Federal Government of Germany

Guidelines on

Preventing Crises, Resolving

Conflicts, Building Peace
Federal Government of Germany
Guidelines on

Preventing Crises, Resolving

Conflicts, Building Peace
2 Foreword

Peace always has been and will always remain the key pre­
requisite for living a life in dignity. Peace is accordingly one of
the central pillars of the 2030 Agenda, the centrepiece of the
international community’s efforts under UN auspices to foster
worldwide sustainable development. The various crises around
the world give us cause for concern, but they should above
all spur us to action. Approximately 1.5 billion people live in
unstable political environments in countries torn by violence.
It is a matter of common sense and of common humanity that
we should not accept this as a normal state of affairs. Armed
conflicts cause immeasurable suffering, set countries and entire
regions back years economically and impede development.

Our lives have become so interwoven that the effects of state fragility, of crises
and bloodshed, can be felt even in Germany. It is thus in our own best interest
to have a suitable tool kit at our disposal, so that we can work with interna­
tional partners to establish paths toward peace on the basis of shared values.
The policy guidelines on preventing crises, resolving conflicts and building
peace provide a strategic compass for the Federal Government’s engagement
towards promoting peace. We are thereby pursuing the aim of achieving sus­
tainable peace, as enshrined in the 2030 Agenda.

This means, on the one hand, helping to prevent crises from occurring, and
helping to settle conflicts peacefully. It also means alleviating acute hardship
should conflicts erupt into violence, and, in addition, seeking to mediate and
de-escalate critical situations. Given the manifold interdependencies that exist
between factors in any given situation and the complex intricacies, this is un­
doubtedly easier said than done. The reasons why conflicts arise in fragile states
and regions and the driving forces behind their dynamics are often difficult for
outsiders to predict and harder still to understand. Any intervention in a crisis
or conflict, however well intended, has its risks and can have unintended con­
sequences. It must also deal with a number of contradictory aims, which must
be carefully weighed up. The new policy guidelines set out a broad spectrum of
flexible instruments with which we seek to live up to this challenge.

Germany will give priority to crisis prevention and addressing structural causes
as a means of contributing to the peaceful resolution of conflicts. Crisis response
can only ever be a second-best solution. In any given situation, the German Gov­
Foreword 3

ernment will push for early strategy development and joint planning to ensure
the concerted use of its various instruments. It will also call for close internation­
al coordination. We are assisting partners such as the African Union in developing
their own capacities in the fields of conflict early warning, mediation and peace­
keeping. We are in addition helping certain countries fight organised crime and
terrorism more effectively by improving the fitness-for-purpose of their security
sectors. This reflects our conviction that only by adopting such a comprehensive
approach can we support weak but legitimate structures and institutions in their
efforts to live up to their responsibilities to maintain a functioning state.

In immediate crises we consider it only natural that our civilian instruments be

at the forefront – wherever this is possible. Humanitarian assistance, transitional
political measures and transitional development assistance measures as well as
development cooperation which is tailored to have a sustainable impact, must
be as mutually reinforcing as possible as early as possible. In the long term,
however, there can be no development without security, and no security with­
out development. Thus, if military force has to be used as a means of last resort,
Germany will step up as a responsible and confident member of the interna­
tional community to actively contribute to peacekeeping efforts – for example
under the auspices of the UN, the EU, the OSCE or NATO. To ensure that crises
are managed effectively, we will coordinate closely with our partners on foreign,
development and security policy issues. Only by acting in a coordinated manner
and adopting a linked-up approach can we respond properly to the fact that
peace, security and development are inextricably intertwined.

We in Germany are well aware of our responsibility to contribute to crisis preven­

tion, conflict management and peace-building. This was demonstrated particu­
larly well by people’s keen participation in the PeaceLab discussion process, which
generated various new ideas for defining a modern German policy for peace. Now
everyone is warmly invited to keep a close eye on how the new policy guidelines
are applied in practice. Indeed, there are few things, if any, you could do that
would be more valuable than helping to actively foster sustainable peace and
ensuring that people around the world may live in security.

Angela Merkel, Federal Chancellor

Berlin, September 2017
4 Foreword

Willy Brandt coined the sentence: “Peace is not

everything, but everything is nothing without peace.”
In view of the almost 66 million people who fled from
war and violence in 2016, the highest figure since the
Second World War, this statement has lost nothing
of its accuracy and relevance. That is why persistent
engagement for peace in the world – not only against
the backdrop of our historical responsibility – is the
uppermost priority of German foreign, security and
development policy.

In a world in which war is waged often within failed states, and where there
seem to be fewer and fewer islands of security and stability, we not only need
decisive action from the international community but also prudent and co­
ordinated approaches. For peace will not be achieved with weapons, but with
prudent policymaking – policymaking that reaches far beyond the diplomatic
negotiating table and is willing to invest in a “peace dividend” for the people in
crisis regions. With these Guidelines, the Federal Government is acknowledg­
ing the need for an overall political strategy for crisis prevention, stabilisation
and peacebuilding. We want to pool the capacities of the various state institu­
tions even more effectively and deploy them in the service of peace.

Since reunification, Germany has assumed increasing responsibility for peace

and security throughout the world. This engagement involves not only the
government, but also numerous non governmental organisations, religious
communities, academic institutions and other societal groups which are all
making their own contribution to peace. With the Guidelines, the Federal Gov­
ernment is building on this national peace infrastructure, which has evolved
over decades. It is one of the main reasons why Germany is held in high regard
in the world – and why we will continue to be challenged and called to act.

One thing is clear. The political risks of such involvement in crises and con­
flicts are high, as is the price of failure. Setbacks are par for the course, and
establishing a just peace is a task spanning generations. Small steps are often
necessary to escape from a crisis. We therefore have to act swiftly and flexibly
while taking a long term view. We need to have a realistic idea of our own skills
and limitations while setting to work with courage and high expectations. We
must not ask too much of conflict ridden and fragile societies, yet at the same
Foreword 5

time we must not lose sight of the bigger picture. Our experiences in Afghan­
istan, Kosovo, Yemen and other countries affected by violent conflict have
taught us this. Not least, we owe clear political strategies to the many Germans
who are serving their country in crisis regions, thereby putting themselves at
considerable personal risk.

These Guidelines are based on a frank assessment of our engagement to date

and a careful evaluation of its principles and tools. We organised this assess­
ment in the form of a process of discourse entitled “PeaceLab2016 – A Fresh
Look at Crisis Prevention”. I am very grateful for the high level of participation
from the fields of politics, civil society, academia, associations and business.
These Guidelines contain the conclusions drawn by the Federal Government
from this discourse. I am proud of the fact that we have managed to adopt
common principles for our engagement in the area of crisis prevention, stabili­
sation and peacebuilding, develop our toolkit and strengthen the interministe­
rial approach.

These Guidelines do not mark the conclusion of a process, but rather a new ap­
proach to modern peace diplomacy. With the Guidelines, the Federal Govern­
ment has set itself ambitious goals which it will only be able to achieve with
the continued engagement of society. That is why I appeal to you to continue
your engagement for peace. Because everything is nothing without peace.

Sigmar Gabriel, Federal Minister for Foreign Affairs

Berlin, September 2017
6 Contents

Contents

Introduction. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8

1. World ­order in ­disarray: ­Shouldering ­responsibility

in ­difficult times . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16

1.1. Challenges for efforts to resolve crises and conflicts. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19

1.1.1. Fragile statehood as a breeding ground for ­violent ­conflicts. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
1.1.2. Nationalism, religious fanaticism and violent extremism. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
1.1.3. Internationalised conflicts. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
1.1.4. Population dynamics, climate change and natural disasters. . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
1.1.5. Forced displacement and migration. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
1.2. Possibilities and limits of engagement. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
1.3. Reference framework.. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29

2. The vision ­statement of the F

­ ederal G
­ overnment of ­Germany. . . . . . . . 42

2.1. Why we take action: Responsibility for peace, freedom, development and security .. . . . . . 45
2.1.1. Germany’s commitment to fundamental values in its ­engagement. . . . . . . . . . . . . . . . . . . . 45
2.1.2. Germany’s interest in sustainable and stable peace ­orders. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48
2.2. How we take action: With prudence and a view to sustainability.. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50
2.2.1. Respecting, protecting and fulfilling human rights. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50
2.2.2. Taking context-specific, inclusive and long-term action. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 51
2.2.3. Making risks transparent, acting in a coherent manner and observing due diligence . . . 56
2.2.4. Primacy of politics and the priority of prevention . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 57
2.3. With whom and where we take action: Strengthening partnerships for peace.. . . . . . . . . . . . . 58
2.3.1. European and international partners.. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58
2.3.2. Interministerial approach to joint action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 58
2.3.3. Non-governmental partners .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 59
2.3.4. Making peace processes more inclusive. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 62
2.3.5. Setting priorities . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 62
2.4. How we improve gaps: Identifying capability and ­learning from past experience. . . . . . . . . . . 63
 Contents 7

3. Goals, approaches and instruments of peacebuilding. . . . . . . . . . . . . . . . . . . . . . . . 64

3.1. Key conflict dynamics and strategic ­approaches . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 66

3.2. Fields of action, approaches and ­instruments. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 75
3.2.1. Legitimate politics. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 77
3.2.2. Security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 83
3.2.3. Rule of law . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 92
3.2.4. Economy, social cohesion and vital natural resources .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 96
3.2.5. Government revenue and public services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 104

4. Earlier – More ­Resolutely – More Substantially:

­Structures and ­partnerships for peacebuilding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 108

4.1. The interministerial approach .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 110

4.1.1. Early warning . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 110
4.1.2. Interministerial coordination in political governance and planning . . . . . . . . . . . . . . . . . 112
4.1.3. Interministerial cooperation in the field .. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 114
4.2. Partners in implementation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 117
4.2.1. Implementing organisations and local partners . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 117
4.2.2. Framework conditions for staff deployment abroad . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 119
4.3. International partnerships.. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 126
4.4. Civil society, academia and other ­non-governmental partners in Germany. . . . . . . . . . . . . . . . 135
4.5. Quality assurance and further development of the interministerial approach .. . . . . . . . . . . 140
4.5.1. Monitoring and evaluation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 140
4.5.2. Interministerial learning processes . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 142
4.6. Implementation of the Guidelines and ­follow-up processes. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 144

Appendix.. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 146

Appendix 1: The Federal Government voluntary commitments. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 147

Appendix 2: Index of abbreviations. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 154
8 Appendix

Introduction
Appendix 9
10 Introduction

Introduction

““
Conscious of their responsibility before God and man,
­inspired by the determination to promote world peace as
an equal partner in a united Europe … Basic Constitutional Law
for the Federal Republic of Germany

“Peace is not everything, but without peace, everything is nothing”. With this
succinct phrase coined in a speech in 1981, former Federal Chancellor Willy
Brandt encapsulated an insight which has particularly arisen as a result of
20th-century German history, and has remained a permanent reminder and
mission for our country.
Introduction 11

““
We, the people of the United Nations – determined to save
succeeding generations from the scourge of war, which twice
in our lifetime has brought untold sorrow to mankind …
­ harter of the United Nations
C

Against the backdrop of our own historical experience, the promotion of world
peace is one of the key national objectives that German Basic Constitutional
Law has specified with regard to German policy. It is our duty to advocate crisis
prevention, conflict resolution and peacebuilding all over the world out of a
moral obligation, as well as for the sake of our own interests. Our efforts are
guided by a long-term vision of positive peace which encompasses far more
than the mere absence of war. It is a vision that focuses more on the structur­
al causes of violent conflict, such as poverty, social inequality, human rights
violations, and restrictions on political participation.

Conflicts are a natural part of social processes of change. However, peace and
development are dependent on the ability to resolve conflicts constructively
and without resorting to violence. This is precisely where the Federal Gov­
ernment’s peace efforts come into play: to prevent violence as a means of
resolving conflicts, to reduce fragility as a breeding ground for violence, and to
create opportunities for long-term development. The Federal Government rec­
ognises the reciprocal effects between peace and development as most recently
stipulated by the 2030 Agenda for Sustainable Development. Respect for and
protection and fullfilling of human rights, social and political participation,
gender equality, social cohesion, and the rule of law are of key importance in
this regard.

During the first half of 2016, almost 66 million people all over the world were
fleeing from war and violence. This is the highest figure since the end of the
Second World War. Almost two thirds of them found refuge as internally
displaced persons within the borders of their native country. Some 24 million
people had no choice but to look for protection elsewhere, the vast majority of
them in developing countries. In 2015, some 1.3 million asylum-seekers also
came to Europe, bringing home to us the dramatic consequences of violent
conflicts at the gates of Europe and beyond.
12 Introduction

Crisis appears to have become the norm in many parts of the world: since
2011, the uprising against the regime of Bashar al-Assad in Syria has turned
into a bloody civil war in which regional and superpowers have intervened and
which has already cost hundreds of thousands of lives. In Libya, militias and
the transitional government have been fighting for supremacy since the end of
Muammar Gaddafi’s rule. Iraq has remained troubled since the fall of Sadd­
am Hussein in 2003. In all three countries and beyond, the so-called “Islamic
State” (IS) has made skilful use of the reigning uncertainty, the religiously and
ethnically charged differences and the chaos, and has succeeded in instituting
a reign of terror in various parts of the country. In Yemen, too, the hopes raised
during the 2011/12 revolution have remained unfulfilled. In this country,
which is already the poorest in the Arab world, large sections of the population
are facing starvation; over ten thousand people have fallen victim to the acts
of war. In Mali, a Tuareg rebellion and a military coup led to the collapse of
state structures in 2012; despite international stabilisation efforts, conflicts
are still ongoing. In South Sudan, after decades of struggle for independence
the establishment of a new state was followed by a power struggle which has
claimed tens of thousands of casualties. On our own continent, in Europe, the
violent conflicts in Eastern Ukraine and Russia’s annexation of Crimea in 2014
have shaken the foundations of the European peace framework which has
been upheld since 1945 to the core.

What we are seeing now is a world that “seems to be unravelling”. There is hardly
any crisis whose effects will not also be felt in Europe and in Germany at some
point. Civil wars, ethnic and religious conflicts, the suppression and violation of
human rights, as well as poverty, lack of prospects and lack of access to natural
resources provide fertile ground for ideological radicalisation and terrorism. In
many cities in Africa, the Middle East and South Asia, the threat of targeted kill­
ings, car bombs and suicide attacks has meanwhile become an everyday concern
for the population. The attacks in European cities in recent years – even in Ger­
many – have shown once again that these threats do not stop at the borders of
our continent. At the same time, secular liberal democracy in many states of the
European and transatlantic community of values is faced with unprecedented
internal challenges. Britain’s impending withdrawal from the European Union
is putting the most important peace project of the last century to a gruelling test.
However, isolation will not make our world a better place, and it will not help
preserve our prosperity. Germany is globally connected like no other country.
Introduction 13

Our prosperity is based on free and fair world trade. Even today, our future
depends largely on our ability to attract the best ideas and brains to our country
through international exchange. The quest for peace not only reflects our funda­
mental values – it is actually in our own best interest.

In times of growing uncertainty, Germany remains firmly committed to

European integration. It is only through unity and solidarity of action with
our European partners and our allies that Germany will find solutions to
address the challenges of our time. This includes the preservation of our liberal
pluralist model of society against attacks by extremist movements. A state gov­
erned by the rule of law must find ways to respond to new threats which will
address our citizens’ need for security while safeguarding the principles of our
fundamental free democratic order. However, finding answers on the domestic
front is not enough. Instead, we must tackle the causes of conflict at their root.
This includes creating new opportunities for economic and social participa­
tion. This involves containing the risks of climate change. This includes global
commitment to peace and security, development and human rights. This
also includes international engagement for preserving and strengthening a
world order based on international law. Stable and sustainable peace regimes
throughout the world will not only guarantee the safety of people in Germany,
but will also ensure the prosperity and economic opportunities of tomorrow.

International engagement for crisis prevention, conflict resolution and peace­

building is a lengthy and laborious task. However, perseverance and a long-term
approach will pay off in the long run. After a decade of war and genocide, it was
finally possible to put an end to unresolved territorial conflicts in the states of
former Yugoslavia. The societies of these countries are increasingly orienting
themselves towards Europe. The states of West Africa have overcome bloody
civil wars and laid the foundation for an economic upturn. They have repeatedly
demonstrated that democratic elections and peaceful changes of government
are possible even in the direst of circumstances. In 2016, Colombia saw one of
the longest civil wars in recent history settled by a peace treaty. If there is one
thing all of these countries had to learn, it is this: the road to sustainable and
stable peace frameworks is long and arduous. Setbacks are possible and even
likely. We are moving in the right direction, however, and the aim of achieving
sustainable peace is worth all the effort. Germany is making its own contribution
to peace and development, both in Europe and around the world.
14 Introduction

Promoting peace abroad requires the concerted efforts of foreign, security and
development policy as well as contributions in an international context from
educational, cultural, trade, environmental and economic policy. In July 2016,
the Federal Government published a White Paper on Security Policy and the
Future of the German Armed Forces (Bundeswehr) promoting a comprehen­
sive approach to address the security challenges of our crisis-ridden world.
The Federal Government is now putting forward the present Guidelines in
an effort to further elaborate on the connections between peace, security and
development and to further expand on the comprehensive approach. These
Guidelines complement the White Paper on Security Policy with a com­
prehensive toolkit for the pursuit of these goals – from crisis prevention to
stabilisation, from peaceful conflict resolution and post-conflict reconstruc­
tion all the way to long-term peacebuilding and sustainable development.
They stress the need for coherent political strategies to prevent the outbreak
of crises, to resolve acute conflicts and to support sustainable peace frame­
works. In line with the White Paper, these Guidelines prioritise preventative
measures over crisis management measures. At the same time, they go beyond
mere interventions in acute crisis situations and aim at designing stable peace
frameworks. These Guidelines are supplemented by the 2017 Development
Policy Report of the Federal Government of Germany, which describes the full
breadth of development activities relevant to crisis prevention, conflict resolu­
tion and peacebuilding in more detail than the present document.

These Guidelines serve to reaffirm the declared commitment to a comprehen­

sive political approach to peacebuilding, which was first formulated compre­
hensively in the Action Plan for Civilian Crisis Prevention, Conflict Resolution
and Peacebuilding of 2004. At government level, the measures provided for in
the Action Plan have given rise to an efficient infrastructure for peacebuilding
all over the world. They complement civil society’s multifaceted engagement
for peace and provide the basis for fruitful cooperation between government
and civil society. With its interministerial Guidelines for a coherent policy to­
wards fragile states of 2012, the Federal Government drew on the first lessons
learned from the implementation of the Action Plan and from its involvement
in crisis hotspots all over the world in order to develop coherent strategies
for peacebuilding. The Action Plan for Civil Crisis Prevention and the Fragile
States Guidelines will be superseded by the document at hand.
Introduction 15

The new Guidelines aim to set a new strategic course. In its vision statement,
the Federal Government has committed to upholding the highest standards.
Particular emphasis is laid on the further development of tools for which
Germany possesses special expertise and which are of outstanding importance
in the context of crises. Last but not least, the Guidelines serve to examine the
structures and processes of the comprehensive approach, and to realign them
to cope effectively with the new challenges.

The drafting of the new Guidelines was accompanied by a policy dialogue enti­
tled “PeaceLab2016: A Fresh Look at Crisis Prevention”. At 27 events with over
1,800 participants, and online on the PeaceLab blog, interested citizens, aca­
demics, organised civil society, and participants from the world of politics and
business engaged in discussion and either reaffirmed previously adopted paths
or contributed ideas for improvements. Key statements by the participants are
quoted on the following pages. They illustrate the diversity of the discourse,
without the Federal Government embracing every single aspect.

It was impossible to incorporate every single idea from the PeaceLab process
into these Guidelines. However, they will continue to inspire the processes
sure to follow, as well as the application of these Guidelines. After all, these
Guidelines are not the end of a process, but instead mark the beginning of a
new phase in Germany policy of promoting peace.
16 World order in disarray: Shouldering responsibility in difficult times

1.
World ­order
in ­disarray:
­Shouldering
­responsibility in
­difficult times
World order in disarray: Shouldering responsibility in difficult times 17
18 World order in disarray: Shouldering responsibility in difficult times

1. World order in disarray:

Shouldering responsibility in
difficult times

Conflicts are an integral part of coexistence in all societies, and are as unavoidable as they
are essential for social change. They reflect differences in values, clashes of interests, and the
ensuing tensions between the various different groupings. It is not the conflicts per se which
are the problem, but the manner in which they are resolved. It is imperative to avoid or
overcome violence as a form of conflict resolution.

Crises emerge when conflicts escalate to a point where violence is used or threatened. Crises
are characterised by a close succession of events leading to a significant degree of human
suffering and acutely threatening peace and security.

The crises of our times have numerous causes and manifest in many differ­
ent forms. They go hand in hand with a profound shift in the international
order. This shift is influenced more than anything by globalisation, which has
accelerated significantly during the past decades and, like no other phenom­
enon, has left its mark on the beginning of this century. The increasing global
interconnectedness in all areas of life has led to far-reaching economic, social,
and technological changes. While promising great opportunities, globalisa­
tion also poses new challenges for responsible policy. While contributing to
a distinct reduction in absolute poverty worldwide, globalisation has also led
to increased social inequality in some parts of the world. Improved access to
information via the internet may encourage liberalisation processes and civil
society movements in authoritarian states. It is, however, quite typical of such
states to respond to liberalisation tendencies posing a threat to their system
by increasing control, isolation and repression. At the same time, it can be ob­
served how the complexity of a highly interconnected world fuels uncertainty
while provoking countervailing forces like nationalism, religious fanaticism,
or violent extremism.
World order in disarray: Shouldering responsibility in difficult times 19

Furthermore, the forces of globalisation have accelerated a development which

started after the end of the Cold War: new players – particularly emerging
countries that benefited from the opportunities offered by globally networked
markets – are in pursuit of global participation and want to increase their in­
fluence. They are working to achieve a multipolar international order of greater
political, economic, and military strength. Considering the inequality of their
representation – in the United Nations Security Council (UN) or the deci­
sion-making bodies of international financial institutions, for example – these
countries often feel that their interests are not sufficiently taken into account
in international organisations. They wish to be perceived as equal members of
the international community and are pressing for structural changes.

It is essential to take a responsible role in shaping the new global balance of

power and to involve all countries in the quest for solutions to global challeng­
es which are consistent with international law. At the same time, it is impera­
tive to face up to those who question the standards of international law such as
the ban on annexations or the basic rules of international humanitarian law.

1.1. Challenges for efforts to resolve crises

and conflicts
It is the change taking place in the international order, the oftentimes weak
state structures, an extremely high rate of population growth in many regions
of the world, and the ever-increasing effects of climate change which pose
huge challenges to our peacebuilding policy.

““
The expectations placed on Germany – both nationally
and internationally – have changed: there is a growing
demand for Germany to live up to its increased political
and economic responsibility.” Niels Annen, Member of the German
­B undestag, SPD ParliamentaryGroup
20 World order in disarray: Shouldering responsibility in difficult times

1.1.1. Fragile statehood as a breeding ground for ­violent ­conflicts

In this day and age, crises and violent conflicts are particularly common in
areas suffering from fragile statehood. Since 1990, there has been a drastic
increase in domestic conflicts and civil wars, which find a breeding ground in
weak or failed states.

What fragile states tend to have in common to varying degrees is weakened

social cohesion, the erosion of trust in public institutions and their capacity for
good governance, and a low focus on development. Another typical charac­
teristic is the progressive restriction or virtual absence of opportunities for
civil society to get involved. Human rights and fundamental freedoms are paid
lip service at best and are frequently disregarded by both governmental and
non-governmental actors. In most cases, fragility also goes hand in hand with
widespread poverty and a high degree of social inequality. Social and political
tensions, and conflicts of interest are very pronounced in these states. At the
same time, these states frequently lack the capacities and structures to resolve
social conflicts peacefully. That is why in these states, social conflicts tend to
escalate and lead to violence all too easily, and are also very difficult to contain
(see Fragility Profiles box on p. 21).

The upheaval which has been unfolding in the Arab world since 2011 has shown that sup­
posedly stable, albeit authoritarian regimes can collapse. It therefore comes as no surprise
that the legitimacy of governments is an essential prerequisite for lasting peace and stability.
Uprisings and revolutions in countries like Tunisia or Egypt or protracted violent conflicts
such as those seen in Syria can occur if tensions between government and the population
that have been pent up over many years suddenly boil over.

At the same time, non-governmental protagonists of violence represent a high

level of risk in fragile contexts. A state’s weakness can leave a vacuum that can
be exploited by organised crime or terrorist organisations for their activities
and sanctuary – with regional and global impact.
 World order in disarray: Shouldering responsibility in difficult times 21

FRAGILITY PROFILES
Fragility can be identified by three core dimensions: enforcement of the government’s
monopoly on the use of force, the capacities for providing basic public services, and
the acceptance of the government’s claim to power by the people (legitimacy). Serious
shortcomings in any of these dimensions can be politically explosive: restrictions on the
government’s monopoly on the use of force, for instance, can entail the loss of territorial
control or foster organised violence by non-governmental actors. Capacity deficits become
apparent, for example, in a state’s limited ability to formulate, implement and enforce
rules, or to supply the population with essential basic goods such as water or services like
healthcare or education. Ultimately, the lack of acceptance of a government’s authority can
lead to governmental repression and may in some circumstances escalate into organised
rebellion and civil war.

Frequently, deficits can be found in all three areas whose negative effects mutually influence
or even reinforce each other. The critical element is the way these three dimensions interact.
A distinction can be made between six basic types of fragile state:

ŸŸ “failing” or dysfunctional states suffering from significant weaknesses in all dimensions,

frequently characterised by violent conflicts to the point of civil wars;
ŸŸ “weak” states without violent conflicts, but with low-performing governmental institu­
tions, e.g. in terms of provision of basic services;
ŸŸ “challenged” states which, although relatively legitimate and capable of acting, are ex­
posed to significant security threats (e.g. by local militias);
ŸŸ “illegitimate” (and frequently repressive) states whose political order remains unaccepted
as legitimate by large sections of the population despite or indeed because of extensive
government control, and which therefore only appear to be stable;
ŸŸ moderately functioning states showing average characteristics of fragility in all dimen­
sions, the remaining challenges notably being the monopoly on the use of force (threats
of terrorism or organised crime, for example) and their capacity to deliver public services;
ŸŸ well “functioning” states enjoying a high level of legitimacy, a secure monopoly on the
use of force, and a pronounced ability to render basic services.

These distinctions make it possible to identify basic fragility patterns. It should be under­
stood, however, that the boundaries between the various types are fluid. What remains
crucial for policy-making is to assess all three dimensions of fragility, their development
over the course of time, and their reciprocal effects in each particular case.
22 World order in disarray: Shouldering responsibility in difficult times

1.1.2. Nationalism, religious fanaticism and violent extremism

Nationalism and religious fanaticism can spark new conflicts and fuel existing
ones. They are frequently a manifestation of identity crises or reactions to
the real or perceived legitimacy deficits of political orders. Societies lacking
inclusive economic growth, with scarce educational opportunities and limited
political, social and cultural participation, provide fertile ground for violent ex­
tremism. Under these circumstances ethnic-national or religious group iden­
tities may be exploited and manipulated for the purpose of specific ideologies
in order to achieve political, economic or social goals, or even to justify the use
of force. Nationalism, religious fanaticism and violent extremism usually have
impacts beyond national borders. They have the potential to generate regional
and international instability and to export fragility way beyond the immediate
vicinity of the states concerned.

““
Governments around the world need to develop strategies to
address the radicalisation of young people affected by violent
conflicts. It is not sufficient to merely combat existing con-
flicts. A sustainable strategy needs to address the lost pros-
pects of young people while opening up new ones for them.”
Christoph Abels, Polis180
World order in disarray: Shouldering responsibility in difficult times 23

1.1.3. Internationalised conflicts

Conflicts between nations in the sense of direct confrontations between sov­
ereign states have become less frequent. Instead, the violent conflicts of today
are mostly played out within the boundaries of a state and are characterised by
non-governmental groups battling against each other or against the government.

Frequently, however, these conflicts also have an international dimension. It is

particularly these fragile contexts which are most conducive to the creation of
a power vacuum that is attractive to other powers in their struggle for regional
hegemony or geopolitical advantages. “Proxy wars” or internationalised
conflicts are often the consequence, with external powers supporting the local
protagonists of violence. These wars or conflicts frequently involve instru­
ments such as hybrid or asymmetric warfare, including terrorist violence. The
motivation of these external actors frequently extends well beyond the local
conflict; regional and global standards, institutions and political agreements
are deliberately challenged in many cases.

1.1.4. Population dynamics, climate change and natural disasters

While a decrease in population size is expected for Europe, the countries of
Africa and the Middle East are continuing to face a significant increase. It is
true that the high numbers of young people of employable age hold prom­
ising potential for economic development, provided that they have access to
educational opportunities, employment prospects are created and adequate
healthcare is available. Where these expectations go unmet, however, inade­
quate economic prospects and the lack of political participation may trigger or
even exacerbate social tensions. Population growth means additional demands
on already scarce resources such as water, agricultural land and fishing grounds.
This can result in conflicts over the distribution of resources, exerting additional
pressure on weak state structures.

In addition to population growth, urbanisation is another current demograph­

ic megatrend. Ninety per cent of the mostly unplanned, uncontrolled, rapid
growth of cities is concentrated in the megacities of Asia and Africa, frequently
within fragile contexts. Informal housing developments with mostly mar­
ginalised populations are typically characterised by uncertain ownership and
usage rights, while the access to an adequate basic infrastructure (e.g. water,
waste disposal, energy, mobility, education, healthcare and safety) is signifi­
cantly limited. These situations harbour additional potential for conflict.
24 World order in disarray: Shouldering responsibility in difficult times

These developments are exacerbated by natural disasters and the consequenc­

es of climate change. Global warming is leading to an increasing scarcity of
water resources and the permanent loss of arable and grazing land in many re­
gions of the world. The increasing frequency and intensity of extreme weather
phenomena such as floods, tornadoes and droughts may give rise to an addi­
tional scarcity of existing resources, trigger new conflicts over the distribution
of resources within societies, and lead to food shortages and – in extreme
cases – famine, while substantially increasing the risk of riots and violent
conflicts. Small Island Developing States see their very existence threatened by
the impacts of climate change.
 World order in disarray: Shouldering responsibility in difficult times 25

Mali is a veritable “poster state” illustrating the negative reciprocal effects of extreme natu­
ral phenomena and the consequences of climate change and conflicts. Pre-existing conflicts
caused by the deep-rooted economic and political discrimination against pastoral tribes like
the Tuareg were further aggravated by multiple droughts during the 2005–2012 period, the
ensuing drop in groundwater level and a considerable reduction in livestock. These effects
of drought also contributed to a series of Tuareg rebellions: they exacerbated the tendency
towards conflict which was additionally fuelled by the general scarcity of resources, unem­
ployment, economic uncertainty, weak government institutions, terrorism and crime.

1.1.5. Forced displacement and migration

Migration is and always has been part and parcel of global change processes.
Orderly migration offers considerable potential for development, for instance
through transfer of knowledge or funds or the investments of migrants in
their home countries. By contrast, irregular migration and refugee movements
involve major risks, both for the migrants and refugees themselves and for the
transit and host countries. It is for these reasons that Germany advocates the
fair distribution of responsibility between the countries of origin, transit and
destination when dealing with refugee and migratory movements.

While refugees feel compelled to leave their home countries as a result of

war, personal prosecution and violence, migrants are often compelled by
other factors, such as famine and food insecurity, natural disasters or the
consequences of climate change, but also by the lack of economic prospects.
Many times, the decision to leave their own countries results from a bundle
of different motives.

Forced displacement and irregular migration are usually fraught with great
risks for the persons concerned: when crossing national borders illegally, they
are often exposed to discrimination and exploitation; they frequently use
the services of criminal trafficking gangs and are vulnerable to the whims of
state security forces that are simply unable to cope. Year after year, thousands
of irregular migrants and refugees die on their often extremely hazardous
journeys. In addition to addressing the underlying causes of forced displace­
ment and irregular migration, it is the declared objective of German policy to
improve protection and support for the refugees in or as close as possible to
their home countries as well as in their host countries.
26 World order in disarray: Shouldering responsibility in difficult times

The receiving countries are mostly developing countries themselves, and are in
many cases likewise characterised by conflicts and fragile structures. When­
ever states are unable to cope with refugees and irregular migrants, there is a
risk of social and economic conflicts with the local population regarding the
distribution of resources, which have a destabilising effect. There is even a risk
of direct security threats, for instance if armed groups are taking advantage of
the precarious situation of the refugees and recruiting them for armed groups
or terrorist organisations.
World order in disarray: Shouldering responsibility in difficult times 27

1.2. Possibilities and limits of engagement

The objective of every peacebuilding policy is to prevent violent conflicts
wherever possible, and where this has not been possible, to show ways of
reducing violence and to support long-term rules-based mechanisms for
peaceful conflict resolution.

““
Crisis prevention aims to address the structural, political and
social causes of conflicts such as social inequality, corruption
and a lack of functioning statehood. But it is exactly these
problems that cannot be remedied by a quick fix or generous
financial aid, but which require long-term commitment.”
Nicole Deitelhoff and Christopher Daase, Peace Research Institute Frankfurt

In the recent past, Germany has been taking increasing responsibility for crisis
prevention, conflict resolution and peacebuilding in Europe and other parts
of the world. Germany’s role in the Western Balkans, in Afghanistan and in its
support of the African Union (AU) shows examples of both the scope and the
limits of long-term crisis involvement.

In the Western Balkans, it was Germany’s engagement since the 1990s which
helped to put an end to the armed conflicts and to stabilise the region. In
Macedonia, Germany’s engagement helped to prevent another violent conflict.
Today, in their capacity as members of the North Atlantic Treaty Organisation
(NATO), several states of the Western Balkans are making their own contribu­
tions to the collective defence commitments of the Alliance. Croatia acceded
to the European Union (EU) in 2013, whereas the other countries of the region
are currently working to obtain their EU membership. However, there is one
painful truth: the Balkan wars were only ended after massive bloodshed and
severe war crimes. To this day, despite the efforts of the international com­
munity, the region continues to remain fragile while the long-term processes
of transformation towards democratic states governed by the rule of law are
stagnating. The economic and social situation in many states of the region
remains difficult. Rapprochement and reconciliation as well as the building of
legitimate and transparent state structures continue to be a major challenge.
28 World order in disarray: Shouldering responsibility in difficult times

In Afghanistan, Germany, in collaboration with its international partners,

has been contributing enormous financial, human and institutional resourc­
es since 2001 – including years of military command responsibility in the
north of the country – to stabilise and rebuild a country which was virtually
destroyed by two decades of war. Despite some frustrated hopes, there has
been important progress made since then: in building up infrastructure,
creating jobs, expanding the public health and education sectors, setting
up military and police forces, strengthening human rights and particularly
women’s rights, and developing basic rule-of-law and democratic structures
and institutions. As a result, the Afghan people today have a chance of a
better future than was the case before our involvement began. However, this
progress is overshadowed by corruption and clientelism, by the expansion and
intensification of the armed conflict and by growing insecurity. The goal of
ending the violent conflict with the Taliban continues to remain out of reach.
The political process needed to achieve this goal has never progressed beyond
its first beginnings, also as a result of the conflicts of interest plaguing the
region. The security situation remains a major concern. Rule-of-law structures
and democratic identity remain weak, and human rights protection remains
inadequate. It will remain a generational task to accomplish stabilisation and
peace in Afghanistan.

In Africa, Germany is engaged in helping the continent strengthen its own ca­
pacities and assume greater responsibility for preventing and resolving crises
and conflicts on its own. Promoting stability and prosperity in our neighbour­
ing continent is an investment in the future and is in Europe’s own best inter­
est. Both bilaterally and in collaboration with the EU and the United Nations,
Germany is supporting the African Union (AU) and regional organisations in
Western, Eastern and Southern Africa, for example as they work to build up
the African Peace and Security Architecture (APSA). These efforts have result­
ed, for example, in the establishment of a continental early warning system for
conflicts, giving AU decision-making bodies a basis for conducting their own
analyses. The Federal Government of Germany is also committed to strength­
ening the multi-dimensional African Standby Force by providing training for
their civilian, police and military elements and by building a pool of civilian
experts for peace missions. Meanwhile, the AU, African regional organisations
and their member states are providing more than half of the peacekeeping
forces deployed on the continent. However, the AU’s challenges continue to
be considerable. Its capacities are still inadequate for addressing the multitude
World order in disarray: Shouldering responsibility in difficult times 29

and constantly changing nature of the conflicts and crises. Also, the AU lacks a
sustainable financial basis from its own resources for the APSA, especially for
its peace missions. The AU continues to be dependent on assistance for both
civilian and military purposes.

These examples show that Germany’s commitment to peacebuilding is effec­

tive, but it requires significant political, financial and personnel investments,
and perseverance – and realistic expectations with regard to the possibilities
and limits of external crisis involvement.

1.3. Reference framework

In its commitment to peacebuilding, the Federal Government follows impor­
tant guidelines and agreements at national, European and international levels.

Under the umbrella of the United Nations, the international community has
agreed to the objective of sustaining peace and is calling for greater coherence
and coordination for crisis prevention, conflict resolution and peacebuild­
ing. This was one of the results of multiple United Nations reviews aimed at
strengthening the capacities with regard to peace and security and to prepare
30 World order in disarray: Shouldering responsibility in difficult times

the global organisation for the challenges of the 21st century. The strength­
ening of existing structures and the further development of crisis prevention
instruments to include early warning, scenario planning and mediation, are
considered just as central as state-of-the-art peacekeeping and sustainable
peacebuilding, including the strong and active involvement of women in these
processes.

The 2030 Agenda for Sustainable Development, which was adopted in 2015 by
all member states of the United Nations, provides the central reference frame­
work for a more equal, more sustainable and therefore more peaceful world.
The cooperative implementation of the 17 Sustainable Development Goals
(SDGs) contained therein will also create the conditions for sustainable peace:
locally, nationally, regionally and globally.

2030 AGENDA FOR SUSTAINABLE DEVELOPMENT

The aim of the 2030 Agenda is to enable everyone throughout the world to live in dignity.
The 17 SDGs therefore bring together all the dimensions of sustainability: economic,
ecological and social development. This breadth of scope means that they can also help
prevent crises.
 World order in disarray: Shouldering responsibility in difficult times 31

Peace is one of the five cornerstones of the 2030 Agenda (People, Planet, Prosperity, Peace,
Partnership). SDG 16 of the 2030 Agenda (peace, justice and strong institutions), in particu­
lar, combines sub-goals relating to peace, security and good governance that are particularly
relevant for involvement in crises. However, the other SDGs also contain important dimen­
sions and contributions for promoting justice, peace and security, specifically SDG 1 (ending
poverty), SDG 2 (ending hunger), SDG 4 (quality education), SDG 5 (gender equality), SDG 8
(decent work), SDG 10 (reducing inequality) and SDG 13 (action to combat climate change
and to adapt to climate change).

The 2030 Agenda is a global partnership with a universal claim: it replaces the traditional
categorisation into “donors” and “recipients” while postulating the shared responsibility
of all states and actors from politics, civil society, business and science – for a worldwide
transformation towards greater sustainability. At the same time, it aims to unite the various
actors in humanitarian assistance, peacebuilding and development behind common goals
in an effort to achieve greater coherence between short-term and long-term projects. The
implementation of the Agenda presents considerable challenges for Germany, too, for
instance in terms of policy coherence. For example, policies, methods of production and
consumer behaviour in Germany, including any repercussion they may have on a global
scale, must be measured against the goals of the 2030 Agenda. In order to implement the
Agenda nationally, Germany adopted the new edition of the German Sustainability Strategy
on 11 January 2017, which translates the 17 SDGs into specific and measurable national
goals or indicators.

The principle of “leaving no one behind” is universally applicable when it comes to meeting
the global transformational challenges of the 2030 Agenda. This principle obliges the inter­
national community to also remember and consider in particular the people in “forgotten
areas of conflict” who are not the focus of the world’s attention. The principle thus addresses
an important aspect of crisis prevention as well: inclusive societies and an inclusive global
world order are a prerequisite for sustainable peace.

The New Deal for Engagement in Fragile States launched back in 2011 consti­
tutes a shared commitment by donors and fragile states to establish legitimate,
inclusive political orders. The New Deal identifies five overarching Peace­
building and Statebuilding Goals (PSGs) which fragile states need to pursue in
order to overcome the causes of fragility: legitimate politics, security, justice,
economic foundations, and revenues and services. The New Deal further­
32 World order in disarray: Shouldering responsibility in difficult times

more defines principles of action and partnership as well as the modalities for
effective, trusting and conflict-sensitive development cooperation with fragile
states. The implementation of the New Deal is accompanied by an internation­
al platform for dialogue between donors, fragile states and civil society (the
International Dialogue on Peace and Statebuilding), which is intended to give
vital stimuli for the implementation of the 2030 Agenda in fragile states.

Resolution 1325 on Women, Peace and Security adopted by the United Nations
Security Council in 2000 is the UN Security Council’s first resolution dedicated
to the importance of women’s participation in peaceful conflict resolution
as well as in political processes and post-conflict reconstruction on the one
hand, and the disproportionately severe impact of armed conflicts on women
and girls on the other. The Women, Peace and Security Agenda launched by
this resolution establishes three fundamental principles: Prevention, Partic­
ipation and Protection for successful crisis involvement in the case of crisis
and conflict, with paramount importance given to the equal participation of
women. In subsequent years, this Agenda was amended and extended by seven
additional resolutions. In its global study on the implementation of Resolution
1325 from 2015 (Preventing Conflict, Transforming Justice, Securing the Peace),
the United Nations again emphasises the fact that the consistent involvement
of women leads to better and more sustainable results in crisis prevention,
conflict resolution and peacekeeping.

The United Nations Security Council Resolution 2250 on Youth, Peace and Se-
curity (2015) acknowledges the central role of young people in peace processes
and calls on the UN member states to allow young people greater participation
at all political levels. The objective is to strengthen the position of children
and adolescents as “Agents of Change”, with a view to playing a positive and
active role in long-term crisis prevention approaches, non-violent conflict
transformation, and the prevention and combating of violent extremism.
The protection of children, who are particularly vulnerable to violence and
systemic violations of law in crises and conflicts, is the subject matter of several
Conventions, such as the UN Convention on the Rights of the Child (1989) and
the relevant Additional Protocol pertaining to the Involvement of Children in
Armed Conflicts (2000).
World order in disarray: Shouldering responsibility in difficult times 33

The Paris Agreement on Climate Protection aims at reducing climate risks and
the negative consequences of climate change. Limiting global warming by
reducing greenhouse gas emissions and providing assistance for adapting to
climate change are considered of paramount importance, as is the establish­
ment of climate risk insurance to mitigate potential consequences. The Federal
Government of Germany is contributing to realising these aims with a raft of
measures, such as providing support for multilateral climate funds, as well as
multilateral and bilateral projects.

““
Germany has a critical role to play in keeping the European
Union outward-looking – not only as a commercial power,
but as an exporter of stability in an unstable world.” Jean-Marie
Guéhenno, International Crisis Group
34 World order in disarray: Shouldering responsibility in difficult times

GERMANY’S INVOLVEMENT IN PRACTICE: NIGER

Niger is one of the world’s least developed countries: life expectancy is low, the
birth rate is the highest in the world, adequate nutrition is not secured, and the
public health and basic education systems are weak. Public revenue is inade­
quate for financing important core functions of the government. At the same
time, Niger is faced with severe burdens: terrorism and organised crime, refu­
gees from the neighbouring states of Nigeria and Mali, and also climate change
induced erosion of arable and grazing land, prolonged periods of drought, and
the loss of seasonal job opportunities in North Africa. The crisis potential arises
from the threat of instability for the country, which would have a devastating
impact on the region.

To keep the situation from getting even worse and prevent it from ultimately
escalating into a violent crisis, both Germany and the EU have offered their
support to the Nigerien government. In addition to humanitarian assistance,
the Federal Government emphasises good governance, long-term food and
nutrition security, as well as healthcare and basic education. In addition,
the equipment and training measures for the military and security forces as
part of the Federal Government’s initiative to enable and enhance are aimed
World order in disarray: Shouldering responsibility in difficult times 35

at increasing state presence in all regions, and to improve the conditions

for peaceful coexistence and economic involvement by providing a secure
environment. Germany’s support with its focus on decentralisation and good
governance serves to strengthen the country’s local-authority structures.
It aspires to improve relations between the state and society, which means
increased legitimacy, improved supply and administrative capability, and the
social capacities to resolve conflicts peacefully. Another objective is to improve
living conditions by measures aimed at strengthening productive agriculture,
food and nutrition security (notably through reclamation of land for agricul­
ture and pasture farming), and the development of the healthcare system.

What all these aim to do is to strengthen the Nigerien Government’s capacity

to act, contribute to the improvement of living conditions and security, and
to promote human rights and gender equality, thereby building trust in state
structures. With these measures, Germany also contributes to the prevention
of violence and the reduction of irregular migration, for which Niger is one of
the most important transit countries in Africa. Germany is also contributing
its engagement to the migration partnership with Niger – in the course of an
intense and high-level political dialogue in the EU. In partnership with Italy
and France, Germany is taking special responsibility for the implementation
of this migration partnership. The EU’s involvement is supplemented by the
bilateral measures which include, for example, the financing and implementa­
tion of the European Union Capacity Building Mission (EUCAP) Sahel Niger or
of crisis prevention measures from the coffers of the EU-Africa Trust Fund.
36 World order in disarray: Shouldering responsibility in difficult times

With its Global Strategy of 2016, the European Union formulated a new strategy
with regard to foreign affairs and security. The Global Strategy defines the prin­
ciples, priorities and instruments of European foreign policy. In addition to its
extensive statements on security and defence policy, the Global Strategy aims
at a holistic, value-oriented approach encompassing all dimensions of action
in the field of foreign policy, including trade, climate, research and develop­
ment policy. It thereby outlines the framework for civilian peacebuilding at
the European level. The Global Strategy lists prevention, security and stabili­
sation, conflict resolution, and the promotion of a peacetime economy as the
key elements to successfully handle crises and conflicts. The Global Strategy
expressly refers to the 2030 Agenda as an important frame of reference for
sustainable development. The further development of a Common Security and
Defence Policy (CSDP) is listed among the Global Strategy’s core concerns. The
CSDP includes the progressive framing of the Union’s common defence policy,
World order in disarray: Shouldering responsibility in difficult times 37

which is intended to lead to a common defence. Germany has also set itself
the objective of creating a common European Security and Defence Union.
According to the Global Strategy, human security should be promoted by an
“integrated approach”. In future, not only should all instruments deployed be
better coordinated, but crisis engagement should also be applied throughout
all phases of a conflict. On top of that, the European Union wants to become
involved all the way from the local level to the global level and aims to address
all parties involved in a conflict.

The Global Strategy underlines the significance attached to prevention and

aims to significantly increase all efforts in this area. The European Union is
called upon to increase its activities in crisis early warning, preventive diplo­
macy and mediation as well as to develop a political culture liable to counter
the risk of violent conflicts at an early stage.

With the Global Strategy, the EU intends to acquire the tools for responding
to crisis rapidly, responsibly and decisively. The stabilisation measures purport
to enable legitimate institutions to provide social services and contributions
to security quickly for local populations. The idea is to reduce the risk of these
populations sliding back into a conflict; to enable refugees to return to their
homeland; and to enable them to resume a secure life. In the long term, the
various European Union instruments should promote a sustainable function­
ing statehood and enable viable economic development.

The Global Strategy simultaneously defines the crucial cornerstones and prin­
ciples of a security and defence policy which will be strengthened in future.
This means that European security and defence policy will be organised and
financed even more efficiently. Capabilities will increasingly be provided as a
joint effort.

The Federal Government of Germany recognised the need for an integrated

and comprehensive approach to tackling the complex causes and drivers of
conflict as early as 2004, and, by adopting the Action Plan “Civil Crisis Pre-
vention, Conflict Resolution and Peacebuilding”, ushered in a paradigm shift
reflecting an interministerial policy for fragile and conflict-affected areas that
enjoys broad social acceptance.
38 World order in disarray: Shouldering responsibility in difficult times

It was the interministerial Guidelines for coherent policy in dealing with fragile
states which set the priorities for 2012 and which helped to establish new
structures, such as the interministerial task forces for specific crises. With its
second National Action Plan for the Implementation of UN Security Council
Resolution 1325 on Women, Peace and Security for the 2017–2020 timeframe,
the Federal Government committed to taking specific measures to promote
the increased participation of women in crisis prevention, conflict resolution
and peacebuilding (e.g. in the capacity of mediators, representatives of local
communities, or human rights defenders), to speak up for the protection of
women and girls from violence in armed conflicts, and to work towards a
gender-sensitive dealing with the past after violent conflicts. During the World
Humanitarian Summit in Istanbul in 2016, Germany called for strengthening
the linkages and synergies between humanitarian approaches and approaches
related to development policy (New Way of Working) and for the use of more
flexible financing mechanisms.
World order in disarray: Shouldering responsibility in difficult times 39

As a consequence of the Review2014 process, the Federal Foreign Office has

pooled its approaches and tools regarding crisis prevention, stabilisation,
peacebuilding and humanitarian assistance in a new department. The German
Federal Ministry for Economic Cooperation and Development (BMZ) has con­
centrated and expanded its tools relevant to crisis and conflict in thematic ini­
tiatives. It has also further developed and improved the principles for working
in fragile contexts (most recently in the “Development for Peace and Security”
sectoral strategy of 2013), and has fine-tuned its transitional development as­
sistance as a crisis instrument. With its White Paper on Security Policy and the
Future of the German Armed Forces (Bundeswehr), the Federal Government
updated its position and course for Germany’s security policy in 2016 (see box
on page 40). Advancing the comprehensive approach, as envisaged therein,
aims to ensure preventive and coherent governance via interministerial
formats. A comprehensive description of how development policy can serve
as a future-orientated peace policy can be found in the Federal Government’s
Development Policy Report of 2017 (see box on page 41).

In response to changing threats to freedom and security from cyberspace, the

Federal Government adopted the new Cyber Security Strategy for Germany
in 2016. It serves as the overarching strategy for all of the Federal Govern­
ment’s ongoing and forthcoming activities in the field of cyber security. The
approximately 30 strategic measures and objectives concern, inter alia, the
cyber security of citizens, the economy, public cyber security architecture and
cyber foreign policy. The interministerial priority areas of security policy focus
primarily on the civilian sector while simultaneously taking into account the
aspect of defence. For this reason, the Federal Ministry of Defence (BMVg) has
developed a Cyber Defence Strategy Guideline, created structures for pooling
and strengthening its cyber expertise, and established a cyber command.
40 World order in disarray: Shouldering responsibility in difficult times

THE FEDERAL GOVERNMENT WHITE PAPER ON SECURITY POLICY AND THE FUTURE OF
THE GERMAN ARMED FORCES (BUNDESWEHR) (2016)
The White Paper of 2016 is a response to the fundamental changes in the security envi­
ronment and at the same time reflects the change in Germany’s identity and its ambition
to play an active and substantial role in shaping international security policy. It is the key
German policy document on security policy for shaping the decisions and actions of our
country pertaining to security policy.

On the basis of our commitment to play a part in policy-making, our possibilities, interests
and values, and an analysis of the security environment, the White Paper defines Germany’s
strategic priorities:

1. Guaranteeing security precautions that are in the overall interest of the state;
2. Strengthening the cohesion of NATO and the European Union and their (joint)
­capacity to act;
3. Unhindered use of information and communication systems, supply lines, transporta­
tion and trade routes, as well as the secure supply of raw materials and energy;
4. Early recognition, prevention and containment of crises and conflicts;
5. Commitment to a rules-based international order, also by enhancing our commitment
as part of the United Nations and their peacekeeping efforts.

In the second part of the White Paper, the Federal Government provides a framework for
further developing the German Armed Forces (Bundeswehr) as an instrument of a compre­
hensive approach. Against the backdrop of a volatile, unpredictable and complex security
environment, the Bundes­wehr requires a broad spectrum of capabilities in order to ac­
complish its mission – from national and collective defence to homeland security all the
way to international crisis management, and the enhancing and enabling of partners. The
White Paper also aims at realigning the task spectrum and resources of the Bundeswehr to
meet the challenges, and to make it adaptable and flexible.
 World order in disarray: Shouldering responsibility in difficult times 41

DEVELOPMENT POLICY AS FUTURE-ORIENTED PEACE POLICY: THE GERMAN

GOVERNMENT’S 15 TH DEVELOPMENT POLICY REPORT (2017)
Every four years, the Federal Government of Germany prepares a comprehensive report on
development policy. In addition to summarising the past legislative period, the 15th Devel­
opment Policy Report, ratified by the Federal Cabinet in April 2017, for the first time also
provides an extensive forecast of the global challenges ahead and the future priority areas of
development policy.

In the light of the 2030 Agenda for Sustainable Development, the first part of the report
defines five roadmaps for a modern development policy fit for the future:

ŸŸ A world without poverty and hunger is possible;

ŸŸ The new global imperative: combating climate change, keeping
­within ­planetary ­boundaries;
ŸŸ Promoting development opportunities, mitigating the causes of
­displacement, ­safeguarding peace;
ŸŸ Creating a fairer world economy;
ŸŸ Global partnerships for the 2030 Agenda.

The second part of the report provides an account of the most important development
policy measures taken and the results achieved during the 2013–2017 period. For example,
the Federal Government has already put critical reforms and initiatives in motion in recent
years to actively shape the implementation of the 2030 Agenda: at the national level by way
of the German Sustainable Development Strategy adopted in January 2017 and through
direct collaboration with partner countries, and also at the international level. The success
of Germany’s development policy is based above all on close collaboration with partner
governments, as well as with civil society, administration, academia and business.
42 The vision statement of the Federal Government of Germany

2.
The vision
­statement of
the ­Federal
­Government
of ­Germany
The vision statement of the Federal Government of Germany 43
44 The vision statement of the Federal Government of Germany

2. The vision statement of

the Federal Government
of ­Germany
Having emerged from the ashes of two world wars and the Shoah, that ultimate
betrayal of all civilised values, the Federal Republic of Germany has dedicated it­
self to the cause of peace. What it means to fulfil this mission for peace laid down
in the Basic Law, Germany’s constitution, in these times of countless crises, new
geopolitical lines of conflict and the increasing challenge of global and regional
governance structures is to take on more international responsibility for peace,
freedom, development and security. Germany is the most populous member
state in the European Union and is characterised by a high level of political
stability and an active civil society. Germany is well connected and integrated in
various ways and at all levels within the international community, and is highly
regarded as a reliable partner in many parts of the world. Germany’s prosperity is
based not least on the internationalisation of the German economy. That is why
the consequences of crisis and conflict – particularly those close to Europe –
affect us directly. Through crisis prevention, conflict resolution and peacebuild­
ing, the Federal Government is fulfilling its responsibility to protect the security
and welfare of Germany and its citizens.

““
Germany’s ability to play an enhanced global role is
­predicated not only on its considerable economic strength and
record as a major contributor to ­international ­development
cooperation, but also on its tragic past.” S­ imon ­Adams, Global Centre
for the Responsibility to Protect

The vision statement lays down the guiding principles for the Federal Govern-
ment to shape its actions and instruments as well as appropriate structures and
partnerships for peacebuilding.
 The vision statement of the Federal Government of Germany 45

2.1. Why we take action: Responsibility for

peace, freedom, development and security
2.1.1. Germany’s commitment to fundamental values in
its ­engagement

Peace begins with the absence of organised, physical use of violence. For peace to be sustain­
able, however, it takes additional elements such as political and social participation, the rule
of law, and respecting, protecting and fulfilling human rights. Sustainable peace will prevail
wherever people are respected in their inalienable rights, irrespective of their origins and
life circumstances, and where they have the freedom to shape their own lives.

The key principles of Germany’s free and democratic order – human dignity,
civil liberties, democracy, rule of law, the separation of powers and social
responsibility for each other – also form the basis for our engagement in crises
and conflicts, and the promotion of peace. This engagement is based on a solid
bedrock of values:

ŸŸ German foreign, security and development policies pursue the vision of pos-
itive, sustainable peace as expressed in the United Nations’ 2030 Agenda for
Sustainable Development. It is this kind of peace that allows a life in dignity,
and sustainable development. Only where peace prevails and where people
can live on an equal footing and in a secure environment will they be able to
realise their potential to the fullest. Peace is a catalyst for free and unrestrict­
ed thinking, political participation, cultural creativity, economic growth,
social justice and ecologically responsible action. This applies in the reverse
as well: there can be no lasting peace without sustainable development. This
peace must be protected both at home and abroad. We understand peace as
the most valuable asset of international relations and believe in the general
ban on violence enshrined in the UN Charter as the inalienable foundation
of any international order.
46 The vision statement of the Federal Government of Germany
The vision statement of the Federal Government of Germany 47

ŸŸThe universal and indivisible human rights not only serve to protect the
individual from arbitrary government action, they are also prerequisite for
the long-term stability of public and social orders. The respect, protection
and fullfilling of civil, political, economic, social and cultural human rights
is the interdisciplinary task of German policy. The dignity of each individual,
gender mainstreaming and gender equality, non-discrimination and human
security are at the core of its action. In armed conflicts, Germany defends the
unconditional respect and enforcement of international humanitarian law.

ŸŸLegitimate and effective political orders protecting against arbitrary gov­

ernment action, respecting human rights, and ensuring the participation in
and pluralism and transparency of political action are the best institutional
guarantee for peaceful, just and inclusive societies as well as for sustainable
development.

ŸŸ Social cohesion and the sustainable use of our natural resources are indis­
pensable for peaceful social development.

ŸŸA united Europe based on shared values and beliefs and served by strong
institutions guarantees peace on our continent. That is why Germany’s
rootedness in the European Union is a central point of reference for Ger­
man policy.

ŸŸ Germany has accepted the unique responsibility arising from its history. The
avoidance of war and violence in international relations, the prevention of
genocide and severe violations of human rights, and the defence of endan­
gered minorities and the victims of oppression and persecution are integral
to Germany’s reason of state.

These values are the moral compass which guides us: it is these values by
which we align our actions for the prevention of crises, the resolution of
conflicts and the promotion of peace – even in places where the full realisation
of these values is thwarted by circumstances or where a gradual approach is
required.
48 The vision statement of the Federal Government of Germany

““
Peace goes beyond the mere absence of armed conflicts
and means the elimination of direct, political, structural,
­economic or cultural violence. This in turn implies that
the economic, social and cultural needs of all people are
met, that all human rights are respected, and that ­dignity
of all people is accepted as the supreme objective of all
­governance.” Stefan Liebich, Member of the German Bundestag (MdB),
DIE LINKE Parliamentary Group

2.1.2. Germany’s interest in sustainable and stable

peace ­orders
The Federal Government’s commitment to peace makes an important contri­
bution to protecting Germany’s strategic interests, as most recently formulated
in the Federal Government’s White Paper of 2016 on Security Policy and the
Future of the German Armed Forces (Bundeswehr). This applies above all to:

ŸŸ the protection of the citizens, and the preservation of the sovereignty and
territorial integrity of Germany and its allies. More often than not, radi­
calisation and terrorism are the negative side effects of state failure, state
disintegration and violent conflicts. They can pose a direct threat to Ger­
many’s security. This threat scenario requires the protection and defence
of our open societies against threats such as terrorism, hybrid dangers and
inhuman ideologies.

ŸŸthe protection of our citizens’ prosperity by preserving a free and socially

responsible global economy. Peace is a basic prerequisite for free and fair
market access, for investment opportunities, and for the security and safety
of international trade and transport routes.

ŸŸ the maintenance and active contribution to shaping a rules-based order. This

includes first and foremost the respect and enforcement of international
law, and, where necessary, the evolution of its standards as an indispensable
set of rules for shaping peaceful relations between the states. Germany is
focused on strengthening multilateral institutions as a viable tool for the
prevention and resolution of international conflicts, the protection of global
public assets, and the regulation of cross-border exchange.
The vision statement of the Federal Government of Germany 49

ŸŸ the reduction of irregular migration and disorderly refugee movements, and

the facilitation of regular migration. Germany acknowledges its responsibili­
ty for people fleeing persecution. It offers protection to those who are being
displaced, especially as a result of armed conflict in their country of origin.
At the same time, Germany is committed to mitigating the root causes of
displacement in countries of origin and transit countries, to assisting host
countries in their care of refugees, and to generally contributing to the crea­
tion of new life prospects in those countries. Germany is likewise committed
to emphasising and realising the advantages of regular migration.

ŸŸ arms control, disarmament and non-proliferation. The instruments of arms

control and confidence building serve to prevent the destabilising develop­
ment and activities of armed forces while promoting stability and security at
the regional and global level.

ŸŸ the protection of the natural resources necessary for human coexistence, to

preserve decent prospects for future generations. This requires resolute and
responsible action against the manifold threats to the environment and
the climate, and against other hazards generated by humans (e.g. chemical,
biological, radiological and nuclear hazardous substances).

ŸŸ reliability within the collective security systems at the level of the United
Nations, the European Union, the Organisation for Security and Cooperation
in Europe (OSCE), and NATO. Our interests remain closely intertwined with
those of our allies and partners. Proceeding from the secure foundation
of shared values, Germany remains committed to solidarity among the
allies and will support them in tackling the challenges they are facing. This
requires the fair sharing of burdens within the Alliance and beyond.
50 The vision statement of the Federal Government of Germany

2.2. How we take action: With prudence

and a view to sustainability
The values and interests of our engagement do not per se result in a coherent
strategy and may sometimes lead to conflicting objectives and practical dilem-
mas. What compromises can we accept in order to prevent escalation? How
best to harmonise short-term stabilisation requirements at the end of a violent
conflict with the goal of long-term social transformation for the promotion of
peace? What circumstances will allow us to support effective non-governmen­
tal actors in the provision of essential public services without undermining the
goal of strengthening state structures? It is these issues, and many others alike,
which necessitate prudent action oriented towards sustainability. We need
to define coordinated objectives specifically for each region and country. The
following principles of action may serve as guidance in the case of conflicting
objectives:

2.2.1. Respecting, protecting and fulfilling human rights

““
Effective crisis management is not for those who prefer quick
and easy fixes, but for those who recognise the potential of a
human rights-based approach and who are willing to face up
to its challenges.” Beate Rudolf, German Institute for Human Rights

Lasting peace can only be ensured where universal human rights are respected.
The Federal Government’s policy is dedicated to a specific commitment: to
protect people from the violation of their rights and fundamental freedoms,
and to create sustainable conditions where oppression, arbitrariness and
commercial exploitation do not stand a chance. Wherever Germany is engaged
in crisis prevention, conflict resolution and peacebuilding, the protection of
human rights is of central importance. The support and protection of human
rights defenders is an integral element of that policy.
 The vision statement of the Federal Government of Germany 51

THE PRINCIPLE OF RESPONSIBILITY TO PROTECT

The Federal Government of Germany is committed to the principle of Responsibility to
Protect (R2P), as formalised in the World Summit Outcome adopted by the United Nations
General Assembly of 2005. This principle sets out the political responsibility of each state to
protect its citizens from mass atrocities (genocide, ethnic cleansing, war crimes and crimes
against humanity).

The Federal Government understands the Responsibility to Protect as a holistic concept

whose three pillars receive an equal amount of attention:

ŸŸ The state’s responsibility to protect its own population;

ŸŸ The international community’s responsibility to support weak states in the
­protection of their own populations;
ŸŸ The international community’s responsibility to quick and vigorous intervention in
line with the Charter of the United Nations whenever a state is unable or unwilling
to protect its own population.

The Federal Government supports the further development of civilian approaches as part of
the R2P concept, and the reform of the UN architecture to promote peacebuilding, as called
for by the High-Level Independent Panel on United Nations Peace Operations. In particular,
it promotes civilian peacekeeping as a tried and tested method for protecting people from
violence and the severe violation of human rights.

2.2.2. Taking context-specific, inclusive and long-term action

““
It will be necessary to be open to local political and cultural
circumstances. This calls not only for sound knowledge of the
local situation, but also for the necessary degree of flexibility
in drafting the mandates.” F­ ranziska Brantner, Member of the German
Bundestag (MdB), Bündnis 90/Die Grünen Parliamentary Group

Through its contributions towards the prevention and resolution of crises and
the promotion of peace, Germany supports societies on their long-term and
self-determined paths of development. We embrace the establishment of
legitimate statehood for the realisation of human rights, the rule of law, equal
social, cultural and political participation of all citizens, gender equality, and
social cohesion, while abiding by the principles of good governance.
52 The vision statement of the Federal Government of Germany

We are guided by the fundamental concept of local ownership. After all,

political order requires acceptance by the respective population. For medium
to long-term stability, political order needs to be based on the local concepts
of legitimacy, with the local actors being prepared to assume responsibil­
ity for local developments. That is why all measures of crisis prevention,
conflict resolution and peacebuilding require an individual strategy for every
country and every region. There are no standard solutions. This is why all
our actions must be guided by specific conflict and context analyses. It is
imperative, for political processes as well as for conflict resolution measures,
to reconnect with the traditions and institutions allowing participation on
the one hand, and to involve the different social groups on the other. This is
what the international principle of local ownership is all about. We there­
fore carefully assess the ideas, prospects and needs of the people in societies
affected by conflict.

Legitimacy means the acceptance of an authority as rightful. The analysis of fragility is based
on an empirical understanding of legitimacy. Accordingly, a political order will be deemed
legitimate if it is accepted by the vast majority of the respective population, which recognis­
es it as rightful and which believes in it as the implementer of its values. In its selection of
partners, and in its support of political orders for peacebuilding, the Federal Government is
guided by the values and principles of this vision statement.

Social transformation will take generations to accomplish, and every transfor­

mation process includes the possibility of setbacks. That is why peacebuilding
must follow a long-term approach. Acute conflicts may require initial stabili­
sation measures to first address the containment of violence and to ensure a
minimum level of human security. To achieve this, we sometimes have to re­
sort to the assistance of effective non-governmental partners that will assume
local responsibility for the common good and whose actions are perceived as
legitimate by the population. Likewise, some circumstances may compel us
to temporarily accept political orders which are not entirely compatible with
our own values. To avoid jeopardising our long-term goals of strengthening
legitimate statehood, and to create a space for transformation processes, it
The vision statement of the Federal Government of Germany 53

is particularly important to carefully weigh the risks and consequences of

collaboration with non-governmental, former protagonists of violence. At the
same time, we have the opportunity to support those actors who are open to
change – notably civil-society actors – in laying the foundations for the long-
term development of society. For comprehensive and effective assistance of
social transformation processes, it is necessary to coordinate and synchronise
the short, medium, and long-term support measures, and to take the transi­
tions between those measures into account.
54 The vision statement of the Federal Government of Germany

GERMANY’S INVOLVEMENT IN PRACTICE: MALI

In 2012, Mali was devastated by a separatist uprising of Tuareg groups, the oc­
cupation of large areas of the North by Islamists, and a military coup. In 2013,
the United Nations Security Council launched the MINUSMA “Blue Helmet”
mission (Mission multidimensionnelle intégrée des Nations-Unies pour la stabi-
lisation au Mali) to secure a ceasefire agreement and to stabilise the country.
MINUSMA’s mandate was extended for the purpose of implementing the 2015
peace treaty. The international community is supporting the Malian Govern­
ment in implementing the peace treaty and restoring governmental control
over the north of the country.

Since 2013, the Bundeswehr and the police forces of the Federal Government
and the Länder have also been involved in MINUSMA. In early 2017, up to 1000
German service members and up to 20 German police officers were deployed
in Mali. The Bundeswehr is providing important key competencies for the
mission such as land-based and aerial reconnaissance, assistance with aerial
means, and air logistic support operations. Apart from that, Germany has
been deploying a specialised training team to the national police academy in
Bamako since late 2015, as the police component of the mission, for training
The vision statement of the Federal Government of Germany 55

Malian police officers in criminology and border management. As part of the

EU’s Common Security and Defence Policy (CSDP), Germany is also involved
in the European Union Training Mission (EUTM) and the Mission EUCAP Sa­
hel Mali. Numerous projects for building up the capacity of the Malian security
forces have been financed and implemented through the “enable and enhance”
initiative of the Federal Government.

Accompanying its involvement for these missions, the Federal Government,

via the Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ), is
supporting the peace and stabilisation process by providing professional and
financial assistance to the Ministère de la Réconciliation, the Haut-représent-
ant, and the Commission de la vérité et de la réconciliation (CVR). In pursuit
of an inclusive reconciliation process, participative dialogs for the resolution
of conflict issues are conducted in all regions of Mali. In addition, the Federal
Government is actively accompanying a constitutional reform aimed at mak­
ing the reconciliation of interests between all sections of the population more
inclusive. The implementation of civilian stabilisation projects in collabora­
tion with the regional planning administrations serves to bolster the political
process by allowing the population, notably in Northern and Eastern Mali, to
experience a “peace dividend”.

Decentralisation, good governance, agriculture, and the development of water

supply and sewage structures are at the heart of the long-term development
cooperation strategy. Decentralisation is enshrined in the peace treaty and is
considered a key political reform for making progress in the eradication of
poverty and fostering the peace process. The point of promoting productive
and sustainable agriculture and a water supply and sewage infrastructure is to
help improve the living conditions of the Malian people; another point is to
enable the active involvement of women and girls. Although Mali does have
significant mineral deposits, it is imperative to develop the mining sector in a
manner which will allow the population to benefit from the proceeds. In their
entirety, all of the Federal Government’s measures aim at helping all sections
of the population to start believing in the peace in that they feel adequately
represented by the state and its organs. This will strengthen the state’s legiti­
macy in the long run while enhancing social cohesion.
56 The vision statement of the Federal Government of Germany

““
It is usually possible to reach the low-hanging fruit in the
contexts of crises in the short term (e.g. functioning primary
care in refugee camps); and that is already accomplishing a lot.
Nevertheless, we must not lose sight of the high-hanging fruit,
such as the establishment of trusting relationships between
state and society, or the creation of functioning rule-of-law
mechanisms. Because it is precisely the high-hanging fruit that
are important for preventing renewed outbreaks of violence.”
Tanja Gönner, Deutsche Gesellschaft für Internationale ­Z usammenarbeit (GIZ)

2.2.3. Making risks transparent, acting in a coherent manner

and observing due diligence
Anyone engaging in crises and conflicts is acting in a volatile environment
that is likely to increase the risks while making impact assessment difficult. In
these contexts, the governmental institutions are often weak or are actually
exacerbating the conflicts; almost every actor has a history of conflict; the
sudden switching of sides and changes in political and military constellations
are a daily occurrence. That is why realism, pragmatism and flexibility are the
name of the game in our crisis engagement: on our way towards realising our
long-term goals, we have to proceed step by step, factor in setbacks and be
prepared to make compromises. This requires a sound knowledge of regional
and local situations, and the careful assessment of the possible consequences
of our actions.

That is why we abide by international quality standards and by tried and

tested principles of action, such as those established by the Organisation for
Economic Cooperation and Development (OECD), when becoming involved in
countries and regions affected by violence, conflicts and fragility. Our actions
are notably guided by what is known as the Do-No-Harm principle. This is
all about avoiding effects that unintentionally exacerbate conflict and about
strengthening the peace-promoting effects of international support. We are
acting in the keen awareness that every intervention within the context of
conflicts will have significance for and effects on the people in the areas af­
fected. This helps us to figure out what kind of involvement makes sense when
and where. Acting in a context-sensitive manner also raises the acceptance and
credibility of the work on the ground – and hence the efficacy and sustainabil­
ity of the engagement.
The vision statement of the Federal Government of Germany 57

Resolute engagement in a fragile and insecure environment must include the

readiness to take risks and must at the same time strive to minimise them.
Failure to act in due time or failure to act with the utmost resolve often results
in serious consequences. However, it is important for us to recognise that there
can be no guarantee of success, given the ever-changing framework condi­
tions of fragile contexts, and that the influencing powers of external actors are
limited. Even if planned with all eventualities in mind, not all of our measures
will turn out to be successful. We will, however, make every effort to anticipate,
identify and control the risks and effects of our actions better.

For our crisis engagement to be truly effective, however, we must not lose
sight of its reciprocal effects on other policy areas. As the Federal Government,
we are actively involved in shaping a global policy aimed at sustainably pre­
venting future conflicts. This also applies to the shaping of global economic,
finance and trade policy. We support global disarmament and arms control.
As a trailblazer in global policy seeking to mitigate climate change and protect
vital natural resources, we are also making every effort to reduce conflict-ex­
acerbating factors.

2.2.4. Primacy of politics and the priority of prevention

Germany’s involvement in crises and conflicts respects the primacy of politics
and the priority of prevention. For this the Federal Government uses an ex­
tensive toolkit of civilian measures. When cooperating in the field of security
sector reforms, these instruments are further complemented by training and
advisory measures of the armed forces.

Only political solutions have the leverage to ensure lasting and viable peace.
The Federal Government will therefore embed its crisis prevention, conflict
resolution and peacebuilding measures in political strategies which are con­
text-specific, conflict-sensitive and internationally compatible.

Averting a crisis at an early stage and preventing violent escalations avoids

human suffering whilst being more effective and less costly than acute crisis
response. We will therefore step up our efforts in early warning and crisis pre-
vention, enhance the tools available to us, and work on exerting our influence
at all levels. However, it would certainly have been unrealistic to presume that
crisis prevention would work in every case. That is why we will have to contin­
58 The vision statement of the Federal Government of Germany

ue our crisis involvement in acute crises in the future. Wherever possible, we

will give priority to civilian conflict resolution measures, including the develop­
ment of civilian police structures.

Some conflicts, however, necessitate more extensive steps by the international

community in order to avert threats to peace and security or to prevent mass
crimes against humanity and genocide. The use of military force permissible
under international law remains a last resort for German policy and must at
all times be part of a comprehensive, integrated policy approach. Foreign
deployments of the Bundeswehr are subject to prior parliamentary approval
and require the constitutive consent of the German Bundestag.

2.3. With whom and where we take action:

Strengthening partnerships for peace
2.3.1. European and international partners
Peace takes a collective effort. That is why all our actions are closely coordinated
with our partners in the international community. We take into account their
abilities when planning our actions, and we dedicate our contributions to the
common cause. The large number of conflicts all over the world requires even
greater international division of labour and coordination, to which we will
dedicate our utmost efforts. Our ambition is to strengthen existing structures
for peace while building new bilateral and multilateral partnerships. All of
these efforts are guided by our values- and interest-driven commitment to the
United Nations, the European Union, and the collective and regional capacities
of OSCE and NATO.

2.3.2. Interministerial approach to joint action

““
We rely on the close collaboration of civilian and military
actors. For Germany’s support [of] reforms to be effective
and successful, Germany’s civilian, police and military
­contributions have to be well coordinated.” Roderich Kiesewetter,
Member of the German Bundestag(MdB), CDU/CSU Parliamentary Group
The vision statement of the Federal Government of Germany 59

The Federal Government’s involvement in crises and conflicts is an intermin­

isterial task requiring a comprehensive approach – an approach which takes
more than the concerted efforts of foreign, development and security policy.
The internationally aligned contributions from justice, education, environ­
mental, healthcare, social, migration, cultural, economic, food, gender equality
and trade policy are equally important. We believe in our commitment to
the interministerial approach. We have devoted ourselves to fine-tuning the
mechanisms of interministerial coordination on the basis of these Guidelines.
We are motivated by our belief that joint action will make us faster, more
strategic, and better coordinated for addressing the issues of crisis prevention,
conflict resolution and peacebuilding. We are also working on strengthening
our cooperation with the German Bundestag for the political and diplomatic
resolution of conflicts. We appreciate and praise the work of our governmental
implementing and intermediary organisations, as well as our other implemen­
tation partners and of the German, international and national staff imple­
menting our crisis involvement locally. These Guidelines carefully assess the
framework conditions of local crisis involvement while initiating processes for
their improvement.

2.3.3. Non-governmental partners

““
Empowered and networked civil societies in the North and
South play a fundamental role for peace and human rights. It
is therefore imperative to promote opportunities for dialogue
between and coordination of civil society, religious ­communities,
the state and the business sector – both in Germany and in
the partner countries.” Jürgen Deile, Civil Peace Service Group

Germany has a wide and multi-faceted network of non-governmental or­

ganisations working for peace which closely coordinate their efforts with the
Federal Government in various structures. It is these organisations which are
promoting and pooling the contributions from civil society, education and
science, foundations, churches and other religious communities. In societies
affected by conflict, we go beyond strengthening legitimate state structures
and are also working with civil society partners who are anchored in society
and committed to working for peace. While appreciating the contributions by
60 The vision statement of the Federal Government of Germany
 The vision statement of the Federal Government of Germany 61

these actors, we want to make them even stronger for the future and involve
them even more in the practice of peacebuilding, albeit without abolishing the
different social roles. We also want to strengthen our collaboration with the
business sector as a critical non-governmental partner. At the same time, we
are raising our non-governmental partners’ awareness for their due diligence
in fragile and conflict-affected states.

NATIONAL ACTION PLAN FOR BUSINESS AND HUMAN RIGHTS

In June 2011, the United Nations Human Rights Council unanimously adopted the UN
Guiding Principles for Business and Human Rights. Based on three pillars (Protect, Respect
and Remedy), the 31 principles emphasise the fact that the protection of human rights is the
primary responsibility of the state. At the same time, business enterprises are called on to
ensure that their actions and business relations will not have a negative impact on human
rights. The Guiding Principles attach prominent significance to supporting enterprises in
their protection of human rights in areas affected by conflicts (Guiding Principle 7). The
risk of major human rights violations in these areas is particularly high due to the often
complete absence of state structures.

In 2016, the Federal Government adopted the National Action Plan for Business and Human
Rights (NAP) in an effort to implement the Guiding Principles. The NAP’s key elements are:

ŸŸ The Federal Government’s clear expectations about the Human Rights Due Diligence of
business enterprises, and a clear set of targets for the implementation thereof;
ŸŸ the special responsibility of the state regarding public corporations, public procurement,
and foreign trade promotion;
ŸŸ active implementation monitoring with the aid of annual inventorying from 2018, which
will lead to a first assessment in 2020 and – depending on the results – to possible subse­
quent steps.
62 The vision statement of the Federal Government of Germany

2.3.4. Making peace processes more inclusive

““
Nowhere in the world is it possible to resolve conflicts and
restore the peace if half of the population is being disregarded.”
­Sonja Schiffers and Vera Lamprecht, Polis180

All too often, the role of women in conflicts and peace processes is perceived
as one-dimensional – as the role of victims – while women’s importance and
potential remain ignored and unused. However, this means that we are cutting
ourselves short, because women have an important function in peacebuild­
ing, reconstruction and the transformation of societies after a conflict and
in establishing security and stability. That is why the implementation of the
Federal Government’s second National Action Plan for the realisation of UN
Security Council Resolution 1325 is an important and challenging crosscutting
task. The key objective is to increase the involvement of women as a means
to prevent crises and armed conflicts from developing in the first place, or to
prevent conflicts from flaring up again after they have ended. To the Federal
Government, systematic inclusion of a gender perspective is paramount. Our
aim is to promote the potential of young people, people with disabilities, and
minorities more strongly in the spirit of inclusive peace processes.

2.3.5. Setting priorities

Germany is committed to promoting peace all over the world. Nevertheless,
due to its limited resources, the Federal Republic of Germany needs to set
priorities based on our values and interests. The immediate threat to peace and
security, the involvement of Germany and Europe, the expectation for Germa­
ny to act, and our ability to create local added value are important criteria for
setting strategic geographical and content priorities.
The vision statement of the Federal Government of Germany 63

2.4. How we improve: Identifying capability

gaps and learning from past experience
Crisis engagement in fragile contexts is fraught with risks. It is therefore impor­
tant, in addition to careful, conflict-sensitive planning, to be ready and willing to
learn from past experience and mistakes. This is the only way to minimise risks
and to change the course of ongoing measures if necessary. In addition, we will
regularly check our toolkit for capability shortfalls, develop and strengthen our
partnerships, expand our capacities for monitoring and evaluation, and analyse
and evaluate our interministerial actions at reasonable intervals. With the
German Bundestag, our international partners, civil society and science we will
maintain an open and cooperative dialogue on the principles and effects of our
political action in fragile and conflict-ridden contexts.
64 Goals, approaches and instruments of peacebuilding

3.
Goals, approaches
and instruments of
peacebuilding
Goals, approaches and instruments of peacebuilding 65
66 Goals, approaches and instruments of peacebuilding

3. Goals, approaches and

­instruments of peacebuilding
For its peacebuilding efforts, the Federal Government has a broad range of
policy instruments at its disposal. This “toolkit” includes bilateral measures
of foreign, development, security and defence policy, as well as the corre­
sponding European and multilateral mechanisms. To achieve our shared goals,
we have opted to further enhance the coherence and interconnectedness of
our measures by linking short- and long-term approaches, strengthening
cross-sectoral action and aligning ourselves with internationally coordinated
political strategies.

In addition to its multi-faceted approaches at the country level, the Federal

Government works to strengthen its partners’ structures in order to ensure
that regional funds for crisis prevention, conflict resolution and peacebuild­
ing are available, regardless of acute crisis situations. In addition to providing
general organisational and management support to the institutions concerned
(e.g. the AU), this also includes the establishment of continental and regional
early warning systems or mediation units, as well as the training of civilian and
military staff for peacekeeping missions.

The basis of all the work in the partner countries is the careful analysis of
the given context, the causes and courses of the conflict and its actors. This
requires regular assessment and adjustment. In these cases, particular account
must be taken of the reciprocal effects between the conflict context and any
ongoing interventions and/or international programmes.

3.1. Key conflict dynamics and strategic

­approaches
Every conflict has different causes, different dynamics and a specific course.
However, for reasons of simplification and schematic representation, a distinc­
tion can be made between three phases:
Goals, approaches and instruments of peacebuilding 67

ŸŸ Latent conflict: The situation is volatile, and there is a distinct crisis poten­
tial – for example due to sharp social and political inequality or due to the
lack of capacities to deliver basic services – but the situation has not (yet) es­
calated into violence. Crisis prevention addresses the structural political and
social causes and drivers of conflicts while attempting to prevent escalation
and outbreaks of violence and making long-term contributions to peaceful
coexistence. Different approaches and instruments will be required, depend­
ing on the degree of fragility (see box on page 21): in states with low-per­
forming governmental institutions (“weak” states), what is required above
all are medium- and long-term institution-building and capacity-building
measures, e.g. within the governance system. These approaches can help to
improve the living conditions of the population, consolidate the legitimacy
of the state, and strengthen its capacities. In states challenged by non-gov­
ernmental protagonists of violence (e.g. local militias, terrorism, drug cartels)
(“challenged states”), it is vital to protect the population from violence, to
enhance the legitimate exercise of the government’s monopoly on the use of
force – whilst upholding human rights standards –, and to open up alterna­
68 Goals, approaches and instruments of peacebuilding

tive perspectives for the followers of conflict actors. Repressive regimes not
readily accepted by the population (“illegitimate states”) frequently appear
more stable than they actually are. A deterioration in the availability of basic
supplies or external crises may quickly lead to escalating violence and civil
war in these cases. To prevent this from happening, it is particularly im­
portant to make resolute use of ways to exercise political influence, to offer
incentives for reforms, to create the prerequisites for constructive relations
between the state and society, for dialogue and political participation, and in
exceptional cases to also consider restrictive measures such as sanctions.

““
The Federal Government needs to further expand its
­comprehensive approach to action. It is important to use
the long-standing know-how gained from development
­cooperation during all phases of a conflict.” Dagmar Wöhrl,
­Member of the), German Bundestag, CDU/CSU Parliamentary Group

ŸŸViolent conflict: Existing conflicts have escalated and turned violent. In

“failing” or “dysfunctional” states, the population’s security is threatened
by a variety of governmental and non-governmental actors. In conflict
resolution – in addition to providing humanitarian assistance to ease human
suffering – the search for political solutions to end the violence, and the
negotiation of sustainable peace solutions through active crisis diploma­
cy, mediation, and the support of negotiating processes are of paramount
importance (see box on page 77). Stabilisation measures (see box on page
69) serve to bolster these political processes by allowing people locally to
experience a “peace dividend”. It is highly advisable even during this phase
to support the governmental and non-governmental actors who are work­
ing to overcome social divides and to achieve long-term transformation
all the way to an inclusive political order. During this phase, Transitional
Development Assistance (see box on page 70) provides the foundation for
long-term development approaches. Violent conflicts frequently necessitate
broad-based, well-coordinated international engagement, also in the form
of multilateral peace missions, and the more long-term establishment of
inclusive political institutions. It is never too early to start supporting the
societal transformation processes which can help consolidate an initially
fragile peace while promoting a country’s sustainable development.
 Goals, approaches and instruments of peacebuilding 69

STABILISATION
The stabilisation of countries and regions is one of the Federal Government’s approaches
to handling violent conflicts. With its stabilisation measures, the Federal Government sup­
ports political processes of conflict resolution, while providing an incentive for parties to cease
engagement in armed conflict. This is an important contribution towards containing violence
in conflicts and reducing displacement while providing an impetus for initial reconciliation
efforts. Stabilisation measures may also serve to consolidate legitimate political authorities by
supporting them in their efforts to offer the population a more persuasive and inclusive vision
which is more attractive than competing models of exercising political power.

Stabilisation measures specifically serve to create a secure environment, to improve living

conditions in the short term, and to offer alternatives to economies of war and violence.
This requires a comprehensive approach: depending on the requirements in the individ­
ual case, this approach requires the flexible and coordinated use of diplomatic, develop­
ment-policy and security-policy measures. Certain circumstances may also require the
use of military measures in order to contain violence and to restore a secure environment
which is the basic prerequisite for political processes.

The Federal Government is making sure that its stabilisation measures are compatible
with the more long-term support of structural and social processes of change aimed at
creating sustainable prospects for people’s lives and future in states and regions affected
by crisis and conflict.

ŸŸPost-conflict situations: Armed hostilities have ceased, ceasefire agreements

have been concluded, and a more long term reconstruction and reconcilia­
tion process has been initiated. The transitions between acute conflict and
post-conflict phase are usually fluid. The idea of peacebuilding measures is
to prevent a crisis from flaring up again while contributing to permanent
and sustainable peace. They resemble the approaches of crisis prevention in
many ways; while addressing the causes and drivers of conflicts, they fre­
quently also have to deal with the affected societies’ prolonged experience of
violence and the realities of post-conflict situations. Many times, a coun­
try’s infrastructure is largely destroyed, state institutions are substantially
weakened, and former conflict parties are faced with the task of initiating
political reforms and implementing peace treaties under the auspices of
unity governments. At the same time, large sections of the population have
become victims of violence and displacement, confidence in the state’s pro­
70 Goals, approaches and instruments of peacebuilding

tective and regulatory functions is eroded, and society has become deeply
fragmented. On the one hand, there may be greater willingness to compro­
mise regarding structural reforms shortly after the end of a violent conflict.
On the other hand, peaceful transformation of societies in post-war situations
is time-consuming, complex and fraught with setbacks or new escalations
of violence. That is why long-term strategic approaches are needed, as are
trusting partnerships and the concerted efforts of the various governmental
and social actors.

Resilience is the ability of people and institutions – whether individuals, households, local
communities or states – to cope with acute shocks or chronic stress caused by volatile situ­
ations, crises, violent conflicts and extreme natural events, and to adapt and recover quickly
without compromising their medium and long-term outlook on life.

However, the course of conflicts is rarely schematic. Every crisis has a specific
dynamic like no other. The phases of conflict are not necessarily linear, but
often overlap: while civil war is still being waged in one region, other regions
of that same country may already have agreed on local ceasefires, and the reha­
bilitation of destroyed infrastructures and the return of refugees may already
have started. Transitions are fluid, and the risk of a recurrence of the violent
conflict is high. Any involvement in a crisis context needs to address these
complex constellations and must be flexible enough to cope with changes and
manage a variety of different local situations.

TRANSITIONAL DEVELOPMENT ASSISTANCE

Transitional Development Assistance is the Federal Government’s flexible development-poli­
cy tool for resolving crises and building peace. It creates quickly effective and visible structures
(e.g. with regard to food and nutrition security, income, infrastructure) for the people affected
by crises and lays the foundations for long-term development approaches and sustainable
crisis resolution strategies. In addition to stabilising, restoring and protecting people’s liveli­
hoods, the measures of Transitional Development Assistance are aimed at strengthening the
resilience of individuals and society, thereby making an important contribution to preventing
future crises. Guided by the principle of self-reliance, the establishment of local structures in
the countries concerned is a key attribute of Transitional Development Assistance. Local part­
ners are involved in the planning and decision-making processes right from the outset.
Goals, approaches and instruments of peacebuilding 71

However, in addition to the instruments and peacebuilding approaches men­

tioned – depending on the specific context and potentially during all phases
of the conflict –, what is equally essential is the provision of humanitarian
assistance. It is the goal of humanitarian assistance to provide needs-orient­
ed assistance to people in dire need or who are acutely at risk of suffering
hardship due to crises, conflicts or natural disasters. Humanitarian assistance is
strictly about allowing people to survive in dignity and security and to allevi­
ate the suffering of those who are unable to overcome their acute hardship on
their own. Humanitarian assistance can make it possible for people to remain
in their home region and may contribute to their not being forced to embark
on a hazardous flight across long distances. Proactive humanitarian assistance
also includes humanitarian disaster preparedness.

Humanitarian assistance is an expression of moral responsibility and interna­

tional solidarity, without pursuing any political, economic or other interest-­
driven goals. It is committed to the established international principles and
fundamental tenets of humanity, neutrality, impartiality and independence. The
unconditional respect of these principles and tenets is prerequisite for the work
of humanitarian actors in the field, in a frequently difficult political environment
with poor security. At the World Humanitarian Summit in 2016, the international
community affirmed its commitment to future reforms of the humanitarian as­
sistance system so as to prevent the emergence and aggravation of humanitarian
crises, in conjunction with intensified development efforts and appropriate coor­
dination, with a view to reducing the dependence on humanitarian assistance.
72 Goals, approaches and instruments of peacebuilding

GERMANY’S INVOLVEMENT IN PRACTICE: UKRAINE

The Federal Government of Germany and its partners within the European
Union responded to Russia’s illegal annexation of Crimea in March 2014 and
the destabilisation of Eastern Ukraine by pro-Russian and Russian-supported
separatists with a two-pronged strategy combining openness to dialogue with
pressure. For example, wide-ranging sanctions were gradually imposed on
Russia, which continue to this day. Within the scope of the Normandy format,
Germany in partnership with France, the Ukraine and Russia is pulling out all
the stops to bring about a political resolution of the Ukraine conflict. Follow­
ing intense diplomatic efforts at the highest political level, a ceasefire was
agreed on 12 February 2015, at a summit in Minsk, albeit without achieving a
sustained and complete cessation of hostilities to this day. Lifting of the sanc­
tions against Russia is subject to the implementation of these agreements. A
roadmap to end the conflict was likewise agreed: the “Package of Measures for
the Implementation of the Minsk Agreements”.

The Organisation for Security and Co-operation in Europe (OSCE) is playing a

key role in the implementation of the Minsk agreements. The OSCE is chairing
what is called the Trilateral Contact Group in Minsk which brings Russia, the
Ukraine, and the separatists to the negotiating table. The Contact Group had
agreed on an immediate ceasefire back in September 2014, which, however
Goals, approaches and instruments of peacebuilding 73

remained shaky. It is actually the OSCE which is the most important instru­
ment for monitoring the agreed ceasefire and the withdrawal of the heavy arms
from the line of contact. Its mandate was decided by the 57 OSCE participating
states and comprises all of Ukraine. Nevertheless, Russia is denying access to
Crimea. The roughly 700 observers are stationed predominantly in Eastern
Ukraine and are expected, by their presence, to reduce tensions and help build
peace, stability, and security. Germany is providing both political and operative
support to the mission by making available staff, equipment, and training.

The Ukraine conflict has turned 1.7 million people into internally displaced
persons. In Eastern Ukraine, the Federal Government is therefore supporting
the host communities in the provision of basic services while actively provid­
ing humanitarian assistance and capacity-building transitional development
assistance to a significant extent.

In addition, the Federal Government is supporting the Ukraine bilaterally in the

implementation of political reforms to advance the long-term establishment of
a legitimate and efficient national order. For example, the Federal Government
is promoting improving public finances as well as the decentralisation and
modernisation of public administration. It is empowering the forces of reform
in government and civil society in their fight against corruption through
development activities with a focus on governance. Progress in this area
includes the acceptance of the constitutional amendments necessary for judi­
cial reform, the decreasing susceptibility to corruption of newly hired police
officers, and the introduction of a transparent, internet-based tendering and
procurement platform. In addition, the Federal Government has earmarked
some EUR 3.2 million for promoting bilateral projects to strengthen civil soci­
ety. As Germany’s special financial contribution, the Federal Government has
provided the Ukraine with a guarantee facility to the tune of EUR 500 million,
notably as support for the reconstruction of Eastern Ukraine.
74 Goals, approaches and instruments of peacebuilding
Goals, approaches and instruments of peacebuilding 75

3.2. Fields of action, approaches

and ­instruments
Peaceful, just and stable societies call for political orders which are accepted
by the vast majority of the population, which allow all sectors of society to
be heard and have a say, and which guarantee the peaceful coexistence of
different ethnic groups and religions. In such societies, human security is
guaranteed along with equal access to a legal system which ensures a fair
balance of interests while protecting the rights of the population and guar­
anteeing legal certainty. Within a transparent legal framework, these kinds of
political orders enable and encourage economic activity while protecting vital
natural resources and preserving the mutual cohesion of social groups through
appropriate forms of participation and mechanisms of social compensation.
Effective, accountable and solidly financed governmental bureaucracies ensure
the supply of basic services which benefit the entire population.

In accordance with international principles of conflict resolution and peace-

building (Peace- and Statebuilding Goals, see Chapter 1), German engagement
to promote peace in partner countries therefore addresses five complementary
fields of action:

ŸŸ legitimate politics;
ŸŸ security;
ŸŸ rule of law;
ŸŸ economy and vital natural resources;
ŸŸ government revenue and public services.

The Federal Government of Germany ensures that its instruments are tailored
specifically to the conflict context in each case: a latent conflict requires dif­
ferent instruments from those required in a situation of unleashed violence;
measures otherwise capable of making an important contribution to consol­
idating peace may actually have the effect of exacerbating conflict in an esca­
lated crisis. That is why the approaches and instruments of crisis involvement
must be constantly adapted to the changing situation and re-evaluated.
76 Goals, approaches and instruments of peacebuilding

The approaches and instruments of peacebuilding pursued in these fields of

action normally require political back-up to become fully effective. Particular
importance is attached to political involvement in the case of a violent escala­
tion. After all, as a general rule, violent conflicts can only be solved by political
means. Diplomatic negotiations serve to flesh out mutually acceptable and
hence workable solutions, to codify them in contracts and agreements, and to
accompany their implementation. High-level mediation efforts can provide
incentives for peaceful conflict resolution and raise the cost of violent conflict
settling for the decision makers of the involved parties. Thanks to its inter­
national standing and its political and economic clout, Germany – in close
coordination with its partners and notably in cooperation with the European
Union – can in many cases play a constructive and mutually accepted role.
 Goals, approaches and instruments of peacebuilding 77

PEACE MEDIATION AND NEGOTIATION SUPPORT

The term peace mediation describes the mediation process between conflict parties in for­
mal and informal negotiation processes. Mediation serves to prevent and manage domestic
and international conflicts and is therefore at the heart of preventive policy. Mediation
can be the first step towards establishing contact between the conflict parties, and can help
every step of the way, from support of ceasefire negotiations all the way to the implemen­
tation of an agreement and the associated political reform processes. Mediation efforts are
generally found to have greatly improved chances of success if women are equally involved,
and if their concerns and interests are equally reflected in the mediation efforts.

It is the Federal Government’s firm belief that mediation can help to bridge the often deep
political and social rifts between conflict parties, and to develop a basis of mutual trust. It
supports in particular the training of mediators (e.g. from regional organisations, minis­
tries and civil society) and the local institutionalisation of mediation processes (e.g. in land
rights issues). The Federal Government also supports the negotiating delegations of conflict
parties, e.g. by providing “protected and confidential spaces” outside of the regular nego­
tiation context, or by providing resources and institutional structures, but also by offering
basic and further training programmes to strengthen the delegations’ negotiating skills. In
these endeavours, the Federal Government works in close collaboration with partner states
experienced in mediation and with international organisations such as the United Nations,
OSCE or AU, as well as with non-governmental organisations.

The Federal Government is firmly committed to further expanding its media-

tion capabilities and to intensifying its involvement in mediation processes in
the future. This comprises the financial and conceptual support of mediation
processes, as well as the long-term development of the UN’s and other partners’
mediation capacities, and may even involve direct participation in mediation
processes. In this regard, the Federal Government’s particular focus is on inclu-
sive dialogue processes and the equal participation of women – on the negotiat-
ing end as much as on the mediating end.

3.2.1. Legitimate politics

This field of action is concerned with strengthening the legitimacy of the polit­
ical system in the partner country while establishing mechanisms of non-vi­
olent conflict resolution. The aim of Germany’s engagement is focused on the
following important elements of good governance:
78 Goals, approaches and instruments of peacebuilding

ŸŸ to build functioning, inclusive citizen-oriented government institutions and

to develop inclusive and participative political processes at the national,
regional, and local level;

ŸŸ to strengthen civil society capacities, e.g. by developing or fostering the involve­

ment of civil society and by promoting constructive relations between the state
and the population aimed at participation, transparency and accountability;

ŸŸ to initiate political reform processes for conflict resolution, to enable peace­

ful negotiating of clashing interests while preventing the violent settlement
of conflicts.

TRANSFORMATION PARTNERSHIPS
In response to the social upheavals which started in Tunisia in late 2010 and which swept
across most of the Arabic region, Germany offered the countries of this region support in
the implementation of political, economic and social reforms. Within the scope of what are
known as transformation partnerships, valuable incentives were given to drive democracy,
promotion of the rule of law, economy, education, gender equality and media in Tunisia, for
example, where our support was most effective. Most recently, Iraq and Lebanon were also
included in the partner community, as these countries offer many promising entry points.
Collaboration with Egypt remains equally important, in spite of the shrinking spaces for
civil society actors. It will be necessary for the instrument of transformation partnerships
to adapt to the changed circumstances in the countries of North Africa and the Middle East
(MENA) and to embark on a new course of action.

To achieve these goals, the Federal Government of Germany has at its disposal
a range of approaches and instruments, including the following:

ŸŸIn National Dialogues, societies, including marginalised populations,

renegotiate the basics of their coexistence during a post-conflict phase.
The purpose of these National Dialogues is to help develop, consolidate or
restore the basic consensus necessary for a functioning political system.
Constitutional processes can play a vital role by codifying the newly defined
basic consensus and by establishing processes for day-to-day government
business. The Federal Government supports the processes e.g. by providing
advice and financial resources.
Goals, approaches and instruments of peacebuilding 79

ŸŸ Strengthening capacities for non-violent conflict resolution: governments

and societies in violence-affected countries with frequently fragile state
structures often lack the ability to manage conflicts and social problems
without resorting to violence and to defuse tensions should the situation
escalate. That is why the Federal Government makes a point of promoting
locally recognised mechanisms and building capacities for non-violent
conflict resolution (e.g. dialogue, mediation, negotiation, out-of-court settle­
ment of disputes, and access to justice). In addition, it is fostering a culture of
non-violent conflict management through the support of peace journalism
and peace education.

ŸŸ Local peace infrastructures (like peace committees, peacebuilding ministries

or reconciliation commissions) can – notably in post-war societies – provide
a sustainable base for incipient reconciliation processes and advance peace­
ful (political) conflict management processes. The Federal Government is
80 Goals, approaches and instruments of peacebuilding

bolstering these institutions, e.g. by assisting with advice and equipment. In

addition, civic capacities for peace are strengthened, e.g. by supporting local
reconciliation initiatives and dialogue processes.

““
Local civil society actors normally have a unique expertise
in and a more in-depth knowledge of the causes of conflict
than external actors. In peace processes, they are key to
ensuring that the population’s interests and needs will be
represented and communicated.” A participant in the Workshop on
Local C
­ ivil Society held on 5 October 2016

ŸŸ Identifying the Agents of Change in civil society and enhancing their con­
tribution to constructive conflict resolution is a vital concern to the Federal
Government. The Federal Government furthermore supports political
foundations in Germany and their contribution to strengthening democracy
and civil society in partner countries.

ŸŸ In an effort to foster constructive cooperation between the state and the

people, the Federal Government, apart from promoting an active civil
society, also supports the institutionalisation of participation processes and
strengthens the capacity of government authorities to engage with civil
society involvement and integrate it in its policy. A consolidated legal and
institutional framework is a prerequisite for a civil society’s scope for action.
At the same time, governmental agencies must be in a position to respond to
active participation. Failure to engage with civil society will increase frustra­
tion while compromising the legitimacy of the state.

ŸŸ Strengthening sub-national governmental and administrative structures is

frequently an integral element of agreements to end crises and civil war.
This can be an excellent way to give previously marginalised populations a
say in the government and to improve the rendering of effective public ser­
vices. This can help, especially at the local level, to bolster confidence in state
structures and to peacefully resolve socio-political conflicts. In this case,
Germany’s involvement is fortunate to be drawing on the special expertise
gained from the Federal Republic’s federalist structure.
Goals, approaches and instruments of peacebuilding 81

ŸŸ Free media are making an important contribution to promoting a culture

of peace. They simultaneously serve as a bulwark against “fake news” and
propaganda. The objective is to enable a frank and constructive culture of
free debate in the partner countries, e.g. by promoting unimpeded access to
information. To that end, the Federal Government supports professional, ob­
jective and conflict-sensitive reporting through free and independent jour­
nalism. Even online activists and political bloggers are taken into account.

ŸŸElections are normally considered an important milestone in a p­ olitical

process or peace process, but many times after a violent conflict, the
­population is sorely lacking the technical know-how, the materials, and
the political awareness to conduct elections. Here is where the F
­ ederal
­Government’s electoral assistance comes into play, in many cases in cooper­
ation with international partners like the EU, OSCE or the UN. The objec­
tive is to enable elections commensurate with international standards, e.g.
through election observation and the promotion of political ­participation.
In addition, the Federal Government trains national and regional and
­election observers in partner countries and the regional organisations.
­Beyond the election process, the Federal Government’s measures are also
aimed at raising awareness for democratic structures and processes.
82 Goals, approaches and instruments of peacebuilding

ŸŸ To strengthen parliaments in emerging democracies, the Federal Govern­

ment, as part of its parliamentary cooperation with the German Bundestag,
foundations and non-governmental organisations, supports the consultancy
and equipment of parliaments. The aim is to help the legislative body to
exercise its democratic duties more efficiently and transparently, and in a
way that is more in touch with its citizens.

SANCTIONS
Sanctions are a multi-faceted tool of foreign policy. The purpose of sanctions imposed on
individuals (e.g. travel bans, the freezing of foreign accounts, etc.), business enterprises or
entire sectors of the economy is to get political actors to change their behaviour and to
increase the willingness of conflict parties to negotiate; embargo measures additionally
aim at containing the import of arms and other sensitive goods to war and crisis zones
and curtailing nuclear proliferation. The point of sanctions is to raise the price (even in the
literal economic and financial sense) that is particularly to be paid for conduct contravening
international law while getting the political actors to reconsider their plans. Interestingly,
even the mere threat of new or extended sanctions can have a sufficiently deterrent effect.

Sanctions are all the more effective, the more thoroughly they are implemented by all
relevant states. Any sanctions imposed by the United Nations Security Council are legally
binding on all states under international law. Within the European Union, the sanctions are
regularly implemented by the legislative acts of the EU, which are binding on all member
states. However, the UN Security Council does not have a monopoly on sanctions: in fact,
the EU is additionally entitled to impose sanctions independently or to expand existing
UN measures. It should be noted, however, that observance of the rule-of-law principles is
mandatory.

The effects of economic sanctions usually only unfold in the medium to long term. They
are therefore only of limited value for the short-term resolution of crises or acute emergen­
cies. Besides, in the past they were associated with undesirable consequences such as the
deterioration of the affected population’s supply situation. That is why today’s sanctions are
in most cases imposed in the form of smart/targeted sanctions against individual decision
makers, organisations and business enterprises. To create the right incentives, it is important
to impose sanctions which are just as easily lifted. It is imperative to protect the rights of
those affected by the sanctions. Within the EU, this is ensured by judicial checks. The Federal
Government also advocates strengthening and expanding the system of ombudspersons in
UN sanctions regimes, which has so far only been established in isolated cases.
 Goals, approaches and instruments of peacebuilding 83

The Federal Government of Germany is set on further expanding its involvement

in democracy building and the support of peace infrastructures at various differ-
ent levels. In this regard, it pays particular attention to the equal participation
of women. It will also forge even closer links between the issues of governance,
fragility and conflict, and systematically support the capabilities of govern-
ments to implement the 2030 Agenda for Sustainable Development. Both in the
United Nations and the European Union, the Federal Government will continue
to make sure that sanctions are effectively implemented and stay in line with
the requirements of proportionality and rule of law.

3.2.2. Security

““
To support the ‘security sector’ in crisis regions, it is neces-
sary to examine [every] single planned measure for the extent
to which it will increase the security of the population in a
partner country, support good governance and contribute
to peacebuilding.”­ Martina Fischer, Brot für die Welt

Human security defines a broader understanding of security, based on the guaranteed right
of individuals to a life in freedom and dignity, free from poverty, fear, hardship and despair.
Human security emphasises the connection between peace, development, and human
rights. This concept in no way undermines the governments’ primary responsibility for the
security and welfare of their citizens.

This field of action is concerned with building a secure environment in the

partner country. The goals of Germany’s involvement are:

ŸŸto implement the principle of human security. In contrast to traditional

concepts, this principle focuses not on protecting the state, but on protect­
ing the individual and his or her human dignity.

ŸŸto create and establish a legitimate governmental monopoly on the use

of force for the protection of the population. Especially in post-conflict
situations, this also requires the integration, or at least the containment,
of non-governmental armed groups;
84 Goals, approaches and instruments of peacebuilding

ŸŸ to develop a politically legitimised and accountable security sector which

meets professional standards (armed forces, police, judiciary, intelligence
services, civil protection and disaster response) and which enjoys public
trust. It is the Federal Government’s firm conviction that a functioning
security sector bound by human-rights and rule-of-law principles will
be instrumental in protecting the population and establishing peace and
security;

To achieve these goals, the Federal Government has at its disposal a range of
approaches and instruments, including the following:

ŸŸ establishing a secure environment as key enabler for the subsequent steps

of conflict resolution and peacebuilding. It is also the foreign deployments
of the German Armed Forces (Bundeswehr), on the basis of the Charter of
the United Nations and in partnership with partners and allies (see box on
page 89), which help to restore and consolidate security and stability and to
strengthen legitimate security structures. This is an important prerequisite
for sustainable development.

ŸŸ Developing, strengthening and reforming the security sector (SSR) is often

a key element of peace negotiations and national reconciliation processes.
The object of the security sector reform (SSR) is to improve the security of
the population, with adequate participation of women and men. It is to be
achieved by (re)building effective and responsible security forces embedded
in functioning and legitimate political structures accepted by the popula­
tion. In post-war societies, the disarmament, demobilisation, and reintegra-
tion of former combatants is an important element. The key to success is
that SSR measures apply to all levels of hierarchy as part of a comprehensive
approach from the political executive to the security authorities and all the
way to the local offices in charge of security tasks. This also requires the es­
tablishment of a civic and public supervision of the security sector. It should
also be considered that security forces in (post) conflict situations were often
conflict actors themselves or are perceived as such. In order to gain the trust
of all population groups, it is paramount to conduct internal reforms and
establish processes of dealing with the past.
Goals, approaches and instruments of peacebuilding 85
86 Goals, approaches and instruments of peacebuilding

DISARMAMENT, ARMS CONTROL AND NON-PROLIFERATION

Disarmament, arms control and non-proliferation make a tangible contribution to the
prevention of conflicts and hence to world peace and security. Germany, together with
its partners notably in the EU and NATO, advocates the strengthening and advancement
of existing international contracts, instruments and initiatives for disarmament, arms
control and non-proliferation. This includes cyberspace and information space as well as
outer space.

Germany is particularly committed to taking a new approach to conventional arms con­

trol, and to the fundamental modernisation of the relevant international contracts and
regimes. Practical arms control measures, notably those for the safe storage and adminis­
tration of small arms under the control of the state security forces, in combination with
the context-sensitive regulation of small arms and a police force well trained in combat­
ing arms smuggling, will help reduce the availability of such arms for political conflicts
and organised crime.

Furthermore, the Federal Government embraces the goal of a world free of nuclear weapons
and is supporting efforts leading to the reduction of nuclear weapons. As explained in detail
e.g. in the White Paper’s chapter on collective defence, nuclear deterrence will continue
to be a necessity for as long as nuclear weapons are likely to be used in military conflicts.
Germany is making a commitment within the Global Partnership Against the Spread of
Weapons and Material of Mass Destruction initiative launched in 2002 to reducing the risks
of proliferation. The management of chemical, biological and nuclear/radiological risks
will directly satisfy the objective of crisis prevention. Germany is providing support for the
civilian preventative, safeguarding and protective measures. With the Partnership Program
for Excellence in Biological and Health Security Germany launched in 2013, Germany is for
example supporting its partner countries in improving the control of biological risks and
preventing the abuse of hazardous pathogens and toxins. This is a positive side effect of
strengthening the healthcare systems in the partner countries.

Germany is likewise committed to the disarmament of chemical weapons. For example,

residuals from the Syrian chemical warfare programme were destroyed in Germany in
2014–2015. At the same time, Germany is supporting the reconnaissance missions by the
Organisation for the Prohibition of Chemical Weapons (OPCW), e.g. regarding the persisting
discrepancies in the disclosure of the Syrian chemical warfare programme. The goal is to
make the world free from chemical weapons.
 Goals, approaches and instruments of peacebuilding 87

EXPORT CONTROL OF CONVENTIONAL ARMS AND DUAL-USE GOODS

The Federal Government of Germany is pursuing a restrictive arms export policy. This policy
is in line with the Policy Principles of the Federal Government for the Export of War Weap­
ons and other Military Equipment of 19 January 2000, the legally binding Council Common
Position 2008/944/CFSP adopted on 8 December 2008 and defining common rules governing
the control of exports of military technology and equipment, and the UN Arms Trade Treaty.
The export of small arms is additionally governed by the particularly stringent German
Policy on Small Arms adopted in 2015. A general distinction must be made between weapons
of war, other arms, and dual-use goods, for which different legal bases apply.

Applications for export licences are decided on a case-by-case basis. The respect for human
rights in the receiving country, the maintenance of peace, security and stability in the re­
spective region, and in particular the risk of abuse of the specific armament by the designat­
ed end user play a prominent role in the decision-making process. The Political Principles
lay down clear guidelines: if there are reasonable grounds to suspect that the arms are being
abused for internal repression or other forms of continuous and systematic human rights
violations, no licence will be granted as a general rule. Deliveries with potentially con­
flict-exacerbating effects will not be authorised.
88 Goals, approaches and instruments of peacebuilding

Against the backdrop of the unauthorised transfer of arms, notably of small arms, post-ship­
ment controls and end-use verifications are a key instrument. The pilot introduction of
post-shipment controls allowing verification of the end use of certain German arms exports
at the recipient’s destination is a helpful tool for preventing the illicit transfer of arms.

In its revised version of the EU Dual-Use Regulation, the Federal Government makes a spe­
cial point of attaching increased significance to the protection of human rights.

ŸŸ Enhancing and enabling as well as training and equipment assistance in

matters relating to police, military, civil protection and disaster response:
Within the applicable export control policy framework, this instrument
combines equipment, consulting services and training measures with a view
to increasing the capabilities and professionalism of the security forces. The
rule of law and the protection of human rights, and more generally, the
protection of civilians in violent conflicts are part of the police and military
training syllabi. This instrument therefore contributes to the development,
strengthening and reform of the security sector, to enabling our partners
to better fend for their own stability and hence regional stability, and to
strengthening their resilience.

““
In UN missions, the role of police – albeit receiving scant
­media attention – is central to the protection of the c­ ivilian
­population. In areas such as Darfur, South Sudan, the
­Democratic Republic of Congo (DRC) or Mali, where there is a
continuing latent threat of conflict, it is imperative to ­protect
the civilian population from assaults by armed groups.”
­Annika Hansen, Center for International Peace Operations

ŸŸ By supporting humanitarian mine and ordnance clearance, the Federal Gov­

ernment aims to increase the security of the population in countries and
areas affected by mines and Explosive Remnants of War (ERW), as a precon­
dition to making stabilisation measures possible in the first place. Strength-
ening civil protection and disaster response enables the states concerned to
minimise the consequences of disasters. This helps to build the population’s
confidence in the state’s capacity to act.
 Goals, approaches and instruments of peacebuilding 89

FOREIGN DEPLOYMENTS OF THE GERMAN ARMED FORCES (BUNDESWEHR)

The Bundeswehr participates in numerous missions mandated by the EU, NATO and the UN.

The deployments abroad of the Bundeswehr are conducted in compliance with the stand­
ards of international law and the constitution. That is why any deployment of the Bundes­
wehr in foreign missions where its involvement in armed operations is certain or likely to
happen is in all cases subject to the prior consent of the German Bundestag.

The Bundeswehr’s scope of duties on foreign deployments presently includes, inter alia:

ŸŸ The fight against transnational terrorism;

ŸŸ Contributions to crisis resolution and stabilisation;
ŸŸ Training, consulting and equipment of security forces and institutions;
ŸŸ Early warning;
ŸŸ Monitoring of a ceasefire or peace treaty;
ŸŸ Creation and preservation of a secure environment, including public safety and order;
ŸŸ Protection of the civilian population, observation of the human rights situation,
­protection against genocide, and securing the access of humanitarian assistance;
ŸŸ Measures against the proliferation of weapons of mass destruction;
ŸŸ Involvement against human trafficking networks at sea;
ŸŸ Securing of maritime borders and prevention of arms smuggling at sea;
ŸŸ Protection of maritime transport routes and prevention of piracy.
90 Goals, approaches and instruments of peacebuilding
 Goals, approaches and instruments of peacebuilding 91

INTERNATIONAL POLICE MISSIONS

The police forces of the Federal Government of Germany and the Länder and the Federal
Customs Administration are involved in numerous peace missions mandated by the UN, the
Common Security and Defence Policy (CSDP) of the EU, and the OSCE. In addition, there is
the bilateral German Police Project Team (GPPT) in Afghanistan.

As such, they are contributing to the development of a functioning police force acting in
accordance with rule-of-law principles in fragile states and in crisis regions. The police
forces are mainly deployed as consultants, trainers, or mentors. They regularly contribute to
the comprehensive development and/or restructuring of the host country’s public security
organisations as part of a security sector reform (SSR).

Police missions help to enhance the capabilities of local security authorities, e.g. for com­
bating transnational organised crime and terrorism. The role of the international police
contingents is notably to regain the population’s confidence in the police as the guarantor
of public security. Whether and to what extent the police forces will also perform executive
tasks above and beyond their monitoring and advisory functions, and whether and to what
extent the police officers will be armed during the operations, will be reviewed and decided
by the bodies mandating each mission on a case-by-case basis. Mandated peace missions
and bilateral police projects are increasingly taking place in the countries of origin and
transit countries of irregular migration.

The Federal Government will continue to cultivate its involvement in the

security sector and is planning to appoint a working group for drafting an
interministerial SSR strategy. In terms of implementing UN Security Council
Resolution 1325 and the 2030 Agenda for Sustainable Development (SDG 5),
greater and more active attention will be paid to the special concerns and
interests of women and girls. The Federal Government is also supporting the
United Nations’ reform efforts aimed at making the peacekeeping system and
the special political missions even more effective. The Federal Government
will continue to promote the development of African peace and security
structures. It will also intensify its arms control and disarmament measures,
and will specifically expand on its mine and ordnance clearance programmes
in stabilisation contexts. The Federal Government will work towards enhanced
small arms control. It aims at the enduring and qualified support of interna-
tional missions.
92 Goals, approaches and instruments of peacebuilding

3.2.3. Rule of law

““
Justice and the rule of law can take on many different g­ uises
under different institutional conditions and conditions
pertaining to the legal culture. The promotion of the rule
of law can only ever carry on from there[…]. The question
is this: which of the local institutions will be most helpful
in ­successfully establishing a rule of law which will rule
out ­despotism, guarantee legal certainty, and which can
be expected in the long run to remain compatible with a
global shared understanding of what is right and wrong?”
­Matthias Kötter, Social Science Research Center Berlin
Goals, approaches and instruments of peacebuilding 93

This field of action is concerned with strengthening the role of law, and
notably the independence and integrity of the judiciary, to ensure peaceful
and rules-based social coexistence, and to protect the individual and his or her
human dignity from arbitrary government action. To achieve this, the Federal
Government of Germany is supporting its partner countries in the devel­
opment and expansion of rule-of-law structures and processes. The goals of
Germany’s engagement are:

ŸŸ to reform the legal and judicial sector in a manner commensurate with

human rights standards, to bolster citizens’ confidence in the protection
of their rights and thereby help to legitimise government structures;

ŸŸ to strengthen effective mechanisms of in-court or out-of-court settlement of

disputes which are accessible to the entire population. Accessible complaints
mechanisms and the legal containment of conflicts are crucial prerequisites
for peaceful and inclusive social and economic development;

ŸŸ to specifically promote human rights and the equal participation of all groups
in society, considering that discrimination and unfairness are no basis for a
flourishing peaceful coexistence. Human rights violations can be a cause of
crises and conflicts, which is why the protection of human rights always has
a preventative dimension;

ŸŸ the protection of individuals and groups who are defending human rights
(human rights defenders);

ŸŸ the protection of children and adolescents from violence, exploitation,

abuse, and recruitment by actors of violence;

ŸŸ the prevention of impunity of international-law crimes, and comprehen­

sive measures for protecting and legally supporting the victims of violence,
­notably the victims of sexual violence;

ŸŸ the establishment and strengthening of transitional justice mechanisms

in post-war societies.
94 Goals, approaches and instruments of peacebuilding

INTERNATIONAL CRIMINAL COURT (ICC)

The ICC is the first tribunal not established ad hoc with a view to a specific conflict of the
past, but equipped with potential general jurisdiction for the future. Its constituting treaty,
the Rome Statute, was adopted in 1998 by a diplomatic conference and entered into force
in 2002. The ICC has competence for three core crimes: genocide, crimes against humanity,
and crimes of war. Although the determining element for a fourth crime, the crime of ag­
gression, has been defined, the necessary preconditions for its entry into force have not yet
been created. Amongst the 18 ICC judges one is German.

Germany has been vigorously supporting the drafting of this statute and development of
the ICC from the beginning, and is currently the second largest contributor to the ICC. Ger­
many is advocating the broad regional recognition and strengthening of the ICC.

To achieve these goals, the Federal Government has at its disposal a range of
approaches and instruments, including the following:

ŸŸ Promotion of the rule of law strengthens the judicial institutions and proce­
dures, thereby contributing to the protection from arbitrary decisions and
actions and the respect for human rights. It wants to give all people access
to justice, ensure the transparency of procedures, and strengthen citizens’
options for appealing administrative decisions. Increasing and ensuring
legal protection, legal certainty and the predictability of government actions
will help to strengthen citizens’ trust in the state and its structures. The
Federal Government makes a special point of involving non-governmental
partners and actors and takes into account local legal concepts when plan­
ning its measures. The Federal Government also strives to foster regulatory
dialogues, e.g. on human rights issues, with a view to achieving their step-
by-step integration in the state’s legal and judicial system.

ŸŸ Measures to train judges and public prosecutors, members of the judicial

system, and attorneys, and generally the establishment of courts of law and
professional bodies (judges’ associations and bar associations).
 Goals, approaches and instruments of peacebuilding 95

““
Germany’s unique experience in dealing with its own
past, both after 1945 and after 1989, in combination
with its non-aggressive foreign policy, give the country
a high level of credibility and legitimacy for engaging
in transitional justice and reconciliation.” Participant of the
­Transitional ­J ustice ­Workshop of 27 September 2016

TRANSITIONAL JUSTICE AND RECONCILIATION

In post-war situations, processes of dealing with experiences of violence, as well as reconcil­
iation processes deserve particular attention. Measures supporting the investigation, recog­
nition and prosecution of past injustices are paramount for a sustainable peace process. It is
these measures which help to restore confidence in the state’s protective functions and pave
the way for peaceful social coexistence. In light of its own historical experience, Germany
is in a special position to make valuable contributions. In times of immediate political
transition, measures of transitional justice and reconciliation aim at consolidating emerging
democratic and rule-of-law institutions and granting the victims of violence and human
rights violations a modicum of justice. In the long term, they serve to prevent new human
rights violations, to develop cultures of remembrance that are constructive and foster peace,
and to reconcile even deeply divided societies (transformative justice).

Transitional justice is nowadays a central element of international peace policy. This is clearly
illustrated by numerous ad-hoc tribunals, the establishment of the International Criminal
Court (ICC), truth and reconciliation commissions, compensation programmes, the strength­
ening of victims’ rights, and the appointment of a United Nations Special Rapporteur on the
promotion of truth, justice, reparation and guarantees of non-recurrence.

Promotion of human rights is at the centre of our value-based actions and

therefore a task which is mainstreamed through all fields of action. The Federal
Government has committed itself to the protection of human rights. This is
particularly well illustrated by its promotion and protection of civil society
actors who defend human rights, above all human rights activists. This also
includes the promotion of equality between men and women. Also taken into
account are the interests of young people and children, of people with disa­
bilities, of indigenous and other disadvantaged ethnic groups, as well as other
96 Goals, approaches and instruments of peacebuilding

groups of persons who are being discriminated against. In the multilateral

arena, the Federal Government is supporting the UN High Commissioner for
Human Rights in the performance of his duties.

The Federal Government will enhance its focus on the promotion and systemat-
ic demand for rule of law, especially with an eye to the 2030 Agenda for Sustain-
able Development (SDG 16). It has therefore decided to launch a working group
for drafting an interministerial strategy for promoting the rule of law. In addi-
tion to that, it will continue its involvement for the protection and promotion
of human rights and develop an interministerial strategy for transitional justice
in a separate working group. It will seek to further expand German involvement
in the rule-of-law components of international missions, notably missions of
the EU and UN. The Federal Government will continue its efforts for a broader
recognition and strengthening of international criminal jurisdiction, specifically
of the International Criminal Court (ICC). In its promotion of the rule of law,
it will also take due account of the goals of Resolution 1325 and its follow-up
resolutions on women, peace and security.

3.2.4. Economy, social cohesion and vital natural resources

A dignified life for all members of society is a fundamental requirement for
peaceful development. The unequal distribution of resources and unequal
access to basic services (such as education, water, food, healthcare, energy)
harbours great potential for conflict. The goals of Germany’s involvement are:

ŸŸ to understand the human right to water and sanitation and the human right
to adequate food as the direct expression of human dignity and to promote
the implementation thereof at all cost; where water resources are used
across borders, the promotion of cooperative resource management is para­
mount for regional security;

ŸŸ to reduce social inequality, with particular attention paid to marginalised

sections of the population and youth;
Goals, approaches and instruments of peacebuilding 97

““
Poor quality education translates into economic and social
marginalisation, and hence, frustration. These youth can
be more easily lured into joining gangs, organised crime or
armed groups that provide them with an occupation, a belief
system and a new family.” Katja Anger, OECD

ŸŸ to provide the population with reliable basic social services, specifically in

terms of education, healthcare, water supply, and sanitation;

ŸŸ to create job opportunities and opportunities for economic activity, so as to

give people prospects for the future;

ŸŸ to push the implementation of internationally recognised labour, social and

environmental standards in business enterprises;

ŸŸ to work towards the fair distribution of the revenue from resource extraction
(e.g. crude oil or diamonds). It is the Federal Government’s firm belief that
the fair and inclusive distribution of income generated in the extractive
industries will reduce the potential for conflict in societies while diverting
away resources from the profiteers of the war economy in acute crisis situa­
tions, thereby counteracting conflict prolongation;
98 Goals, approaches and instruments of peacebuilding

GERMANY’S ENGAGEMENT IN PRACTICE: IRAQ

Conflicts are seldom linear and call for different forms of engagement. This
fact is reflected by the numerous overlapping lines of conflict in Iraq: violent
conflicts between Sunnis and Shiites, both among these groups and direct­
ed against minorities, an unresolved conflict over resources and territorial
claims between the central government in Baghdad and the federal region of
Kurdistan-Iraq in the north of the country, the dealing with Saddam Hussein’s
regime of injustice, and even the consequences of international interventions
and the exertion of influence by regional powers.

In the first half of 2017, the so-called Islamic State (IS) terrorist group is
still running its cruel reign of terror in parts of Iraq. With the support of an
international coalition, central Iraqi and Kurdish troops are at the forefront of
the battle against IS fighters in an effort to liberate these areas from terror­
ist militia rule. In light of these military operations, the point is to alleviate
human suffering and to meet the civilian population’s most basic needs; that is
why humanitarian assistance is of paramount importance. By providing arms
and military equipment to the Iraqi-Kurdish fighters and on-the-job training
for Iraqi and the Kurdistan-Iraq region’s security forces, Germany has made an
important contribution to empowering them in their fight against the IS.

Stabilisation measures can be implemented in the areas liberated from the IS,
and rehabilitation initiated by means of transitional development assistance:
in cities like Tikrit or Ramadi, assistance from the Federal Government helped
to restore the power and water supply, and to rehabilitate schools and health­
care centres, and made it possible for internally displaced persons to return;
grants for local tradespersons or busines-owners – e.g. bakers or greengrocers –
Goals, approaches and instruments of peacebuilding 99

help to secure the provision of food to the population. Germany as co-chair

of the Stabilisation Working Group within the International Anti-IS Coalition
is making an important contribution to coordinating these measures. What
is more, the transitional development assistance measures provided to the
Kurdistan region continue to contribute substantially to upgrading infrastruc­
ture and strengthening governmental capacities in the areas of education,
healthcare and water supply, so as to support both the host communities and
the affected population.

With its humanitarian assistance measures, the Federal Government is guaran­

teeing sorely needed humanitarian assistance to refugees from Syria, internally
displaced persons and host communities alike and is providing the short-term
basic infrastructure needed for that purpose. Moreover, the Federal Govern­
ment’s measures help create employment opportunities and lay the founda­
tions for medium to long-term reconstruction.

To restore mutual trust between the various sections of the population, the
Federal Government is supporting long-term measures for dealing with
human rights violations, for reconciliation, conflict-sensitive media coverage,
psychosocial support and transitional justice, as the basis for reconstruction
and peacebuilding. The award of scholarships to young people – preferably in
the region in the form of “sur-place” scholarships – also helps open up educa­
tional opportunities.

As the IS gets pushed back more and more, it is necessary to drive long-term
reconstruction and pave the way for domestic reconciliation, good govern­
ance, and sustainable economic development. In this context, the Federal
Government is supporting long-term development-policy measures for de­
centralisation and private sector development. Another focus of these efforts
is on improving the framework conditions for the development of the private
sector. Although its oil wealth makes Iraq a potentially prosperous country, it
is nevertheless facing major challenges as a result of the drop in oil prices and
the faltering political and economic reforms. In February 2016, the German
Chancellor appointed an adviser for sounding out, in partnership with the Ira­
qi Government, the potential for German support for economic and budgetary
reforms. In addition to this, the Iraqi Government has been provided with a
credit line to the tune of EUR 500 million.
100 Goals, approaches and instruments of peacebuilding

ŸŸ to contribute to the drafting of a fair trade policy framework to promote

growth and prosperity;

ŸŸ to support the reconstruction of destroyed physical and social infrastructures

so as to improve living conditions and prospects for the future, thereby cre­
ating incentives for the peaceful settlement of conflicts and the foundations
for sustainable development;

ŸŸ to reduce vulnerability to the negative impacts of climate change through

comprehensive climate risk management.

To achieve these goals, the Federal Government of Germany has at its disposal
a range of approaches and instruments, including the following:

ŸŸBasic social protection programmes can help, especially in cases of cli­

mate-induced crises (droughts, floods), to prevent people from falling into
even deeper poverty and from resorting to strategies (such as the sale of
production assets, cutting down on children’s schooling, etc.) which will be
harmful in the long run;

ŸŸ Agricultural and food and nutrition security projects, such as agricultural

training courses and professional training programmes, are an additional
important element of peacekeeping. Rural development is an important
anchor of stability for the lives of the local people;

ŸŸ Promoting employment and private sector development as a means of crisis

prevention can help reduce socio-economic inequalities and prevent the so­
cial marginalisation of certain strata of the population. Major effort is there­
fore put into the creation of job and income opportunities by a productive
private sector. To achieve this, the Federal Government’s support focuses in
particular on fair access to decent work, and on income generation oppor­
tunities for all sections of the population who are of employable age. In the
area of conflict resolution, Germany supports, inter alia, fast-working meas­
ures for promoting employment. Cash for work programmes, for example,
are an excellent tool for making rapid and noticeable improvements to the
living conditions of conflict-affected populations. The Federal Government
Goals, approaches and instruments of peacebuilding 101

can also support the private sector to take an active role in peace talks. For
peacebuilding to be effective, economic reforms are often a necessity to
open up prospects for people’s future in a peace economy.

““
[It is a matter of] developing economic structures and
transforming war economies into peace economies, so as to
give people a way to earn a living again as quickly as ­possible,
thereby reducing the immediate threat of war. Business
enterprises additionally have the power to use their ­political
influence in a preventive way, to create incentives for the
promotion of democratic and rule-of-law structures, or to
call for minimum labour and human-rights standards.”
­Isabel Ebert, Business & Human Rights Resource Centre, and Maximilian Spohr,
­F riedrich Naumann Foundation for Freedom

ŸŸ Support measures to control the exploitation of natural resources and to

increase the transparency of the income generated, with a special view to
counteracting the emergence of war economies.

ŸŸ Supporting land law reforms helps to resolve land law issues which fre­
quently lead to conflicts.

ŸŸ Trade promotion instruments can serve to better integrate fragile and con­
flict-hit states into regional and international trade. Trade-related assistance
for developing countries (Aid for Trade) focuses specifically on the least
developed countries. International trade can make a critical contribution to
economic growth and employment, and thus to the reduction of poverty.
In this way, trade will contribute to reducing the potential for conflict. It is
important that trade agreements are supported in such a way that develop­
ment issues are reflected in the drafting and implementation of these agree­
ments. Other policy areas such as good governance and labour standards as
well as the protection of the environment and health and safety should also
be integrated.

ŸŸ With its climate protection measures, the Federal Government is supporting

developing countries in their implementation of national climate change
goals to reduce greenhouse gas emissions, and in their effort to adapt to
102 Goals, approaches and instruments of peacebuilding

climate changes. The Federal Government’s range of concrete measures

also includes the G7 InsuResilience initiative, the aim of which is that,
by 2020, 400 million more poor and vulnerable people in developing
countries will have insurance cover for climate risks. Thanks to the rapid
and targeted payments, climate risk insurances are particularly helpful in
saving p
­ eople’s lives and livelihoods during disaster situations. The climate
partnership (NDC Partnership) initiated by the Federal Government is
additionally supporting developing countries in the implementation of
their national climate protection contributions, which, in addition to
measures for reducing greenhouse gas emissions, also include measures
for helping these countries to adjust to climate change. In fragile states,
there is a special focus on strengthening their resilience to the already
visible impacts of climate change.
 Goals, approaches and instruments of peacebuilding 103

DISASTER RISK MANAGEMENT

Disaster risk management comprises the planning, implementation, assessment and adjust­
ment of strategies and measures for analysing and reducing disaster risks, and for financially
cushioning residual risks in the most efficient way. The point is to lower the exposure and
vulnerability of individuals, private households, business enterprises, local authorities, and
government budgets and institutions, while at the same time improving their resilience.

There is a whole variety of instruments for successfully managing disaster risks. Risk analy­
ses serve to assess the exposure and vulnerability of the population, the infrastructure, and
the business enterprises of a specific region. Structural and technical precautions (e.g. dams)
as well as regulatory measures (e.g. land use planning) can help to avoid or at least reduce
the negative impacts of extreme natural events such as earthquakes or tornadoes. Measures
for disaster preparedness (e.g. the establishment of early warning and alert systems, fire
protection training, rescue and salvage teams, the improvement of crisis management, the
procurement of special equipment, civil health protection, etc.) make it possible to provide
rapid help to people in emergency situations. In addition, risk transfer instruments (e.g.
insurance schemes) can make a valuable contribution to protecting people against unavoid­
able risks of damage and loss. All of these instruments can be used both pre-emptively and
in the aftermath of a disaster, for preventative reconstruction. The instruments have to be
inclusive and must also be tailored to the needs of particularly vulnerable sections of the
population (e.g. people with disabilities, children, women, marginalised population groups).

The Federal Government is striving to expand its measures for business devel-
opment and employment promotion and for social protection in fragile states
in line with the 2030 Agenda for Sustainable Development. Particular attention
will be given to Africa and the host countries of refugees. Among other things,
the Federal Government will for this purpose:

ŸŸ forge new alliances with the German business sector and with international
partners, e.g. under the multi-stakeholder partnership Global Alliance for
Trade Facilitation;
ŸŸ develop innovative solutions with the private financial and insurance sectors;
ŸŸ establish incentive-based reform partnerships for accelerated sustainable
development;
ŸŸ increase its support for private-sector efforts to develop sustainable supply
chains and production capacities, in alignment with environmental and social
standards;
104 Goals, approaches and instruments of peacebuilding

ŸŸ give particular support to the economic activities of women;

ŸŸ expand employment promotion in crisis countries and in the host countries
of refugees;
ŸŸ step up its support for measures for climate change adaptation and promote
and push climate risk insurance initiatives such as the InsuResilience;
ŸŸ make the funding of conflicts from mining revenues more difficult e.g. through
an active commitment to compulsory EU regulations on the import of natural
resources, as part of international processes like the Kimberley Process Certifi-
cation Scheme for the certification of “conflict-free” diamonds, or transparency
initiatives such as the Extractive Industries Transparency Initiative (EITI);
ŸŸ help the poorest, least developed countries (LDCs) to double their share in
total world exports by 2020 (SDG 17 of the 2030 Agenda); to do this, the Federal
Government will, in particular, step up its contributions to a Multi-Donor Trust
Fund organised as part of the World Trade Organisation (WTO) which supports
the trade policy and trade projects of LDCs (Enhanced Integrated Framework),
and assist the implementation of the EU’s Economic Partnership Agreements
with developing countries with accompanying development-policy measures.

3.2.5. Government revenue and public services

This field of action is concerned with strengthening governmental administra­
tive capacities, generating and appropriately utilising public funds, as well as
government transparency and accountability. This makes the measures a basic
prerequisite for legitimate statehood. The aims of Germany’s engagement in
this area include:

ŸŸ supporting partner countries in the development and expansion of efficient,

responsible and accountable public administrative bodies and in the pro­
vision of effective public services. It is the Federal Government’s firm con­
viction that a politicised or inefficient public administration is an essential
factor of fragile statehood;

ŸŸ supporting partner countries in the development and expansion of a legiti­

mate, transparent and development-oriented public financial system, which
is monitored by independent supervisory bodies (e.g. the Court of Auditors).
The unequal and intransparent generation and utilisation of public revenues
undermines the population’s confidence in the state and its institutions, and
exacerbates fragility;
 Goals, approaches and instruments of peacebuilding 105

ŸŸ fighting corruption, nepotism and clientelism. Corruption hampers develop­

ment, undermines trust in the legality of governance and impedes inclusive
economic growth.

To achieve these goals, the Federal Government has at its disposal a range of
approaches and instruments, including the following:

ŸŸ Administrative reforms are aimed at strengthening governmental capacities,

structures, procedures, and processes. Administrative capacity, i.e. the state’s
capacity to formulate, implement and enforce rules of all kinds, is a central
criterion of functioning statehood. The Federal Government is supporting
these processes, notably by providing advice and technical support. Even
strengthening sub-national governmental and administrative structures can
help improve the provision of effective public services;

ŸŸ In situations of acute violence, the Federal Government also supports the

capabilities of civil society organisations to provide essential services for the
population. This approach may be necessary in cases where the strengthen­
ing of state structures is not an option.

OPEN GOVERNMENT AND DIGITAL TECHNOLOGY

A special aspect of administrative reforms is open government and administrative a­ ction.
It is the Federal Government’s firm belief that the support of open government and ad­
ministrative action, especially of transparency, citizens’ participation, and cooperation,
can contribute immensely to modernisation, accountability and integrity, and hence to
strengthening the trust between the state and its citizens. An important element of open
government is open data, i.e. the disclosure of public sector data. This enhances transpar­
ency in decision-making, which is an effective tool against corruption. Digital technology
offers numerous additional ways for creating or increasing transparency. It is this potential
which needs to be realised. Digital methods can also help to reach people in remote regions.
This allows them both better participation in political life and access to basic state services
such as education or advice on healthcare.
106 Goals, approaches and instruments of peacebuilding

ŸŸ Fighting corruption in fragile contexts aims at increasing the transparency

and accountability of public institutions. The lack of integrity in criminal
prosecution is addressed e.g. by community policing approaches. This allows
the population to exercise oversight through continued dialogue between
the police and the population and also to support the police in investiga­
tions and criminal prosecution. In addition to the targeted fight against
corruption, bilateral and multilateral cooperation programmes and projects
in fragile contexts need to be designed in a corruption-sensitive way, e.g. by
selecting reliable partners and effectively controlling the resources em­
ployed. Among the G20 states, the Federal Government of Germany in 2017
introduced high-level principles which emphasise the need for organisa­
tional measures like periodic risk analyses, the use of electronic workflows,
and target-oriented professional training and development to strengthen
corruption prevention in public administration;

ŸŸ Good governance in the public finance sector (Good Financial Governance,

GFG) means the efficient, transparent and development-oriented manage­
ment of public funds, both on the revenue and on the expenditure side, and
plays a role both in crisis prevention and post-conflict peacebuilding. Ger­
man support aims to strengthen self-generated income, budgetary process­
es, procurement systems, external financial control, and the transparency of
revenues from the raw materials sector.

The Federal Government is striving to further expand administrative reforms,

decentralisation, local governance and the fight against corruption in line with
the 2030 Agenda for Sustainable Development. The Federal Government is com-
mitted to reinforcing its involvement in the fight against corruption, especially
with regard to the aspect of prevention. Moreover, the Federal Government as a
member of the Addis Tax Initiative has committed to doubling its contribution
to strengthening tax administrations by 2020.
Goals, approaches and instruments of peacebuilding 107
108 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

4.
Earlier – More
­Resolutely – More
Substantially:
­Structures and
­partnerships for
peacebuilding
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 109
110 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

4. Earlier – More ­Resolutely –

More Substantially:
­Structures and partnerships
for peacebuilding
Crises and conflicts will continue to put the international community to the
test. To take on more responsibility and to comply with its vision statement,
the Federal Government of Germany will continue to evolve its peacebuilding
structures, processes and partnerships.

4.1. The interministerial approach

Political involvement and diplomatic mediation efforts are key drivers for re­
solving crises and for creating an international peace order. In its engagement
for crisis prevention, conflict resolution and peacebuilding, the Federal Govern-
ment will coordinate its work even more closely in the future. Fragile contexts
and complex conflicts require a comprehensive policy approach that bundles
the contributions by the various government departments into a joint political
strategy. Strengthening the interministerial approach is therefore indispensa­
ble: from early warning to context analysis, to formulating shared goals, to the
planning and implementation of specific measures, and all the way to evaluat­
ing the results of this engagement and further developing policy tools.

4.1.1. Early warning

Early warning is the indicator-based, early-stage identification of political, economic and

social developments which can potentially lead to the violent escalation of conflicts within
states and societies. Early crisis detection is an essential prerequisite for crisis prevention in
that it extends the range of options by identifying the latent risks in advance.
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 111

Early warning is a crucial basis for early and resolute crisis prevention meas­
ures. It makes it possible to reduce preventable surprises and to better prepare
policy-makers for possible escalations. This necessitates capabilities for the
targeted observation of countries and regions. The Federal Government will
hone its instruments of analysis with a view to keeping abreast of political,
economic and structural developments that are likely to promote the emer­
gence or aggravation of crises. It is important, however, to be realistic: even
with excellent early warning mechanisms, it will not always be possible to
predict crises in sufficient detail.

In early warning, the Federal Government relies first and foremost on the
observation of indicators in the areas of politics, economics, and society (e.g.
the status and protection of human rights, political and social participation,
the poverty rate, migratory pressure, prices and economic trends or social
inequality, including ethnic, religious and gender-specific indicators). For these
efforts, the Federal Government uses targeted reporting received from German
missions abroad and our partners from international organisations, civil
society, the media, and academia in the field, as well as from a host of other
sources. The individual departments of the Federal Government will increase
their efforts to pool the findings obtained from their respective instruments
of analysis depending on the situation at hand.

The Federal Government will continue to develop its early warning instru­
ments and expand its relevant international network. This will also involve
methods of strategic forecasting, including scenario planning. The Federal
Government’s interministerial “Horizon Scanning” working group, which meets
either for a specific situation or otherwise at least every six months, will pro­
mote joint situation assessments of potential crises – even on issues exceeding
the narrow framework of foreign, development and security policy.

““
Whenever the warning bells for a conflict are ringing, it is
our duty, in partnership with those EU member states that
can find the collective political will, to respond effectively,
creatively, and equipped with an adequate ­arsenal of resourc-
es. Germany, as a member state of influence and credibility,
plays a very important part.” Helga Maria Schmid, ­European External
Action Service
112 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

Cooperation both within the European Union and at the multilateral level is
an important point of reference for the Federal Government’s early warn­
ing capabilities. The EU is systematically identifying crisis indicators and is
regularly prioritising countries, regions and issues from a crisis-prevention
perspective. The Federal Government is explicitly supporting the EU in the ex­
pansion of its early-warning system and in the systematical follow-up of early
warning indicators. The United Nations with its field structures, its Special
Representatives, and its comprehensive reporting systems on political devel­
opments in crisis zones, human rights, and development goals also provides an
important point of reference. The African Union, whose early-warning system
the Federal Government is supporting, is another potential partner. NATO’s
early warning mechanisms within the scope of NIWS (NATO Intelligence
Warning System) also offer considerable added value for the Federal Govern­
ment’s early warning capabilities. The Federal Government will additionally
step up cooperation with its international partners in the drafting of joint
conflict and fragility analyses.

4.1.2. Interministerial coordination in political governance

and planning

““
Germany’s engagement in crisis prevention, conflict
­resolution and peacebuilding needs to become more political,
more strategic and more visible. In concrete terms, ‘more
strategy’ means: interministerial cooperation in the design
of processes, the planning of goals and resources, the periodic
adjustment, the collective development of a consistent strategic
narrative and the adherence to this narrative through the
vicissitudes of crisis engagement.” Klaus Naumann, Hamburg Institute
for Social Research

In its Sustainable Development Strategy for the implementation of the 2030

Agenda, in its voluntary commitments at the World Humanitarian Summit
of 2016, and in the White Paper of the same year, the Federal Government
declared its intention to intensify the coherence and cooperation of all rel­
evant policy areas and to embark on new ways of working for joint analysis,
and strategic and operative planning. This requires a strengthening of the
interministerial approach. To that end, the Federal Government – in addition
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 113

to coordination formats at state secretary level – is using the tried and tested
structures established with the Action Plan for Civilian Crisis Prevention and
the Guidelines for Fragile States. These include notably the Interministerial
Steering Group for Civilian Crisis Prevention and the country specific task
forces. With the aim of acting even faster, more strategically and better coordi-
nated in the future, the Federal Government of Germany will review and revise
its existing mechanisms for interministerial coordination.

The government departments will strive for prompt and comprehensive

mutual involvement, thereby ensuring that the specialist expertise of the other
government departments will be included in their planning. In these efforts,
they are making sure that their measures are compatible with the approaches
and programmes of German development policy, and with the implementa­
tion of the 2030 Agenda. When planning such measures, the involvement of
the Federal Foreign Office will ensure that the measures are in line with the
basic tenets of German foreign policy.

To strengthen its strategic and operative capabilities, the Federal Government

will in addition

ŸŸ appoint temporary Special Representatives of the Federal Government to

handle crises particularly affecting Germany, who can also draw on the
assistance of interministerial task forces, whenever needed. Their main
function is to follow-up interministerial measures at a high political level,
in particular by diplomatic engagement on the ground and by ensuring
coherence in policies. Special representatives and special units are normally
organised as part of the Federal Foreign Office and preside over the corre­
sponding Task Force:

ŸŸ involve members of the German Bundestag and other persons from the
political public sphere more consistently in the Federal Government’s
engagement to solve crises and conflicts, e.g. within the framework of the
already existing Special Envoy model;

ŸŸ develop an interministerial Operations Manual on best practices for inter­

ministerial context analysis, planning, strategy development, and the imple­
mentation of measures, with the aim of assuring coherence and quality.
114 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

4.1.3. Interministerial cooperation in the field

The interministerial approach must work on the ground. In these contexts, it is
the diplomatic missions of the Federal Republic of Germany which serve as the
Federal Government’s sensors and network hubs. In addition to the members
of the Diplomatic Service, they are also staffed by members of other ministries
and federal authorities delegated temporarily to the Diplomatic Service to
perform specialist tasks.

The exchange with the diplomatic missions plays a central role in early warning
and in the planning and implementation of measures in the field, not least with
regard to coordinating and controlling the activities of the various implement­
ing organisations and implementation partners (see 4.2.1 below). For example,
the control and coordination of national German development cooperation is
in the hands of the economic cooperation officers. The military attachés are in
charge of observing security sectors in the host countries which are particularly
sensitive in a conflict context. The staff members of the Federal Police and the
Federal Criminal Police Office are frequently involved in projects for the devel­
opment and training of civilian police capacities.

By integrating them in the task forces, and through focused reporting, the
diplomatic missions will in the future be even better integrated in analysis and
operative planning (see Section 4.1.2). Even closer networking, also with the
actors of local civil society and with other non-governmental actors – in­
cluding pro-democracy and human rights activists as well as traditional and
religious communities – can help to get a better view of their perspectives and
their assessments, from situation analysis to operative involvement all the
way to evaluation.

Whenever a diplomatic mission in a crisis-affected state is forced to discon­

tinue its operative tasks and functions, or to ultimately close down, this has
significant consequences for situation analysis and project steering capa­
bilities. In these cases, it is essential to develop creative solutions, which has
already been done e.g. with the “remote control” of projects. For this purpose,
the Federal Government will build on the experience of past years and devel­
op recommendations on how best to maintain analysis and control capa­
bilities in crisis situations. Besides, the Federal Government will strengthen
the role of the diplomatic missions as network hubs for German, local and
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 115

international actors, and develop specific recommendations to that end. As

an additional measure, the Federal Government will systematically deploy
“crisis staff” from the human resources pool of the Federal Foreign Office
for short-term assignments, both in special task forces and at the diplomatic
missions concerned.

The diplomatic missions are under an obligation to support the delegations

of the European Union in the fulfilment of their coordinating role for the
European contribution to crisis and conflict contexts. This contribution
comprises activities of both EU and the member states. On the ground, the EU
delegation forms the central interface between the member states and the EU
actors (i.e., the EU Special Representatives, CSDP missions and operations, the
implementation partners of the European Commission, etc.) as an instrument
for effective and conflict-sensitive cooperation in the spirit of the integrated
approach (see box on page 126).
116 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

The Federal Government is committed to further fine-tuning and synchronising

its early warning instruments. It will employ methods of strategic forecasting
and strive for close international cooperation in early warning and fragility
analysis. In addition, it will promote joint situation assessments on potential
crises, even on issues exceeding the narrow framework of foreign, develop-
ment, and security policy. The Federal Government will also review and revise
its existing mechanisms for interministerial coordination. The Federal Govern-
ment will standardise tried and tested methods and procedures as well as the
implementation of its principles of action in crisis contexts such as the Do-­No-
Harm principle in an interministerial Operations Manual on best practices and
work to ensure that all departments of the Federal Government will systemat-
ically apply international quality standards in their analysis and planning tools.
The government departments will strive for prompt and comprehensive mutual
consultation, thereby ensuring that the specialist expertise of the other gov-
ernment departments will be included in their planning. In these efforts, they
are making sure that their measures are compatible with the approaches and
programmes of German development policy, and with the implementation of
the 2030 Agenda. When planning such measures, the involvement of the Federal
Foreign Office ensures that these measures are in line with the basic tenets of
German foreign policy. The Federal Government will use Special Representa-
tives and Special Envoys to strengthen high-level diplomatic crisis engagement.
The Federal Government will more closely interlink the work of the diplomatic
missions with the interministerial task forces and strengthen their role as net-
work hubs of Germany’s engagement on the ground.
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 117

4.2. Partners in implementation

4.2.1. Implementing organisations and local partners

The implementing and intermediary organisations are the Federal Gov­
ernment’s partners for realising the projects within the scope of Germany’s
engagement in peacebuilding. The Federal Government’s most important
implementing organisations are the Deutsche Gesellschaft für Internation-
ale Zusammenarbeit (GIZ) and the KfW Bankengruppe. Via the Centrum für
Internationale Migration und Entwicklung (International Center for Migration
and Development CIM), a working group comprising the GIZ and the German
Federal Employment Agency, German experts are posted to partner countries
where they are directly employed by local employers. Other governmental
implementing organisations include the Federal Institute for Geosciences
and Natural Resources (BGR), the German Foundation for International Legal
Cooperation (IRZ), and the National Metrology Institute of Germany (PTB).
As part of the KfW Bankengruppe, the German Investment and Development
118 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

Company (DEG) has a government mandate to promote private entrepreneur­

ship in developing countries and emerging economies. The Federal Govern­
ment, in its capacity as a partner, commissioner, or member of supervisory
bodies, ensures the political control of the governmental implementing organ­
isations as well as the adherence to minimum standards for the implementa­
tion and strategic alignment of programmes and projects.

By contrast, the intermediary organisations act as a liaison between the state

and civil society structures. They are supported institutionally. These organi­
sations, like the Goethe-Institut (GI), the German Academic Exchange Service
(DAAD) and ifa (Institut für Auslandsbeziehungen) are active in the sphere
of cultural relations and education policy. They create environments for
exchange as well as venues of freedom and dialogue by providing access to
culture and education and joint cultural work (coproduction). In this way, they
contribute to strengthening civil society. Intermediary organisations are large­
ly free to devise their own programmes and projects, and able to work flexibly
and independently thanks to decentralisation and subsidiarity.

In many cases, the implementing and intermediary organisations are able

to build on many years of presence on the ground and on relationships with
governmental and non-governmental partners based on trust. Especially in case
of conflicts or escalations of violence, this local continuity is crucial for the
efficacy of the engagement.

Non-governmental organisations play an important role in the implementation

on the ground of crisis prevention, conflict resolution and peacebuilding. The
social networks and local rootedness of – both governmental and non-gov­
ernmental – local implementation partners allows activities even in areas
not otherwise reached by the Federal Government’s efforts. They also make it
possible to build on local structures, to develop capacities, and to specifically
address local needs. Monitoring, evaluation and interministerial learning
procedures (see Section 4.5) will take an even closer look at the experiences
and prospects of local implementation partners. The Federal Government of
Germany will offer its staff members access to training and career develop­
ment programmes, specifically with a view to human-rights standards and due
diligence obligations.
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 119

4.2.2. Framework conditions for staff deployment abroad

The Federal Government of Germany has the highest appreciation for the per-
sonal and professional commitment of the local, German and international staff
working all over the world. Their commitment is the prime reason for the trust
and recognition given to Germany’s policy in crises and conflicts. The Federal
Government is well aware of the difficult working and security conditions in
crisis areas. Deployment frequently involves a high degree of personal risk. The
Federal Government is supporting its implementing partners in their ability to
remain capable of acting with their own staff even in particularly uncertain
situations. Where this is not possible, the Federal Government is refining
methods of “remote controlling” programmes and projects to responsibly
manage the associated security and efficiency risks. The Federal Govern­
ment, acting in collaboration with its implementing organisations, will work
to advance appropriate standards and procedures for professional security
management. This also includes the psychosocial support of staff exposed to
particular stress in crisis situations.

The Federal Government places a particular focus on the promotion of women

in the different professional categories of foreign deployments. It is therefore
rigorous in implementing the second Action Plan for the Implementation of
UN Security Council Resolution 1325. This Action Plan stipulates, amongst
other things, gender-equal human resources development in foreign, develop­
ment, security and defence policy.

Without its local staff members, Germany would be unable to act in its partner
countries. Whether at the diplomatic missions, in the offices of implementing
and intermediary organisations, or on the missions abroad of the Bundes­
wehr or the police forces of the Federal Government and the Länder, they are
indispensable, both for their professional work and for their role as mediators
between the different cultures. Even non-governmental organisations and
political foundations depend on national staff. By working for a German
organisation, national staff members are exposed to specific threats in certain
countries. The mandating departments and organisations, in their capacity
as employers, are taking their duty of care for national staff very seriously
and are taking appropriate protective measures. In addition, they are offering
their national staff labour-law protection, and are implementing training and
professional development programmes.
120 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

The Federal Government of Germany attaches great importance to developing

appropriate framework conditions for all groups of persons and to improving
them, where necessary – from recruitment all the way to employee welfare in
the host country. Their deployment on a bilateral basis requires in particular
the satisfactory settlement of legal status issues of these groups of persons
with the partner governments.

The experts of the German implementing organisations account for the majori­
ty of professionals deployed abroad on behalf of the German Government. The
Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ) alone employs a
staff of 17,000 in 130 countries, approximately 70% of whom are national staff.
Even the KfW Bankengruppe is represented at nearly 70 locations worldwide
with more than 400 staff members, 70% of whom are also national staff. At
locations hit by conflict, security risks present a huge challenge to the work of
the staff there. The Federal Government is taking these security risks very se­
riously and acknowledges that they necessitate professional security manage­
ment, with the additional expenses to be covered to a reasonable extent.

Germany has been making important contributions with its deployment of

highly internationally respected civilian experts, police and customs officers
in international peace operations. However, Germany’s staff share in inter­
national peace missions is mostly below its assessed budget contribution (in
2016, for example, Germany provided approximately 1% of the staff for UN
missions while contributing 6.4% of the UN peacekeeping budget). With the
Center for International Peace Operations (ZIF), however, the Federal Govern­
ment has since 2002 had a valuable tool for increasing this share in the long
term. The Center for International Peace Operations is maintaining a pool of
staff to which qualified professionals are admitted. It is from this pool that the
Center for International Peace Operations recruits approximately 150 civilian
experts for international peace missions and more than 300 election observers
for OSCE missions every year. The Center for International Peace Operations
is currently being transformed into a fully-fledged secondment organisation
and is thus authorised to employ civilian experts and make them available for
peace missions in the form of secondments. Within the scope of these second­
ments, the experts are integrated in the missions and they receive remuner­
ations and social security benefits from the Federal Government. The idea
is to further strengthen the human resources capacities and to deploy them
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 121

more purposefully. Social security for civilian experts is about to be improved,

based on the Act Governing Secondments adopted in 2017. It is the Federal
Government’s intention to step up the deployment of civilian experts in terms
of both quality and quantity, and to enhance its profile in leadership positions
in international missions.

Judges and prosecutors are particularly sought-after civilian experts. They

directly contribute to Germany’s commitment to strengthening the rule of
law. The focus of their activities has traditionally been the EU and the Council
of Europe, as well as the international court. However, this involvement is
being limited by the staffing at Länder level. To this date, no binding procedur­
al guidelines have been established between the Federal Government and the
Länder for the secondment of judges and prosecutors. It is a special concern
of the Federal Government to further expand the secondment of judges and
prosecutors in international peace operations and within the scope of bilateral
development cooperation.

With the secondment of police and customs officers, the Federal Government
is making a significant bilateral and multilateral contribution to strengthening
the security structures in fragile contexts (in UN, EU and OSCE police missions
as well as in the missions of the FRONTEX European Border and Coast Guard
Agency). In addition to the Federal Police, the Federal Criminal Police Office,
and the Federal Customs Administration, the police forces of the Länder are
122 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

currently providing more than 200 police officers within the context of the
joint federal-state working group on international police missions (AG IPM)
of the standing conference of German Interior Ministers. The compass for the
joint efforts by the German Federal and Länder governments in this area are
the guidelines for the joint participation of the Federal Government and the
Länder in international police missions. The Federal Government will look
into ways to consolidate and, where necessary, increase the police secondment
capacities in coordination with the Länder, e.g. by creating a job pool backed
up by permanent positions.

The deployment of service members of the German Armed Forces (Bundeswehr)

in international crisis management and peacebuilding has been part and parcel
of the Bundeswehr’s mission profile for 25 years. In many places, the training of
national armed forces is a number-one priority. Long-term advisory groups
as part of the Federal Government’s equipment assistance programme for
foreign armed forces have been deployed since 1961. In addition, the Federal
Government’s enable and enhance initiative provides measures aimed at
strengthening the capabilities of partner states and regional organisations in
conflict management and crisis prevention. Every armed Bundeswehr deploy­
ment abroad is subject to the constitutive consent of the German Bundestag.

CIVIL PEACE SERVICE (CPS)

A special tool of Germany’s development-policy contribution to peace and security is the
placement of development workers serving as qualified professionals under the auspices
of the Civil Peace Service (CPS). The Civil Peace Service is a joint venture of state and civil
society partners and brings together governmental and non-governmental approaches to
peace promotion in a manner unique in the world. The Civil Peace Service’s jointly designed
programme helps to support local partner organisations in peacebuilding, civilian conflict
resolution and the transformation of violent conflicts. These efforts in turn help to strength­
en dialogue with civil society and reconciliation capacities. In 2016, approximately 300
qualified professionals were working in more than 40 countries. The Civil Peace Service can
be deployed in different conflict contexts and profits from the diversity of its local partners.
 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 123

The civil society and governmental institutions joined together in the Civil Peace Service
deploy specialists whose job is to support local organisations in the non-violent manage­
ment of conflicts, involvement in peace processes, and the articulation of their interests.
They strengthen the potential for peace on the ground and help to build bridges between
hostile groups. They teach methods of civilian conflict resolution and mediation, and
they develop and promote structures and processes for dialogue. They help the affected
population to deal with a past marked by violence, injustice and suffering. They are involved
in taking care of traumatised people or in the reintegration of former child soldiers and
combatants. They contribute to reconciliation and protect those actors who defend the
non-violent resolution of conflicts and the respect of human rights. The Civil Peace Service
works on the root causes of conflict and the elimination of wrong and structural injustice
and acts to prevent conflicts from escalating. It promotes plurality as the basis for peace
processes and the development of democracy, and is particularly committed to civil society
approaches for participation in and support of political processes such as peace, reconstruc­
tion or reconciliation processes.

The Federal Government will continuously review the framework conditions

for specialists working abroad, to ensure their secure and sustainable work
even under the most arduous of working conditions. The Federal Government
of Germany is committed, in collaboration with implementing organisations,
to advancing appropriate standards and procedures for professional security
management. This also includes psychosocial support. It will strengthen the
capacities of local partners and structures, and, where necessary, refine the
methods for the “remote control” of its measures. The Federal Government will
pursue an active, gender-equal human resources policy for the deployment of
professional specialists abroad, and will develop target group-specific solutions
to that effect. To that end, it will implement the second Action Plan for the
Implementation of UN Security Council Resolution 1325 on Women, Peace and
Security (2017–2020).
124 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

GERMANY’S INVOLVEMENT IN PRACTICE: COLOMBIA

Colombia has for decades been suffering from armed conflicts involving gue­
rilla organisations, paramilitary groups and state security forces. This internal
conflict has so far claimed more than 340,000 lives. A peace treaty between the
Colombian government under President Santos and the largest guerrilla or­
ganisation, FARC (Fuerzas Armadas Revolucionarias de Colombia), from August
2016 had initially been rejected by a slim majority of Colombians in a referen­
dum held in October. A revised agreement was approved in late November
2016 by both Houses of Congress (Parliament). The Colombian Government
entered into negotiations with ELN Guerilla (Ejército de Liberación Nacional) in
February 2017.

The agreement with FARC provides e.g. for the disarmament and demobilisa­
tion of the former guerilla fighters, which is due to be completed by mid-2017.
The Government is working to make as much visible progress as possible in
the implementation of the agreement during the first months of the post-con­
flict phase. This applies above all to improving the security and reorganisation
of the security sector. Additional requirements are the reconciliation of the
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 125

divided society and the development of the rural regions. This includes the
compensation of victims and the restitution of land as well as economic pros­
pects for the rural population and the urban poor. Another important factor is
transitional justice.

Germany has been supporting the peace process since 2007 as one of
Colombia’s most important international partners. In terms of transitional
justice, the Federal Government of Germany advised both the prosecution
and civil society on the preparation of the special jurisdiction for peace. The
FARC Agreement explicitly mentions Germany as the country requested
for additional help for transitional justice. January 2017 saw the kick-off for
establishing a German-Colombian Peace Institute (Instituto CAPAZ) in Bogotá.
This joint project of German and Colombian universities aims to serve the
academic analysis of the conflict and to giving practical advice on projects and
initiatives in the peace processes. It focuses on the reconciliation of society, the
strengthening of the rule of law, conflict prevention, and peacebuilding.

Germany is also supporting the Colombian Government in resolving conflict

at local level and in strengthening local peace processes. In addition, the Feder­
al Government is supporting the state institutions in organising land restitu­
tion and the compensation of victims. Special programmes provide internally
displaced persons with psychosocial support and mediation services.

Within the scope of financial cooperation the Federal Government is granting

Colombia extensive loan facilities. It also supports the activities carried out
by churches, political foundations and private organisations, e.g. by deploy­
ing development workers. Supplementary humanitarian assistance helps to
alleviate existing emergency situations and improve the food situation, e.g.
via the World Food Programme. Germany is also contributing to international
peacebuilding funds, such as those run by the UN and EU.
126 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

4.3. International partnerships

Whenever Germany engages in the international arena in the prevention of
crises, the resolution of conflicts and peacebuilding, it does not do so unilater­
ally, but at all times in cooperation with international partners and – wherever
possible – within the scope of multilateral structures.

The European Union is the central point of reference for German foreign
policy. Even today, it possesses well-developed instruments for early warning,
crisis management and peacebuilding. Despite the great challenges the Euro­
pean Union is facing, it is fast becoming a crucial protagonist in states affected
by crises and conflicts.

THE EUROPEAN UNION’S INTEGRATED APPROACH

The European Union is pursuing an integrated approach to crises management: with its
diplomatic and political leverage, the external financing instruments, as well as its civilian
and military operational capabilities, it possesses an extensive repertory of measures. Be­
sides, the EU is among the world’s central actors in development cooperation. This gives the
EU a broader stance than other international actors. The idea is to make the cooperation of
the European External Action Service (EEAS), the European Commission, and the member
states more coherent, and to coordinate the deployment of all instruments. Security and
development are mutually interdependent: a minimum level of security is a prerequisite for
development. But the reverse is equally true: no development prospects means no lasting
and self-sustaining security. That is why all civilian and military support in the relevant
operations should be combined and implemented as a comprehensive approach right from
the start. It is therefore necessary, right from the outset, to consider any follow-up steps
when planning missions within the CSDP framework of the EU. Thinking about exit scenar­
ios even at the start of a mission is of particular importance.
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 127

The Federal Government is particularly keen to expand the number of mem­

ber states engaged in peace and security. At the same time, it is imperative to
enhance the EU’s capabilities for coordinating, analysing and planning the
relevant measures. Existing approaches such as joint programming that consti­
tute a coherent combination of the EU’s and its member states’ development
cooperation based on shared analyses and strategies, are playing a seminal role.
Germany will strive to further develop these instruments.

In the implementation of the EU’s Global Strategy of 2016 and of the E

­ uropean
Consensus on Development Policy newly adopted in 2017, the Federal
Government is making a case for explicitly addressing the issues of crisis
prevention, addressing the structural causes of conflict, conflict resolution
and post-conflict peacebuilding. In this context, the CSDP provides a flexible
and effective crisis response tool. In line with the Global Strategy, the focus on
strengthening resilience needs to be increased. It is important for peacebuild­
ing to link national and European contributions more closely. This is done by
maintaining close contact with European Commission and EEAS decision-­
makers throughout the entire duration of the crisis. This can be achieved, for
example, by intensified staff exchanges, or by periodic and institutionalised
consultations, as well as by shared analysis and planning tools, both in Brussels
and in the field.

““
For years, the United Nations has been stressing the
­urgency and priority of prevention policy – now more
than ever before. In [a] ‘preventive German foreign
­policy’, strategic priority must be given to supporting
and ­strengthening the United Nations.” Winfried Nachtwei,
­A dvisory Board for Civilian Crisis Prevention

The United Nations is the central frame of reference for German multilateral
crisis engagement aimed at promoting world peace and security, protecting
human rights, and enabling sustainable development. The UN is active in
all crisis and conflict regions all over the world. The UN Security Council
has a central role in the protection of peace and security. It is the only body
authorised at a global level to make binding decisions under international
law, even against the will of a state, and the only international body legally
128 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 129

authorised to mandate the use of force (under international law). This makes
the UN indispensable as the competent authority conferring internation­
al legitimacy on international interventions. The UN is also the biggest
provider of peace services in the world. Its mechanisms and instruments of
early warning, crisis prevention and peacebuilding, in addition to immediate
peacekeeping, are increasingly gaining importance. Further partners for the
promotion of peace for the Federal Government of Germany within the UN
system include the United Nations Development Programme (UNDP), the
World Food Programme (WFP), the United Nations Children Fund (UNICEF),
the United Nations High Commission for Refugees (UNHCR), and the UN
specialised agencies.

The Federal Government is committed to further developing the UN’s and

its specialised agencies’ crisis and conflict prevention instruments as part
of the Sustaining Peace concept of the Security Council and the General
Assembly, and to supporting the modernisation and enhancing the efficiency
of peacekeeping. Germany is ready to increase its involvement in the UN’s
peacekeeping missions and to support the United Nations in the organisation
of a World Prevention Forum.

The Federal Government is supporting all reform efforts aimed at improving

and increasing the efficiency of the UN system, including a reform of the Secu­
rity Council. For the Security Council to preserve its legitimacy on a perma­
nent basis, its composition needs to reflect the world order of the 21st century.
Germany is ready and willing to take on more responsibility as a permanent
member of the UN Security Council as a consequence of reform. In the mean­
time, Germany aims for non-permanent membership at regular intervals.

Germany is strongly committed to the implementation of the 2030 Agenda for

Sustainable Development adopted in the context of the UN which lists peace
as one of its five cornerstones. The 2030 Agenda has a peacebuilding effect,
both by linking all dimensions of sustainability (i.e. social, environmental,
economic), and by setting concrete goals and sub-goals (specifically SDG 16,
see box page 30). The Federal Government is supporting the approach of joint
planning and reporting for the entire UN system, for the sustainable imple­
mentation of the 2030 Agenda.
130 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

In addition to that, collective security systems play an important role in the

protection of peace and freedom. Both in Europe and in the rest of the world,
NATO and the EU are faced with similar threats. Mastering these challenges
requires a comprehensive approach providing the framework for combining
NATO’s primarily military instruments with the EU’s foreign and security
policy instruments as well as its economic, trade, energy, and development
policy instruments. NATO’s crisis management operations are instruments of
preventive security serving the prevention, containment and stabilisation of
violent crises and conflicts, and the subsequent post-conflict rehabilitation. As
such, NATO is playing a global role in fulfilling its responsibility as a Euro-At­
lantic security organisation. In line with the goal of sustainable crisis manage­
ment, its approach is to strengthen the capability of regional actors – whether
individual nations or regional organisations – for independent security
precautions and stabilisation. Thanks to its permanent command structure, its
transatlantic partnership, and its strong training practice, NATO is particularly
well-equipped to carry out even complex operations. At the same time, it is
responding to the concerns of its Eastern alliance partners. That is why, in
addition to international crisis and conflict management, national and alliance
defence is again gaining ground.

The OSCE is the world’s largest regional security organisation and a corner­
stone of European security. With its inclusive community of participants and
its numerous field missions, it is a core component of the European security
architecture. As a one-of-a-kind consultation, collaboration and negotiation
forum for the security policy, from Vancouver all the way to Vladivostok, it
will continue to be an indispensable tool in the armoury of our future security.
Besides, most OSCE participating states agree that there is a need to strengthen
confidence building and arms control just as much as the OSCE’s capacity to
act within the whole conflict cycle. The Federal Government will continue to
give its uncompromising support to the relevant efforts of the respective OSCE
Chairmanships.

The Federal Government is cooperating with the OECD, inter alia, within
the context of the International Network on Conflict and Fragility (INCAF).
This network fosters the exchange of experiences among the members and
develops standards, principles, and good practice examples for cooperation
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 131

with fragile states. OECD INCAF’s annually published States of Fragility

Report presents data, statistics and relevant research on fragility, violence and
conflict to inform and draft recommendations about the special challenges of
implementation in fragile contexts. Apart from that, the Federal Government,
as part of its INCAF membership, is also establishing political structures of
dialogue with fragile states and civil society, e.g. the International Dialogue
for Peacebuilding and Statebuilding (IDPS, also see Chapter 1). It is one of
the Federal Government’s core concerns to contribute the experience gained
from German development cooperation in fragile contexts to international
policy formulation and OECD standard setting. It considers the OECD to be an
appropriate platform for joint analysis and learning projects in conjunction
with other donors.
132 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

FINANCING MECHANISMS IN MULTILATERAL COOPERATION

Through programme-based joint financing (PGF), the reform programmes of a partner
country are supported. Depending on the objective(s), PGF is intended to promote either
sustainable economic development and poverty reduction or specific sector reforms such as
education or health reforms. However, PGF can also be used in a crisis context to maintain
or strengthen central state and administrative functions. Good governance and the pro­
motion of an efficient public financial management and economic policy framework have
been and always will be core aspects of PGF projects. It is up to the respective partners to
take on a leadership role and responsibility for the implementation of PGF projects, with a
view to fostering ownership. In all of these projects, the partners’ systems are systematically
strengthened, and the implementation of the mutually agreed reform strategy is supported
by policy dialogue. PGF is an important tool for coordinating the concepts and contents of
the various donor contributions, and creating a platform for formal donor coordination.

Financing facilities and voluntary payments to international organisations, e.g. in the form
of fund contributions, can be used throughout all phases of a crisis. The particular added val­
ue of financing facilities and fund contributions is that they allow the pooling of resources
and capabilities and the addressing of short-term financing needs with pinpoint accuracy.
At the same time, these forms of financing help to promote the coherence and effectiveness
of relief measures. Funds are normally an excellent platform for harmonising and coordi­
nating the individual donors and for reducing the transaction costs on the partner’s end. A
down side is the sometimes limited controllability of these funds as their use is decided by
multiple donors with often widely varying interests.

Since the publication of the World Development Report of 2011, the World
Bank has been devoting greater attention to the issue of conflict, fragility and
violence. The Federal Government is fulfilling its steering role in the World
Bank via the Executive Director appointed by it, and is actively supporting the
World Bank as it focuses on fragile contexts and strengthens its rapid response
capability. Financial support is provided to individual programmes such as the
State- and Peacebuilding Fund (SPF), which is piloting innovative approaches
to crisis contexts, or the Concessional Financing Facility (CFF), which was
extended in 2016 beyond the MENA (Middle East & North Africa) region and
which is providing low-interest loans for middle income countries affected
by the refugee crisis. The World Bank’s Global Facility for Disaster Reduction
and Recovery (GFDRR) also helps to push initiatives for disaster risk manage­
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 133

ment at the interface of climate, conflict, and natural disasters. Its outstanding
specialist expertise, in combination with its presence in many fragile environ­
ments, makes the World Bank an important partner for joint fragility analyses
and learning formats. The International Monetary Fund (IMF) with its monitor­
ing activities and its technical support programmes is making a crucial con­
tribution towards the prevention of economic crises in its member states. It
is the IMF which is prepared to come up with financial assistance in the event
of a balance of payments crisis. The regional multilateral development banks,
such as the African Development Bank (AfDB), the Asian Development Bank
(ADB), and the Interamerican Development Bank (IDB) are further important
partners in the context of cooperation with fragile states.

Besides that, the Federal Government is working with additional international

organisations, regional organisations, networks, partner states and non-gov­
ernmental actors in its efforts to address global drivers of conflict and challeng-
es. The Federal Government of Germany attaches particular importance to
integrating emerging powers into the international order, and to developing
new partnerships. Dialogue formats such as the International Partnership on
Religion and Sustainable Development (PaRD), which pools the joint efforts of
more than 50 bilateral donors, international organisations, and civil society for
more systematically tapping into the peace potential of religions, are another
valid partnership-building tool. In addition, the Federal Government is active­
ly involved in addressing global security risks. In line with its commitment,
the Federal Government is committed to strengthening measures against
climate change as a security-related aspect within international organisations
and fora such as the UN, the EU, G7, and G20. The task for the upcoming years
will be to integrate climate issues even more systematically into Germany’s
crisis engagement, and to strengthen potentially affected regions’ resilience.
Programmes and projects for promoting adaptation to climate change are
especially important to politically fragile regions and states already affected by
climate change. Even health risks – such as the Ebola outbreak in West Africa
in 2014/2015 – can have a destabilising effect on entire regions and undo
years of development achievements. That is why the Federal Government is
campaigning for better pandemic prevention and effective global health crisis
management. Based on the Federal Chancellor’s Six Point Plan (January 2015),
the Federal Government is using an interministerial approach to strengthen
e.g. the healthcare systems in partner countries, or to build up instruments at
134 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

the EU, the World Health Organization (WHO), and the World Bank, which can
rapidly supply necessary materials, human resources, and financing in case of
crisis.

The Federal Government is also strongly supporting bilateral and multilat­

eral cooperation among the donor community with a view to better donor
coordination. To this end it supports, among other schemes, the concept of lead
nations, i.e. the exercise of a coordination and pooling function by individual
partner nations – also within the context of multilateral operations. Germany
is prepared to take on more responsibility in this context – and is keen to see
the effective coordination of its contributions by other partners.

The Federal Government is wholeheartedly committed to the ambitious imple-

mentation of the 2030 Agenda for Sustainable Development, both at national
and at global level. It will remain steadfast in its efforts to strengthen interna-
tional capabilities for crisis prevention, conflict resolution and peacebuilding,
and it will work towards improved coordination. To do this, it will strive for a
closer linkage of relevant mechanisms of the European Union and its member
states, using existing approaches like Joint Programming. What is more, Germany
is working for the advancement of the Common Security and Defence Policy
(CSDP) in the EU. The Federal Government is supporting the reform efforts
within the United Nations, and is ready and willing to take on more responsi-
bility for peacekeeping, by helping to modernise it and make it more efficient.
The Federal Government supports the organisation of a World Prevention
Forum. The Federal Government will keep capabilities ready for participating
in the whole spectrum of NATO and/or EU missions, and for helping regional
partners to improve their own capabilities. It will support regional organisations
all over the world, enabling them to make their own contributions towards
safeguarding peace and security. In conjunction with other donors, the Federal
Government will work towards better donor coordination, and will endeavour to
play an active role in the resolution of global causes of conflict.
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 135

4.4. Civil society, academia and other

­non-governmental partners in Germany

““
The Federal Government and civil society organisations
need to pursue a common political strategy of creating
opportunities for dialogue which will allow governmental and
civil society actors to openly discuss the political framework
conditions of cooperation and will give them room for joint
learning and reflection.” A participant attending the “Civil society crisis
prevention and peacebuilding” event of 05 October 2016

Non-governmental actors including civil society organisations and networks,

academia, church organisations, political as well as private foundations, and
the business sector are indispensable partners for Germany’s engagement.
They can often draw on many years of experience, they are virtual reservoirs of
professional expertise, they promote critical reflection, and they are working in
political education. The Federal Government has the highest appreciation for
these actors. It has therefore decided to draw more heavily on the expertise of
non-governmental agents for peace for its own future conceptual and opera­
tive efforts. This also includes actors of local civil society whose involvement is
explicitly promoted by the Federal Government (see Chapter 3). The Federal
Government perceives these actors as proactive partners and as sources of
inspiration for its own efforts.

The close cooperation with non-governmental partners for the promotion

of peace was influenced to a large extent by the 2004 Action Plan on
Civilian Crisis Prevention, Conflict Resolution and Peacebuilding. The
Federal G
­ overnment will further evolve the structures and exchange
processes initiated through the Action Plan, and focus even more on joint
learning processes.

The Advisory Board for Civilian Crisis Prevention has since 2005 been con­
tributing its wide spectrum of expertise to the work of the Interministerial
Steering Group for Civilian Crisis Prevention. The Advisory Board is composed
of stakeholders from academia, foundations, non-governmental organisations,
136 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

the business sector, and experienced individuals. The Advisory Board has prov­
en its added value as a constructive and critical companion to government
departments in the implementation of the Action Plan, and for the conceptual
advancement of the departments’ engagement in crisis-affected countries. So
far, the lack of clarity of the mandate and limited capacities have made con­
structive cooperation challenging.

The Federal Government is therefore defining the Advisory Board’s mandate

more precisely, and aims to raise its profile as Advisory Board for Civilian
Crisis Prevention and Peacebuilding. The Advisory Board is in charge of three
core tasks: to provide advisory services to government departments, to draft
conceptual contributions of its own, and to promote the exchange with the
professional public. First, the Advisory Board will confidentially and profes­
sionally mentor and advance the concepts of the Federal Government’s crisis
engagement in line with the principles of the Government’s vision statement.
In the future, the Advisory Board will concern itself at an early stage with stra­
tegic and fundamental conceptual issues, and will deliver confidential advice.
Secondly, the Advisory Board should be authorised to commission or submit
its own expert reports on core issues relating to conflict analysis, early warning
and the conceptual advancement of the government’s toolkit and approaches.
The Advisory Board will as a general rule present these expert reports to the
public. Thirdly, the Advisory Board will act as a central interface with non-gov­
ernmental actors, which it can involve in its work at its own discretion. The
Advisory Board will carry out its networking and advisory functions by e.g.
organising an annual conference as well as supplementary consultation pro­
cesses. Membership is decided on by the Interministerial Steering Group for
Civilian Crisis Prevention.

Another important platform is the Working Group on Peace and Development

(FriEnt), an association of academic institutes, church development agencies,
civil society networks, political foundations, and governmental institutions.
The Working Group on Peace and Development uses multiple approaches,
partner structures, experiences and competencies to more effectively address
the challenges to development and peace policy. The Working Group provides
professional expertise, it offers a compass for policy- and practice-relevant
action, and it promotes public understanding of the versatile approaches and
potentials of peace work. The Working Group on Peace and Development
encourages a trustful dialogue between the various actors of crisis prevention
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 137
138 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

and peacebuilding, at both national and international level. It can provide

important inspiration for the learning platform envisaged by the Federal Gov­
ernment (see Section 4.5.2).

““
To address the issues of violence and crisis prevention,
­peacekeeping and conflict resolution, we need both:
­specialised, case-related and context-related ­knowledge
as well as generalisable ‘synthesised knowledge’.”
U ­ lrich S­ chneckener, German Foundation for Peace Research (DSF)

The Federal Government stands to benefit from the advice received from
academia and research, to improve its base of knowledge for impactful involve­
ment in crisis prevention, conflict resolution and peacebuilding. By promoting
non-university research institutes as well as university research projects, the
Federal Government has already been providing important inputs on this
issue. Important partners in basic research include e.g. the Peace Research
Institute Frankfurt (HSFK) jointly funded by the Federal Government and the
Länder, and the likewise jointly funded German Institute of Global and Area
Studies (GIGA). The German Development Institute (DIE), the German Founda­
tion For Science and Politics (SWP), and the German Council on Foreign Rela­
tions (DGAP) have proven their worth e.g. by providing practice-oriented and
academically sound political advice and by acting as driving forces for strategic
processes. The German Foundation for Peace (DSF) launched by the Federal
Government, in its capacity as a research-funding institution, is supporting
academic projects, young academics, networking within academia, and the ex­
change of knowledge between academia, the world of politics, and society. In
addition, the Federal Government supports security policy research – beyond
the Bundeswehr’s universities – at the nationwide faculties and institutes geared
to this research.

The Federal Government will continue its comprehensive support activities

and will increase its focus on practical relevance and interdisciplinary cooper­
ation, in line with the broad and comprehensive project funding activities of
the Federal Ministry for Education and Research. The Federal Government is
committed to taking greater account of regional research in disciplines such as
ethnology and anthropology when analysing conflict contexts. It will devote
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 139

increased attention to innovative formats of reciprocal knowledge transfer

between theory and practice. The point is to make academic findings available
quickly and purposefully to decision-makers in politics, security institutions,
and civil society. The Federal Government will continue to advocate free and
independent research, also with respective host countries.

There is trustful cooperation between the Federal Government and German

religious communities; in development cooperation, notably with the central
agencies specifically established by the churches for development cooperation;
in the Bundeswehr, via military chaplains and beyond. In some crisis and war
regions, access for interventions is possible only via their local networks and
religious communities. That is why they also have an important role to play in
conflict analysis and as facilitators in peace processes. Moreover, the Protestant
Church of Germany (EKD) and the German Bishops’ Conference (DBK) are also
supporting German expatriate congregations and church mission societies in
fragile states.

The German political foundations (Konrad-Adenauer-Stiftung, Heinrich Böll

Foundation, Friedrich-Ebert-Stiftung, Rosa Luxemburg Foundation, Friedrich
Naumann Foundation and Hanns Seidel Foundation), with their education,
advisory and dialogue programmes, play an important role in building and
promoting democracy as well as in supporting civil society, including in fragile
states and crisis-affected areas. The foundations, like the churches and other
private institutions, do not act on behalf of the Federal Government, but mere­
ly with its consent and financial support. The Federal Government is doing its
utmost to ensure that the political foundations and organisations of German
civil society can operate freely in their host countries. Private foundations with
their expert knowledge and their networks are also progressively evolving into
actors for sustainable peacebuilding. The Federal Government will systemati­
cally expand its partnerships with these foundations.

Given the important contributions business companies are making to

resolving conflicts and to the creation of long-term prospects for the future,
and in view of the international dialogue maintained by trade associations and
chambers of commerce, the Federal Government will actively work to more
closely involve them in the non-governmental network of actors. Moreover,
more attention will be paid to entrepreneurs’ perspective, for example within
140 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

the scope of the Advisory Board or suitable consulting formats. Indeed, the
Federal Government acknowledges and appreciates the fact that German
companies are in many countries performing public service tasks for and
securing the livelihoods of their employees in their home communities. They
bear particular responsibility in this regard (see box on page 61).

The Federal Government will intensify its cooperation with non-governmental

actors in the area of peacebuilding, increase its use of existing platforms like
FriEnt (Working Group on Peace and Development), and further expand its
network. As the central interface to these actors, it will further consolidate
and strengthen the Advisory Board for Civilian Crisis Prevention. The Federal
Government will put special emphasis on improving the knowledge base for
involvement in fragile contexts and for shared learning processes. To that end,
it will support the systematic promotion of regional studies and of peace,
security and conflict research, and will support innovative transfer formats
to better incorporate the results obtained in the Federal Government’s work.
The Federal Government is committed to assuring a free and unhindered
environment for the activities of civil society organisations and foundations
in host countries, and to better integrating business companies into its non-
governmental network of actors.

4.5. Quality assurance and further develop­

ment of the interministerial approach
4.5.1. Monitoring and evaluation
Assessing the results and experiences of Germany’s engagement in countries
affected by crises and conflicts through monitoring and final evaluation is
indispensable – both with regard to the transparent and economic use of
public funds and quality assurance, and for effective political steering capac­
ity and flexible adjustments to changing circumstances. This is important in
order to remain capable of acting, especially in situations – typically crisis
situations – where not all framework conditions can be controlled or where
every intervention is fraught with risks. This is also in line with the principle
of identifying and averting the unintentional effects of an engagement at an
early stage (Do-No-Harm principle).
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 141

Monitoring and evaluation generally lie within the responsibility of the

respective government department. They are developing suitable instruments
best attuned to their area of operations.

The evaluations of the Federal Foreign Office’s projects are carried out by
external experts. For future reference, strategic evaluation will have a key
function as a control instrument. Additionally, an independent evaluation
panel of stakeholders from the world of politics, academia and civil society
has been established whose task it will be to advise on strategic evaluation, to
support the internal feedback of results, and promote the dissemination of
these results to the public.

In the BMZ’s area of operations, on the one hand evaluations are performed
by the implementing organisations, such as KfW Development Bank and the
Deutsche Gesellschaft für Internationale Zusammenarbeit (GIZ), and by those
civil society organisations receiving support. Their evaluations are normally
project-based, and are performed by external experts. The independent German
Institute for Development Evaluation (DEval), on the other hand, conducts strate­
gic evaluations, i.e. policy-relevant evaluations, above the level of individual pro­
jects. In addition to this, it develops evaluation methods and standards, and pro­
motes the dissemination of knowledge, the process of learning from evaluations,
as well as evaluation capacities in partner countries. DEval’s Advisory Board,
consisting of representatives of the German Bundes­tag and representatives from
academia, civil society and other organisations, is involved in particular in the
process of evaluation planning and results discussion.

Special approaches are required to support learning and accountability within

the context of conflicts and fragility. Germany’s approaches are generally
based on OECD DAC standards and directives, which take into account the
complexity and volatility of crisis and conflict situations. These standards and
directives include, in addition to the principles agreed within the OECD DAC
community (1991), and the quality criteria for development evaluation (2010),
in particular the guidelines for Evaluating Peacebuilding Activities in Settings of
Conflict and Fragility – Improving Learning for Results (2012).

The deployment of Bundeswehr forces and resources for crisis prevention or

crisis management is subject to evaluation by the Bundeswehr’s mission assess-
ment. It examines whether or not it will be possible to carry out a mission with
142 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

the forces and resources deployed, or whether adjustments would be advisa­

ble. This assessment helps to analyse during all phases of a deployment – i.e.,
preparation, implementation, follow-up – whether or not it will be necessary
to improve procedures and capabilities, with a view to initiating appropriate
mission-optimising measures for ongoing and future operations. As part of the
comprehensive approach, the shared use of findings obtained from all phases
of the missions is of particular relevance.

The Federal Government seeks to increase interministerial cooperation for

these evaluation purposes. Common procedures have to reflect the objectives
and needs of the government departments involved, and should allow the pos­
sibility of adjustment in appropriate cases. For interministerial involvement
in prolonged crises and conflicts, the Federal Government aims to evaluate
interministerial action at regular intervals.

4.5.2. Interministerial learning processes

““
The PeaceLab 2016 Process has illustrated the value of
cross-protagonist and cross-institutional exchange on the
principles and practice of peacebuilding. Even after PeaceLab
2016, this ‘community’ […] will remain in need of locations
for exchanging experiences, asking questions, ­adjusting
knowledge and absorbing new ideas. Here is where ­learning
platforms […] can be of assistance.” Jörn Grävingholt, German
­D evelopment Institute and Advisory Board for Civilian Crisis Prevention
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 143

The structures and procedures propounded in these guidelines need to be

put into practice. Interministerial basic and further training, specifically for
jointly preparing all staff members concerned for their posts, will therefore be
strengthened. Interministerial training is also intended to help promote the
exchange with external experts and non-governmental actors. The training
academies and training partners of the government departments, as well as
the Federal Academy for Security Policy (BAKS), are of premier importance
for the implementation of interministerial basic and further training. The
Federal Government will also offer regional and interministerial training
events to the diplomatic missions concerned, where necessary, with the
involvement of international and implementing partners. Furthermore, the
Federal Government will look into the possibility of developing joint training
programmes with the European institutions and the other EU member states.

To better integrate and institutionalise knowledge management and profes­

sional development, the Federal Government also embraces the development
of an interministerial learning platform. This platform, in connecting the
relevant work units of the government departments and in systematically
clustering experiences and knowledge, serves the goal of interministerial basic
and further training. The Advisory Board for Civilian Crisis Prevention gives
civil society organisations and research institutions a platform for getting
involved in learning processes.

The Federal Government advocates systematic, impact-oriented monitoring,

and the corresponding evaluation of its involvement in crisis prevention,
conflict resolution and peacebuilding. By strengthening exchange on best
practices, the Federal Government aims to apply, in each case, the highest
quality standards of the government departments and implementing partners
involved, and to develop interministerial procedures. It is committed
to promoting joint basic and further training, and to tailoring its relevant
programmes even better to the challenging tasks in crisis countries. It will
establish a learning platform for pooling and getting the most out of the
experiences gained from its involvement.
144 Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding

4.6. Implementation of the Guidelines and

­follow-up processes
These Guidelines, in combination with the White Paper and the Federal Gov­
ernment’s Development Policy Report, constitute the strategic framework for
the Federal Government’s political engagement in crisis prevention, conflict
resolution and peacebuilding. The body responsible for the implementation
of the Guidelines is the Interministerial Steering Group for Civilian Crisis
Prevention, which has the authority to set up working groups with a view
to the follow-up processes announced herein (see Overview in Appendix 1).
The Federal Government will submit a report on the implementation of the
Guidelines after four years. It will review the Guidelines as its strategic basis of
peacebuilding after eight years, and readjust them as needed. Furthermore, the
Federal Government will inform the German Bundestag at regular intervals
about selected priority issues of its peacebuilding efforts, and will in addition
invite Members of the German Bundestag to participate in the future learning
platform. It will also report to the international community – e.g. as part of
monitoring SDG 16 of the 2030 Agenda for Sustainable Development – about
its engagement in fragile and conflict-affected contexts, and about other goals.

The Federal Government embraces the continuation of the dialogue con­

ducted at the PeaceLab 2016, which is an inclusive dialogue involving various
actors engaged in the areas of crisis prevention, conflict resolution and peace­
building, in an appropriate form and with the participation of the Advisory
Board. The Federal Government will expand its communication activities in
order to explain its engagement to the public, to point out the opportunities
and limitations of this engagement, and to actively reach out to the media
in Germany and in the field. To achieve all of this, it will set up a permanent
interministerial working group for strategic communication which will report
to the Interministerial Steering Group for Civilian Crisis Prevention and which
will be advised by the Advisory Board.
Earlier – More Resolutely – More Substantially: Structures and partnerships for peacebuilding 145

The Federal Government is committed to systematically following up on the

application and advancement of the Guidelines. It will submit a report on
their implementation after four years and will review the Guidelines as its
strategic basis for peacebuilding after eight years, readjusting them as needed.
It will cultivate a close exchange with the German Bundestag and actors from
the peacebuilding arena. It will expand its communication with the public, and
will for that purpose set up a permanent interministerial working group for
strategic communication.
146 Appendix

Appendix
 Appendix 147

Appendix 1: The Federal Government voluntary commitments

Voluntary commitment Source

The vision statement lays down the guiding principles for the Federal Government Chapter 2
to shape its actions and instruments as well as appropriate structures and partner-
ships for peacebuilding.

Voluntary commitment Source

The Federal Government is firmly committed to further expanding its mediation Section
capabilities and to intensifying its involvement in mediation processes in the 3.2
future. This comprises the financial and planning support of mediation processes,
as well as the long-term development of the UN's and other partners' mediation
capacities, and may even involve direct participation in mediation processes. In
this regard, the Federal Government's particular focus is on inclusive dialogue
processes and the equal participation of women – on the negotiating end as much
as on the mediating end.

The Federal Government is set on further expanding its involvement in democracy Section
building and the support of peace infrastructures at various different levels. In this 3.2.1
regard, it pays particular attention to the equal participation of women.

The Federal Government will also forge even closer links between the issues of Section
governance, fragility and conflict, and systematically support the capabilities of 3.2.1
governments to implement the 2030 Agenda for Sustainable Development.

Both in the United Nations and the European Union, the Federal Government will Section
continue to make sure that sanctions are effectively implemented and stay in line 3.2.1
with the requirements of proportionality and rule of law.

The Federal Government will continue to cultivate its involvement in the security Section
sector and is planning to appoint a working group for drafting an interministerial 3.2.2
SSR strategy. In terms of implementing the UN Security Council Resolution 1325
and the 2030 Agenda for Sustainable Development (SDG 5), greater and more active
attention will be paid to the special concerns and interests of women and girls.
148 Appendix

The Federal Government is also supporting the United Nations' reform efforts Section
aimed at making the peacekeeping system and the special political missions even 3.2.2
more effective.

The Federal Government will continue to promote the development of African Section
peace and security structures. 3.2.2

The Federal Government will also intensify its arms control and disarmament Section
measures, and will specifically expand its mine and ordnance clearance programmes 3.2.2
in stabilisation contexts.

The Federal Government will work towards enhanced small arms control. Section
3.2.2

The Federal Government aims at the enduring and qualified support of internation- Section
al missions. 3.2.2

The Federal Government will enhance its focus on the promotion and systematic Section
demand for rule of law; especially with an eye to the 2030 Agenda for Sustainable 3.2.3
Development (SDG 16).

The Federal Government has therefore decided to launch a working group for Section
drafting an interministerial strategy for promoting the rule of law. 3.2.3

The Federal Government will continue its involvement for the protection and Section
promotion of human rights and develop an interministerial strategy for transitional 3.2.3
justice in a separate working group.

The Federal Government also seeks to further expand German involvement in Section
the rule-of-law components of international missions, notably missions of the EU 3.2.3
and UN.

The Federal Government will continue its efforts for a broader recognition and Section
strengthening of international criminal jurisdiction, specifically of the International 3.2.3
Criminal Court (ICC).
 Appendix 149

In its promotion of the rule of law, the Federal Government will also take due Section
account of the goals of Resolution 1325 and its follow-up resolutions on women, 3.2.3
peace and security.

The Federal Government is striving to expand its measures for business develop- Section
ment and employment promotion and for social protection in fragile states, in line 3.2.4
with the 2030 Agenda for Sustainable Development. Particular attention will be
given to Africa and the host countries of refugees.

Among other things, the Federal Government will for this purpose: Section
ŸŸ forge new alliances with the German business sector and with international partners, 3.2.4
e.g. under the multi-stakeholder partnership Global Alliance for Trade Facilitation;
ŸŸdevelop innovative solutions with the private financial and insurance sectors;
ŸŸestablish incentive-based reform partnerships for accelerated sustainable devel-
opment;
ŸŸincrease its support for private sector efforts to develop sustainable supply chains
and production capacities, in alignment with environmental and social standards;
ŸŸgive particular support to the economic activities of women;
ŸŸexpand employment promotion in crisis countries and in the host countries of
refugees;
ŸŸstep up its support for measures for climate change adaptation and promote and
push climate risk insurance initiatives such as InsuResilience;
ŸŸmake the funding of conflicts from mining revenues more difficult, e.g. through
an active commitment to compulsory EU regulations on the import of natural
resources, as part of international processes like the Kimberley Process Certifica-
tion Scheme for the certification of “conflict-free” diamonds, or by transparency
initiatives such as the Extractive Industries Transparency Initiative (EITI).
ŸŸhelp the poorest, least developed countries (LDCs) to double their share in total
world exports by 2020 (SDG 17 of the 2030 Agenda); to do this, the Federal Gov-
ernment will in particular step up its contributions to a Multi-Donor Trust Fund
organised as part of the World Trade Organization (WTO) which supports the
trade policy and trade projects of LDCs (Enhanced Integrated Framework), and
assist the implementation of the EU's Economic Partnership Agreements with
developing countries with accompanying development-policy measures.
150 Appendix

The Federal Government is striving to further expand administrative reforms, Section

decentralisation, local governance and the fight against corruption in line with 3.2.5
implementing the 2030 Agenda for Sustainable Development.

The Federal Government is committed to reinforcing its involvement in the fight Section
against corruption, especially with regard to the aspect of prevention. 3.2.5

As a member of the Addis Tax Initiative, the Federal Government has committed to Section
doubling its contribution to strengthening tax administrations by 2020. 3.2.5

Voluntary commitment Source

The Federal Government of Germany is committed to further fine-tuning and syn- Section
chronising its early warning instruments. 4.1.

The Federal Government will employ methods of strategic forecasting and strive for Section
close international cooperation in early warning and fragility analysis. 4.1.

In addition, the Federal Government will promote joint situation assessments on Section
potential crises, even on issues exceeding the narrow framework of foreign, devel- 4.1.
opment, and security policy.

The Federal Government will also review and revise its existing mechanisms of Section
interministerial coordination 4.1

The Federal Government will standardise tried and tested methods and procedures Section
as well as the implementation of its principles of action in crisis contexts such as 4.1
the Do No Harm principle in an interministerial Operation Manual on best practice
and work to ensure that all departments of the Federal Government will systemati-
cally apply international quality standards in their analysis and planning tools.
 Appendix 151

Government departments will strive for prompt and comprehensive mutual con- Section
sultation, thereby ensuring that the specialist expertise of the other government 4.1
departments will be included in their planning. In these efforts, they are making
sure that their measures are compatible with the approaches and programmes of
German development policy, and with the implementation of the 2030 Agenda.
When planning such measures, the involvement of the Federal Foreign Office en-
sures that these measures are in line with the basic tenets of German foreign policy.

The Federal Government will use Special Representatives and Special Envoys to Section
strengthen high-level diplomatic crisis engagement. 4.1

The Federal Government will more closely interlink the work of the diplomatic Section
missions with the interministerial task forces and strengthen their role as network 4.1
hubs of Germany's engagement on the ground.

The Federal Government will continuously review the framework conditions for Section
specialists working abroad, to ensure their secure and sustainable work even under 4.2
the most arduous of working conditions. The Federal Government is committed, in
collaboration with implementing organisations, to advancing appropriate standards
and procedures for professional security management. This also includes psychoso-
cial support.

The Federal Government will strengthen the capacities of local partners and Section
structures, and, where necessary, refine the methods for the “remote control” of 4.2
its measures.

The Federal Government will pursue an active, gender-equal human resources Section
policy for the deployment of professional specialists abroad, and will develop target 4.2
group-specific solutions to that effect. To that end, it will implement the second
Action Plan for the Implementation of UN Security Council Resolution 1325 on
Women, Peace and Security (2017–2020).
152 Appendix

The Federal Government is wholeheartedly committed to the ambitious imple- Section

mentation of the 2030 Agenda for Sustainable Development, both at national 4.3
and global level. It will remain steadfast in its efforts to strengthen international
capabilities for crisis prevention, conflict resolution and peacebuilding, and it will
work towards improved coordination. To do this, it will strive for a closer linkage of
relevant mechanisms of the European Union and its member states, using existing
approaches such as Joint Programming.

The Federal Government is working for the advancement of the Common Security Section
and Defence Policy (CSDP) within the EU. 4.3

The Federal Government is supporting the reform efforts within the United Section
­Nations, and is ready and willing to take on more responsibility for peacekeeping by 4.3
helping to modernise it and make it more efficient.

Germany supports the organisation of a World Prevention Forum. Section

4.3

The Federal Government will keep capabilities ready for participating in the whole Section
spectrum of NATO and/or EU missions, and for helping regional partners to im- 4.3
prove their own capabilities.

The Federal Government will support regional organisations all over the world Section
enabling them to make their own contributions towards safeguarding peace and 4.3
security.

In conjunction with other donors, the Federal Government will work towards better Section
donor coordination, and will endeavour to play an active role in the resolution of 4.3
global causes of conflict.

The Federal Government will intensify its cooperation with non-governmental Section
actors in the area of peacebuilding, increase its use of existing platforms like FriEnt 4.4
(Working Group on Peace and Development), and further expand its network.

As the central interface to non-governmental actors, the Federal Government will Section
further consolidate and strengthen the Advisory Board for Civilian Crisis Prevention. 4.4
 Appendix 153

The Federal Government will place special emphasis on improving the knowledge Section
base for involvement in fragile contexts and for shared learning processes. To that 4.4
end, it will support the systematic promotion of regional studies and of peace,
security and conflict research, and will support innovative transfer formats to better
incorporate the results obtained in the Federal Government's work.

The Federal Government is committed to assuring a free and unhindered Section

­environment for the activities of civil society organisations and foundations in host 4.4
countries, and to better integrating business companies in its non-governmental
network of actors.

The Federal Government advocates systematic, impact-oriented monitoring, Section

and the corresponding evaluation of its involvement in crisis prevention, conflict 4.5
resolution and peacebuilding. By strengthening exchange on best practices, the
Federal Government aims to apply, in each case, the highest quality standards of
the government departments and implementing partners involved, and to develop
interministerial procedures.

The Federal Government is committed to promoting joint basic and further training, Section
and to tailoring its relevant programmes even better to the challenging tasks in 4.5
crisis countries.

The Federal Government will establish a learning platform for pooling and getting Section
the most out of the experiences gained from its involvement. 4.5

The Federal Government is committed to systematically following up on the appli- Section

cation and advancement of the Guidelines. 4.6

The Federal Government will submit a report on the implementation of the Section
Guidelines after four years and will review the Guidelines as its strategic basis for 4.6
peacebuilding after eight years, readjusting them as needed.

The Federal Government will cultivate a close exchange with the German Bundes­ Section
tag and actors from the peacebuilding arena. It will expand its communication with 4.6
the public, and will for that purpose set up a permanent interministerial working
group for strategic communication.
154 Appendix

Appendix 2: Index of abbreviations

ADB Asian Development Bank
AfDB African Development Bank
APSA African Peace and Security Architecture
AU African Union
BAKS Federal Academy for Security Policy
BGR Federal Institute for Geosciences and Natural Resources
BMBF Federal Department for Education and Research
CFF Concessional Financing Facility
CIM Centre for International Migration and Development
DAAD German Academic Exchange Service
DBK German Bishops’ Conference
DEG German Investment and Development Corporation
DEVAL German Institute for Development Evaluation
DGAP German Council on Foreign Relations
DIE German Development Institute
DRC Democratic Republic of the Congo
DSF German Foundation for Peace
EAD European External Action Service
EITI Extractive Industries Transparency Initiative
EKD Protestant Church of Germany
ELN Ejército de Liberación Nacional
EU European Union
EUCAP European Union Capacity Building Mission
EUTM European Union Training Mission
FARC Fuerzas Armadas Revolucionarias de Colombia
FriEnt Working Group on Peace and Development
FRONTEX European Border and Coast Guard Agency
GFDRR Global Facility for Disaster Reduction and Recovery
GFG Good Financial Governance
GI Goethe Institute
GIGA German Institute of Global and Area Studies
GIZ Deutsche Gesellschaft für Internationale Zusammenarbeit
GPPT Bilateral Police Project in Afghanistan
GSVP (CSDP) Common Security and Defence Policy
HSFK Peace Research Institute Frankfurt
IDB Interamerican Development Bank
 Appendix 155

IDPS International Dialogue for Peacebuilding and Statebuilding

ifa Institute for Foreign Relations
INCAF International Network on Conflict and Fragility
Instituto CAPAZ Instituto Colombo-Alemán Para La Paz
IRZ German Foundation for International Legal Cooperation
IS Islamic State
ICC International Criminal Court
IMF International Monetary Fund
LDCs Least Developed Countries
MENA Middle East & North Africa
MINUSMA Mission multidimensionnelle intégrée des Nations-Unies pour la stabilisation
au Mali
NAP National Action Plan on Business and Human Rights
NATO North Atlantic Treaty Organization
NIWS NATO Intelligence Warning System
OECD Organisation for Economic Co-operation and Development
OECD DAC OECD Development Assistance Committee
OSCE Organisation for Security and Cooperation in Europe
OVCW Organisation for the Prohibition of Chemical Weapons
PaRD International Partnership on Religion and Sustainable Development
PGF Programme-based joint financing
PTB Physical-Technical Federal Institute
R2P Responsibility to Protect
SMM OSCE Special Monitoring Mission to Ukraine
SPF State- and Peacebuilding Fund
SSR Security sector reform
SWP German Foundation For Science and Politics
UNDP United Nations Development Programme
UNHCR United Nations High Commission for Refugees
UNICEF United Nations Children’s Fund
UN United Nations
WFP UN World Food Programme
WHO World Health Organization
WTO World Trade Organization
ZFD Civil Peace Service
ZIF Center for International Peace Operations
Editorial Details

Published by
Federal Foreign Office
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10117 Berlin

As of
Juni 2017

Translated by
Federal Foreign Office

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