...of creating a peace and making it work:
<snip>
Making and Keeping Peace
Suzanne Werner
Associate Professor
Emory University
Atlanta, GA 30322
swerner@emory.edu
and
Amy Yuen
PhD Candidate
Emory University
Atlanta, GA 30322
ayuen@emory.edu
<....The author conludes with>
IMPLICATIONS AND CONCLUSIONS
The implications of this analysis are significant. We have extended recent discussions of the durability of peace by considering the recurrence of war as a distributional problem rather than solely as a problem of enforcement. While it is clear that in many instances the belligerents struggle with enforcement problems and may often fall back into war because they cannot trust each other to keep the terms of the agreement, in other instances, the belligerents deliberately choose war because they believe that a new war will lead to a better settlement than previously realized.
Whether the problem the belligerents confront is one best characterized by enforcement dilemmas or distributional problems, suggests very different strategies to help ensure the peace. If the problem is an enforcement problem—a mutually acceptable settlement exists but the belligerents struggle with credibly committing to its terms, then mechanisms like those highlighted by Fortna (2003) should help to institutionalize the peace. If the problem is a distributional problem—at least one belligerent believes that a renewed war could lead to better terms of settlement, then the appropriate response might be very different. The key to peace from a distributional perspective is to ensure that the belligerents share similar enough beliefs about the likely outcome of the war and that the settlement terms reflect those beliefs. Significantly, changes that occur after the settlement can make the original settlement terms obsolete as the belligerents change their beliefs about the outcome of a renewed conflict. As a result, to prevent a recurrence of conflict, the belligerents (with possible aid from third parties) must either make the terms of settlement flexible so that the terms can change as conditions change or make the costs of returning to war so high that the settlement is robust to any changes that may occur in the future. The results suggest that such flexibility or robustness is particularly important in instances where the information from the initial conflict is not completely consistent.
The analysis also suggests that third parties must be very careful when they pressure belligerents to ceasefire that they are not encouraging a de facto settlement that is not at all consistent with the belligerents’ beliefs about the likely course of the war. Encouraging, for instance, a ceasefire line along the antebellum division is unlikely to survive if one side was making significant advances during the course of the war. In such instances, while the belligerents may agree to the ceasefire temporarily to appease powerful third parties, at least one of the belligerents is going to resist pressures to institutionalize the peace. Rather than accept provisions like demilitarized zones or monitors that could create roadblocks for a renewed conflict, the belligerents bow to the pressure to ceasefire but anticipate the opportunity to renew the conflict.
An important caveat to this pessimistic analysis of third party intervention, however, exists. If the belligerents know that any renewed war will ultimately end the same as the first because the third party will again intervene and prevent a decisive victory by the stronger side, then there will be no expectation that a renewed war will lead to better terms and no incentive to break the peace. In this instance, the third party may be able to end the war without increasing the risk of recurrence. The problem is that in many instances third parties pressure the belligerents to ceasefire and then quickly lose interest leaving open the real possibility that a renewed war will turn out differently. In these instances, long-term success will depend not only on the initial will to stop the fighting but the perception that the resolve will last. We believe that these considerations are particularly relevant to our understanding of the termination and postwar stability of civil conflicts. While our analysis is currently restricted to interstate conflicts, the impact of third party intervention on intrastate conflict may be even greater. Increasingly, powerful third parties are attempting to make peace in intrastate conflicts. Our analysis suggests that their ability to create a lasting peace is in serious question given that the long-term commitment of third parties is often highly questionable.
As a final note, it is important to recognize that even if ceasefires that come about as a consequence of third party pressure are significantly more likely to fail, it is not necessarily clear that such pressure does not serve the interests of the belligerents or humanitarian interests more generally. On the one hand, our results suggest that ceasefires that come about as a consequence of third party pressure are significantly more likely to fail than ceasefires that come about without such external intervention. This implies that third party pressure to stop fighting can actually increase conflict and the associated costs by increasing the risks that the belligerents experience multiple conflicts. On the other hand, third party pressure to ceasefire can significantly shorten the original conflict. As a result, the costs the belligerents endure may be less for each conflict. It is not clear whether a single, lengthy conflict or several, shorter conflicts are more costly for the belligerents. What tradeoffs third parties or the international community are willing to make will clearly depend on the details of each individual conflict.
<see the entire paper at>
http://polisci.emory.edu/about/reiter/Werner%20Yuen.docI read that last paragraph as: Although cease-fires may not be the best way to resolve conflicts, Condi Rice should go for it, then hammer out the details of how to make it work for both parties.