Broadening perspectives on inclusive peacemaking: the case of the UN mediation in Syria

Abstract

Civil society inclusion has become a widely accepted norm in international peacemaking. Scholars have analysed the impact of inclusion on mediation effectiveness, mediators’ rationales for broadening participation, and the different modalities to include civil society actors. Drawing on the concept of the ‘agency of the governed’ in norms research, this article examines the inclusion norm from the perspective of civil society actors. It conducts a case study of the United Nations (UN) mediation in Syria based on 41 interviews gathered between 2018 and 2020. The article shows how Syrian civil society actors perceived inclusion and compares these views to the dominant international narratives on inclusion. It demonstrates that the link between inclusion and effectiveness is conditional, and that inclusion risks – under certain conditions – to lower legitimacy, disempower civil society, and entrench conflict lines. The article thereby nuances arguments about how inclusion leads to effectiveness by broadening the perspectives on inclusive peacemaking. It has crucial practical implications because mediators may decide on whether and how to design inclusive processes, but civil society actors ultimately determine the effectiveness of such inclusion attempts.