Background Notes on The

Background Note: World Bank Headline Seminar on the Global and Regional Dimensions of Conflict & Peacebuilding, Addis Ababa, October 10 & 12, 2009

Organization of the American States

A Background Note

Dr. Carolyn Shaw

Wichita State University

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History

The OAS was founded in 1948 and is one of the oldest regional organizations, with roots going back to the Pan American system established 1889. It has long served as the premiere forum for hemispheric dialogue on issues ranging from security and economic development to human rights and legal cooperation. Throughout the Cold War, the OAS engaged in conflict resolution efforts, at times supporting intervention efforts, such as in the Dominican Republic in 1965 (following a coup). Member states, however, were largely reluctant to back actions that would provide a precedent for future U.S. intervention. Conflict resolution efforts were thus limited, and a regional response was not guaranteed. Following the end of the Cold War, however, the organization underwent revitalization and became much more active on many fronts, particularly in the area of promoting and protecting democracy.

Democracy has long been a principle articulated by the organization (OAS Charter, Article 2), but has only become a reality throughout the hemisphere in the past two decades, as military regimes have given way to democratically elected civilian governments. There are still many states where democracy is being consolidated and where governments face set backs, but the organization has put in place a series of mechanisms to respond to these threats to democracy. In June 1991 the OAS General Assembly adopted the Santiago Declaration with member states declaring their "commitment to the defense and promotion of representative democracy and human rights in the region." The Meeting of Foreign Ministers adopted the accompanying Resolution 1080 stating that "representative democracy is an indispensible condition for stability, peace, and development in the region". The Resolution created an automatic mechanism to convene the Permanent Council in the case of a "sudden or irregular interruption" of the democratic process or exercise of power by elected leaders, and was invoked four times during the 1990s (Haiti 1991, Peru 1992, Guatemala 1993, and Paraguay 1996). In September 2001, the General Assembly took further steps to promote democracy in the region by adopting the Inter-American Democratic Charter. Section I establishes the rights of people to democratic rule and the obligation of governments to promote and defend it. Section II links democracy and human rights. Section III declares that "democracy and social and economic development are interdependent and are mutually reinforcing", and that "poverty, illiteracy, and low levels of human development are factors that adversely affect the consolidation of democracy." The Democratic Charter establishes procedures to respond not only to formal disruptions of democracy (as in a coup), but also when democracy is seriously altered and at risk.

Structure

In keeping with the Democratic Charter, which advocates for "programs to promote good governance, sound administration, democratic values, and the strengthening of political institutions and civil society organizations", the OAS has recently undergone a number of structural reforms under Secretary General José Miguel Insulza. The organization is focused on four main pillars: democracy, development, human rights, and security, with a corresponding Secretariat for three of the four areas. All four areas are clearly linked together and help promote political stability within states as well as the region, stability that allows advances in economic development projects.

The Secretariat of Political Affairs oversees democracy promotion efforts with three different Departments. The Electoral Observation Department provides technical assistance to member states in modernizing and improving the quality of electoral services, strengthening the capacity for free and fair elections with transparency, reforming electoral legislation, and with certification, census updates, and voter registration. The Modernization and Good Governance Department has four major functions: 1) developing of public administration, 2) decentralizing government functions, 3) supporting legislative institutions, and 4) promoting transparency and governance. The Democratic Sustainability Department devotes its efforts to preventing and responding to political crises in the region. It provides advice and support to the Special Missions established by the Permanent Council to respond to threats to democracy.

The Executive Secretariat for Integral Development (SEDI) oversees Development programs including social development, human development, and sustainable economic development. Its mission is to promote intersectorial dialogue, public-private partnerships, and consensus building on policies for sustainable human development. Its priority areas include: strengthening human and institutional capabilities, supporting government policy formulation, developing mechanisms for citizen participation in decision making, creating mechanisms for collaboration and information exchange.

The Secretariat for Multidimensional Security is a newly established body that is responsible for activities relating to narcotrafficking (CICAD), terrorism (CICTE), disarmament, public security, and other related security issues.

The Inter-American Commission for Human Rights (IACHR) and the Commission for Women monitor human rights conditions. The American Convention on Human Rights came into force in 1978 and provides the operational framework for the IACHR and the Inter-American Court of Human Rights.

Recent Activities

Although the OAS Secretariat is focused on a wide range of activities to improve hemispheric relations and the lives of people in the region, one of its prime concerns is responding to potential and real threats of political instability within member states. These threats most often take the form of democratic irregularities. The year 2005 was a particularly challenging year for the OAS in this regard. Crises occurred in Bolivia, Ecuador, Nicaragua, and Haiti. In Bolivia, an OAS Special Mission team provided support for Presidential, legislative, and prefect elections as well as a referendum on autonomy and creation of a Constituent Assembly. The Special Mission in Ecuador insured the transparency in the selection process of justices for the new Supreme Court, following the dismissal of the court by a majority of Congress. In Nicaragua, the OAS facilitated an agreement between the president and the opposition, ending a tense standoff related to corruption investigations. One of the most challenging situations has been in Haiti. In 2005 and 2006, the Special Mission undertook activities in the areas of human rights, justice, security, and provided electoral support for the Presidential election. Much of the work in Haiti has been in cooperation with the UN mission there. The OAS was able to respond to the immediate crisis in each of the four cases and has continued to work toward long-term solutions addressing the underlying causes of instability. Most recently the OAS has been challenged with how to address the presidential crisis in Honduras.

Organizational Strengths

One of the strengths of the OAS is its ability to promote and strengthen democracy through electoral observation and technical assistance. The principles by which the Electoral Observation Department operates give it credibility, and it has considerable field experience (observation of over 140 elections since 1960). Its operational principles include conducting operations only at the invitation of member states, maintaining neutrality and respect for national legislation and national actors, utilizing standardized criteria and methods of observation, and incorporating gender perspectives.

The OAS also has a good reputation for conducting conflict mediation. There are times when the Permanent Council will make public statements in response to a crisis, but often the organization is engaged in quiet diplomacy. OAS special representatives are experienced, respected diplomats. They have political credibility and the trust of political actors to facilitate deeper dialogue and better options for a negotiated solution to conflicts than diplomats from outside the region. Many of the territorial conflicts between member states have been resolved through OAS mediation efforts in the past two decades, and more recent democratic crises have also been addressed. During the crises in 2005, the OAS was able to instill confidence among national stakeholders and facilitate dialogue. These outcomes were possible because of the willingness of national institutions to request OAS assistance.

A third positive organizational aspect is its comprehensive commitment to capacity building at all levels of government and society. Even when states are not experiencing a crisis, the OAS is working to develop and strengthen institutional capacities.

Finally, the organization benefits from a growing consensus within the hemisphere around shared values, including democratic governance.

Organizational Shortcomings/Challenges

Despite increased involvement of the OAS in conflict resolution and democracy promotion, there are still some challenges that the organization faces. One problem dates back to its founding: the presence of a regional hegemon as a member state. There are times when upholding the principles on which the OAS is founded does not coincide with US national interests (such as condemning the coup against Venezuelan President Hugo Chavez in 2002). This has led to some tensions within the organization, and has the potential to weaken its responsive capacity to such crises.

Members who are hesitant to unequivocally identify another state that is moving toward a crisis also weaken the organization. States want to uphold the principle of sovereignty. They are also reluctant to authorize the Secretary General to initiate preventive action measures although there is a clear recognition that this would be more effective in reducing domestic and regional instability than responding after a crisis occurs. The ad hoc crisis response system needs to be institutionalized.

In addition to challenges stemming from organizational principles and member interests, an external challenge is the popular frustration with the open market reforms that have not brought fast, visible, or sufficient improvement in people's lives. OAS member states are challenged with trying to reduce domestic inequalities, discrimination (largely against indigenous peoples), and corruption. As Assistant Secretary General Ramdin notes "the mother of all crises in the region is the combination of demands and freedoms of democracy, and poverty and inequality".

Future Direction

The OAS should establish deeper working relationships with other organizations. One such relationship that is under development is with the UN Peacebuilding Commission, working to establish a more holistic approach to peacebuilding and extending the OAS' capacity to respond beyond the immediate crisis. Their work has overlapped closely in the case of Haiti.

The interests of the OAS closely parallel the World Bank's strategy for Latin America and the Caribbean, in particular the emphasis on increasing opportunities for all citizens and strengthening institutions and governance. Future projects might be focused on rural districts, especially the support of micro-enterprises.

Additional Considerations

• Neighboring states can have a strong impact on a crisis situation. What role should regional hegemons play in these situations?

• What is the appropriate balance in decentralization efforts? Local governments can play a critical role to promoting socio-economic development and democracy, but often have weak initial capacity.

• Several of the unstable situations in Latin America have been linked to efforts to root out corruption (Ecuador, Nicaragua). What role do corruption and anti-corruption initiatives play in destabilizing politics?

• International organizations should consider how they can gain popular confidence enhancing cooperation. The media can play a key role.