Electoral Commission, and the Department of Treasury. Australian and international non-governmental organisations (NGOs) frequently worked alongside Australian government personnel, especially in delivering development and humanitarian aid (Walton & Hushang, 2022).

In the context of this whole-of-government approach, technology has enhanced the effectiveness and efficiency of peacebuilding efforts by providing real-time data, enabling remote monitoring, and improving decision-making processes. For instance, in Bougainville, technology was employed to support peace monitors in their duties of monitoring and reporting on compliance with the ceasefire agreement. Advanced communication systems, such as satellite phones and secure radio networks, allowed peace monitors to stay connected even in remote and challenging terrain, ensuring timely responses to any ceasefire violations or emerging conflicts. Additionally, Geographic Information Systems technology was utilised to map conflict dynamics, identify vulnerable areas, and target interventions more effectively (Nzioki, 2020).

These interventions reveal the effectiveness of hybrid approaches. Timor-Leste's peacebuilding also serves as a tangible example of a nation blending international peacebuilding efforts with local customs and governance models. The National Peace Council (NPC) model, as applied in the Solomon Islands, highlights the importance of employing local mediators who possess an intimate understanding of the intricate cultural intricacies and traditions within the affected communities. Bougainville’s success is attributed to the important role of local actors and local approaches to conflict resolution, as well as peace monitors that facilitated and directly managed the peace and reconciliation process. This adaptation acknowledges the resilience of local socio-political structures and practices in conflict resolution and state-building within the Pacific region. These approaches successfully created the right conditions for negotiation and peace settlements (Walton & Hushang, 2022).

The effectiveness of Women, Peace, and Security (WPS) principles, coupled with local approaches to conflict resolution, in Australia's peacebuilding initiatives in the Indo-Pacific region provides a compelling case for their application in the MENA region (Shepherd & True, 2014). Australia's experiences in the Pacific highlight the positive impact of incorporating gender perspectives and engaging local actors in peacebuilding efforts.

Policy Recommendation

1. Implement the Peace Monitoring Group Model for Conflict Resolution

The establishment of a neutral and multinational peace monitoring group, the MENA Peace Monitoring Group (MPMG) is modelled after the success of the Peace Monitoring Group (PMG) in Bougainville, Papua New Guinea. While Australia could play a leadership role in facilitating the MPMG's establishment, the initiative should be a collaborative effort led by a coalition of MENA countries, international organisations such as the United Nations, regional stakeholders like the Gulf Cooperation Council (GCC) and the Arab League, and relevant NGOs. Collaborating with Gulf countries is essential, given their strategic influence and resources in the region. Their involvement can enhance the legitimacy and effectiveness of the MPMG, promoting regional ownership and engagement. The group will be tasked with monitoring and reporting on compliance with ceasefire agreements, promoting confidence-building measures, and facilitating dialogue and reconciliation efforts among conflicting parties.

While Australia can play a leading role in initiating and supporting the MPMG, it is crucial that the leadership structure is inclusive, allowing for significant input and leadership from regional stakeholders. This collaborative approach can help mitigate perceptions of foreign overreach and reinforce the legitimacy of the initiative.

Implementation and Budget Allocation

The implementation of the MPMG will involve a phased approach, beginning with the establishment of the core organisational structure comprising representatives from MENA countries, international organisations, and relevant NGOs (preferably those working on ground in conflict-affected regions). This initial phase will focus on securing commitments from key stakeholders, defining the group's mandate, and establishing operational procedures and protocols. Subsequent phases will involve deploying personnel to conflict-affected areas, conducting monitoring and reporting activities, facilitating dialogue and reconciliation efforts, and providing support for local peacebuilding initiatives. Regular coordination meetings, training sessions, and capacity-building workshops will ensure effective collaboration and enhance the group's operational efficiency. Additionally, leveraging existing networks and partnerships will be crucial for garnering support and resources for sustained peacebuilding efforts in the MENA region.

Considering the recent reduction in Australia's national humanitarian aid budget for the MENA region (ACFID, 2023), it is imperative to allocate funds judiciously to maximise impact while ensuring the sustainability of the MPMG initiative. Despite the reduction, a modest investment is necessary to support the MPMG's operations effectively. Therefore, a conservative range of $10 million to $15 million per year is recommended for the MPMG, allowing for essential operational costs while maximising the impact of peacebuilding efforts within existing budgetary constraints. This contribution would be sought primarily through DFAT and is suggested to ensure the sustainability of the MPMG's operations. Additionally, the ADF and other relevant government agencies can contribute personnel and expertise to enhance the MPMG's effectiveness in promoting peace and stability in the MENA region.

Limitations and Mitigation Strategies

While the establishment of the MPMG presents a promising approach to fostering peace and stability in conflict-affected areas of the MENA region, several potential limitations must be acknowledged and addressed to ensure the effectiveness of the initiative.

Operating in conflict zones exposes personnel to significant security risks, including threats of violence, kidnapping, and other forms of harm. To mitigate these risks, the MPMG should implement stringent security protocols, including comprehensive risk assessments, security training for personnel, and the provision of appropriate safety equipment. Collaborating closely with local authorities and security forces can also enhance the security posture of the monitoring group. Political resistance from host governments or conflicting parties may pose a significant obstacle to the functioning of the MPMG. Diplomatic negotiations and dialogue should be prioritised to build consensus and address concerns raised by relevant stakeholders.

Cultural sensitivity is paramount in the MENA region, where societal norms and customs vary widely across different communities. To ensure effective engagement and interaction, comprehensive cultural awareness training should be provided to MPMG personnel. This training should focus on understanding local customs, traditions, and sensitivities, as well as fostering respectful and culturally appropriate communication. Collaborating closely with local NGOs, community leaders, and religious authorities can further facilitate culturally sensitive interactions and help build trust with local populations, as was done in the Indo-Pacific operations.

Political resistance from host governments or conflicting parties may pose a significant obstacle to the functioning of the MPMG. Diplomatic negotiations and dialogue should be prioritised to build consensus and address concerns raised by relevant stakeholders.

Compliance with regulatory frameworks such as the Financial Action Task Force standards on anti-money laundering, combating the financing of terrorism as well as Department of Home Affairs guidelines, is essential to safeguard against the risk of illicit activities, including terrorism financing (Australian Government Department of Home Affairs, n.d.). The MPMG should adhere to rigorous compliance measures, including thorough due diligence processes, ongoing monitoring of financial transactions, and reporting suspicious activities to relevant authorities. This ensures transparency, accountability, and integrity in the operations of the monitoring group, thereby enhancing its credibility and effectiveness.

2. Appoint a Special Envoy to Champion the Women, Peace and Security Agenda

Recognising the critical role of gender-inclusive peacebuilding and the Women, Peace, and Security (WPS) agenda in fostering sustainable peace, this policy recommends the appointment of a Special Envoy dedicated to championing WPS initiatives in the MENA region. The Special Envoy will serve as a focal point for promoting gender equality, women's participation in peace processes, and the prevention of gender-based violence in conflict-affected areas.

Implementation and Budget Allocation

The implementation of the Special Envoy for the WPS agenda in the MENA region will involve strategic engagement in various forums and focus areas to address existing limitations and promote gender equality and peace. This includes supporting the implementation of national action plans on WPS, advocating for gender perspectives in UN Security Council resolutions, engaging with regional peace and security mechanisms, collaborating with civil society organisations, and strengthening conflict prevention and early warning systems.

The establishment of the Special Envoy's office will require initial funding for staffing, administrative needs, and communication infrastructure. Capacity-building initiatives should also be prioritised to equip women leaders, peace negotiators, and government officials with the necessary skills to advance gender equality effectively.

As a conservative estimate, the budget required for the first year of operation could range from $2 million to $5 million. Funding sources may include allocations from DFAT, international donor organisations, and private sector partnerships.

Limitations and Mitigation Strategies

The Special Envoy must navigate cultural norms and practices in the MENA region sensitively to ensure that gender-inclusive efforts are respectful and effective. Collaboration with local partners and communities will be crucial to ensure that initiatives align with local values and priorities. Some stakeholders may also resist gender-inclusive policies due to cultural or political reasons. Diplomatic negotiations and showcasing successful examples of gender-inclusive peacebuilding can help overcome resistance and demonstrate the benefits of women's participation in peace processes.

To mitigate concerns about Australia overstepping as a foreign power, the Special Envoy should again prioritise collaboration with local leaders and organisations, ensuring that initiatives are culturally sensitive and aligned with the needs of the communities served.

Securing adequate funding for the Special Envoy's initiatives will be essential for their success. Collaboration with international partners, donor organisations, and leveraging existing funding mechanisms focused on gender equality and peacebuilding will help address funding challenges and ensure sustained support for WPS initiatives in the MENA region.

Conclusion

Australia's foreign policy must adapt to the evolving dynamics of the MENA region, recognising its significance in global affairs. The policy recommendations put forth in this paper advocate for proactive peacebuilding initiatives, leveraging successful models like the Peace Monitoring Group (PMG) and prioritising the Women, Peace, and Security (WPS) agenda. By embracing these recommendations, Australia can play a pivotal role in fostering stability, promoting dialogue, and advancing gender equality in the MENA region. As a responsible global actor, Australia cannot afford to overlook the MENA or relegate it to a secondary position in its foreign policy priorities. Instead, it must actively engage in peacebuilding initiatives to ensure regional stability and uphold its commitment to a rules-based international order.

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