Bureaucratic identity in international organizations: competing visions of representation in the staffing of United Nations peace operations

Abstract

The research presented in this thesis applies insights from theories of representative bureaucracy to international organizations, using the case of the United Nations Secretariat, to explore how representative features of international civil servants impact on the legitimacy and performance of peace operations.

Specifically, the research reveals different factors that shape civilian staffing in UN peace operations, and the conflicting normative and operational demands about what staff should represent. In doing so, the study complicates nationality as the primary representative feature of bureaucratic representation in both the policy and academic literature. By focusing on recruitment in-practice, the study illustrates how the normative goals of formal policies - including equitable geographical distribution and gender parity – are muddied by internal cultures and informal decision making that relies on networks of trust and personal relationships.

Using historical analysis of policy documents, member state position statements in the UN General Assembly, a case study of an attempt to change the staff regulations and rules, as well as interviews with UN staff and diplomats, the research focuses on two distinct yet intersecting layers of UN bureaucracy. Firstly the “political” level: decision making by member states of the United Nations on human resources through the General Assembly budget process.

The second level is civilian mangers – in both UN headquarters and peace operations - involved in recruiting staff. How do they operationalize the human resources framework - such as policies requiring gender parity? What are they looking for in a staff member and in what ways are representative features important to them? Are there different expectations among occupational groups and offices? And is experience of the system more important than specific qualifications and expertise?

The research concludes that representative bureaucracy in UN peace operations is limited by a series of related structural and operational tensions: between and among member states, between headquarters processes and operational demands, between categories of personnel, and between requirements for “street level” type bureaucratic functions and elite-based structures.

This complex picture of representation highlights that a more expansive and inclusive understanding of representation – beyond primary identities of nationality and gender- could enhance the legitimacy and performance of UN peace operations – both externally and internally.

Thesis is embargoed until 31st July 2024

Date of Award	Jul 2022
Original language	English
Sponsors	Department for the Economy
Supervisor	Karl O'Connor (Supervisor) & Maire Braniff (Supervisor)