UN radio and peacekeeping missions: providing a bridge from war to peace.

The 1945 Constitution of the United Nations Educational, Scientific and Cultural Organization highlights that "since wars begin in the minds of men, it is in the minds of men that the defences of peace must be constructed". Wars are fuelled by the behaviour and attitudes of one party towards the other and so is sustainable peace.

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Many scholars and practitioners believe that the quality of information or the level of misinformation plays a significant role on a population's perception of possible political outcomes, and that this perception can ultimately be translated into action. The destructive effects of information mismanagement in the Balkans and Rwanda are painful reminders. Therefore, reliable and credible information is a basic need for populations affected by war or emerging from it. However, it is hard for local media to operate in countries that have had their infrastructure destroyed by war; also, a free and independent media might not be present. This awareness has contributed to the increased use of media-based strategies by United Nations missions to bridge the information gap existent in their host societies.

Although other types of media, such as television and newspapers, also have the potential to contribute to peace-building efforts, it is radio that has been most widely used, largely due to practical matters, such as available infrastructure in pre-conflict, wartime and post-conflict stages and levels of literacy. The wide reach of radio also plays a role in its selection and prominence as a peace-building tool. Indeed, as Sheila Dallas of Radio UNAMSIL of the United Nations Mission in Sierra Leone points out, "the UN is good at dealing with Governments, but to deal with the people at the grass-roots level, this is where the radio comes in".

As time goes on, Security Council resolutions that establish mission mandates have increasingly highlighted that UN missions hold the right to produce programmes or set up radio stations. However, their direct use of media is a fairly recent phenomenon and is closely related to the United Nations more comprehensive and long-term approach to peace-building in post-war societies since the end of the cold war, whereby missions involve more civilian components, with a view to tackle the psycho-social effects resulting from the war. It is, therefore, not coincidental that a change has occurred since the United Nations produced its first mission-related radio and television programmes in Namibia in 1989. In 1992, it took the ground-breaking decision of establishing its first broadcasting facility on the ground as part of the United Nations Transitional Authority in Cambodia. The main task of Radio UNTAC was to clarify its mandate and support the peace and electoral process under way in the country. Although it is not possible to assess the real impact of this initiative, all concerned parties believe that it played a significant role in the 90-percent turnout for the 1993 elections. Since then, programmes have become increasingly specialized, often targeting women, children and former combatants.

Generally, UN stations and programmes first address the immediate information needs of people affected by war, such as: the disarmament, demobilization and reintegration (DDR) process; where to find shelter, water and food; and clarifying the mission mandate and peace agreements. Passing the emergency relief phase and moving towards post-conflict peace-building, programmes can then address issues permeating society, such as children's and women's rights, upcoming elections and transitional justice.

Although such a framework is generally used, each mission accordingly adapts its productions to local culture and necessities. Certainly a very important component is the involvement of grass-roots actors and civil society. For instance, tapes of radio programmes produced by the UN Verification Mission in Guatemala (MINUGUA) (see page 68) were distributed to community stations in an effort to support the stations' work and increase the programmes' outreach. It is believed that such inclusion creates ownership of the peace-building process, engaging the population in efforts taken towards democratization. Moreover, it reflects an increasing partnership between the United Nations and civil society, which empowers rather than victimizes civilians. In addition, such projects support a culture of good practice and ethics within local media, ultimately improving the standards of professionals and the advocacy for a free and independent media.

Besides benefiting from capacity-building, local staff members help to highlight cultural sensitivities and develop programmes that are more relevant to the target audience. Those running UN radio on the ground agree that, when necessary, programmes should be broadcast in local languages, an inclusive approach that increases the reach of UN messages. Gail Bindley-Taylor Sainte, Chief of Public Information of the United Nations Mission in Ethiopia and Eritrea (UNMEE), said that the use of different languages in its programmes, for example, helped a team to gain access to a monastery in a fairly remote area of Eritrea. "The guy knew who they were, because he had listened to the radio", she recounts.

Another way of expanding the scope and reach of production and addressing the shortcomings of a small budget is through cooperation with local and international non-governmental organizations (NGOs) working in the area. For Seda Pumpyanskaya, Chief of Public Information of the recently closed MINUGUA and who has also been involved with UN radio and television projects in Bosnia and Herzegovina and Kosovo, partnership at different levels is a recipe for success. In Guatemala, all UN radio and television production and broadcast were outsourced. She pointed out that the main advantage was the low cost, as the United Nations did not have to acquire equipment. At the same time, such an approach did not affect the level of reach or quality of programmes. On the contrary, Ms. Pumpyanskaya said, it created quality productions for radio, TV and the Web, such as her favourite "Rostos de Paz" (Faces of Peace), a series that targeted social issues through "people stories". She remembered that one of the first issues brought together a former commander and a guerrilla fighter, who were born in the same village and grew up together but who chose different sides. Here, media served as a mediator between differing views and encouraged expression of differences through dialogue rather than violence.

In the case of the United Nations Organization Mission in the Democratic Republic of the Congo (MONUC), Radio Okapi has been developed and funded in partnership with the Swiss NGO Fondation Hirondelle. It was a much-needed development, as the country did not have any other radio outlets. Thanks to the partnership, Radio Okapi has enjoyed a fast-paced evolution since its creation in 2002 and currently comprises, besides its main studio in the capital Kinshasa, eight regional stations, 20 FM and three short-wave transmitters, reaching a large part of the territory. It also reaches the Congo's Diaspora through its Web broadcasts.

Through a different kind of partnership, UNMIL Radio of the United Nations Mission in Liberia has contributed to peace-building goals. Joseph Roberts-Mensah, Chief of the station, has developed the "Reach Out" programme directed at family tracing, in cooperation with UNICEF and the International Committee of the Red Cross. The radio-based effort has been recognized by Jacques Paul Klein, Special Representative of the Secretary-General in Liberia, as a major contribution in reuniting over 90 per cent of former child soldiers with their families. In a country where the communications infrastructure is barely functional, "United Nations radio is the only 24-hour-a-day radio station that reaches into some of the hinterlands", said Mr. Klein. However, there are also great challenges facing UN radio in the host society, the greatest probably being to get the general public's interest and trust. For that reason, it is necessary to build credibility within the population through truthfulness. Mr. Roberts-Mensah noted that such programmes are also a strategic tool to dispel rumours. "If there is a rumour of a riot, for instance, we can check with our regional offices and have officials talk on the radio to deny it."

Another good formula is to make programmes entertaining, thus the increased use of radio drama, as it provides a fictional context in which to discuss controversial real life issues that might otherwise be left aside. By creating dialogue, it represents a great opportunity for a society torn by war to normalize the practice of resolving conflicts peacefully. An interesting example is UNMIL Radio's characters "Sheriff and Hannah". Sheriff is a former combatant who goes through all phases and challenges of the DDR process. Whenever he is doubtful of its worth and is considering to take back arms, his wife Hannah reasons with him that such a decision would have bad consequences for their lives and the future of the country. Such a programme not only addresses issues permeating the lives of former combatants but also empowers women, setting an example for their voices to be heard.

Music is also useful to grab the attention of youngsters. Sheila Dallas, Station Manager and Executive Producer of Radio UNAMSIL, broadcast music from all around the world for three weeks before including jingles that clarified the peace agreement and the Mission's mandate. Organizations working behind the rebel lines reported back to the station, saying that rebels listened to what was being broadcast. Indeed, "when the West Side Boys [part of a rebel faction] came out of the bush, they credited Radio UNAMSIL with broadcasting credible information clarifying that they wouldn't be imprisoned", she said.

Further challenges are posed if there is not a culture of free and independent media in the host country, or the mission mandate does not clearly specify its right to use radio-based strategies. In such a scenario, Ms. Bindley-Taylor Sainte says, creativity plays a central role. It is necessary to be aware of and use all windows of opportunity. She suggests that a multimedia approach is especially useful in these cases, including, for instance, video mobile units that visit isolated communities, and regional outreach centres where people can go to listen to radio programmes.

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Although a lot of discussion goes on about the appropriate model of media intervention, most believe that approaches must be designed on a case-by-case basis. Whether the United Nations produces and distributes programmes through local broadcasters or its own facilities, what types of productions are made will depend on the context of the mission, including available funds, relations with local actors, logistics and present infrastructure. Nevertheless, one characteristic is present in all projects: the United Nations always controls the editorial content. This practice helps to uphold the UN principles through the professionals it hires and in case programme production and broadcast is outsourced.

Cooperation between the missions and UN Headquarters is a core element of radio projects. It often starts from the mission's planning stage, when public information experts take part in the reconnaissance team to assess the information environment. After the mission is established, Headquarters staff help to find and move equipment and provide professionals, in addition to organizing training on specific issues. For instance, in December 2003, the UN Department of Public Information organized in Dakar a discussion on communications strategy for DDR involving peacekeeping and information experts. In some cases, the central news service has created tailored magazines for the missions, and often the radio stations broadcast general programmes produced in New York. Also, professionals working at both ends consult each other on a regular basis, avoiding the risk of misinformation. Currently, UN Radio is at work in United Nations missions in the Democratic Republic of the Congo, Ethiopia and Eritrea, Kosovo, Liberia, Cote d'Ivoire, Burundi and Sierra Leone, and is developing projects in Timor-Leste and Haiti.

By Juliana Ribeiro, for the Chronicle