...been mounted trouble spots worldwide; in Africa, the majority of operations were conducted in situations of internal conflict. While such intervention has led to cessation of hostilities, it has not necessarily resulted to a permanent peace nor has it fully addressed the factors that led to the conflict in the first place. The reasons for this shortcoming have to do with the causes of the conflict, the peacekeeping mandates, the structure and composition of the missions, and the perceived role of the United Nations in mediation. Many conflicts remain only superficially resolved, with all the elements for a relapse remaining intact. In fact, in some countries hostilities flared as soon as the United Nations left, as was the case in the Central African Republic and Haiti.

The United Nations must find a formula that will allow a successful transition from peacekeeping to peacebuilding and consolidation. But it is not presently structured to easily identify where to place this mandate within the Organization. The Security Council's mandate is clearly defined and limited to issues of global security, and peacebuilding goes beyond the need to secure the peace. It encompasses interventions that derive from a development mandate, which is the purview of the Economic and Social Council. This gap has been recognized over the years, leading to serious reflection on what is needed to invest the United Nations with the capability and capacity not only to make the peace but also to maintain and sustain it.

UN peacekeeping missions in internal conflicts are mounted when there has been a near-total breakdown of law and order: Governments have lost control; civilians are at the mercy of the warring parties; women, children and other vulnerable groups face extreme hardships; and there appears to be no end in sight. In many cases, government security capabilities would have been completely lost, and peacekeeping missions would be expected to provide security, secure public institutions and perform civilian police functions. The UN mission would have to monitor and enforce ceasefire and, if necessary, organize discussions or meetings, even if the mediators might be external actors. The mission is the eyes and ears of the international community in the conflict area and as such must constantly monitor the situation and present regular reports to the UN Security Council.

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