A. Walter Dorn (ed.), Air Power in UN Operations: Wings for Peace. Farnham: Ashgate, 2014. Figures. Tables. Notes. Index. Pbk. £28. pp. xxxv + 350.
The use of air power as a tool by state actors is a regular theme examined by historians and policy specialists alike. However, the use of air power by non-state actors, in particular intergovernmental organisations, is a different matter, though depending on one’s perspective, the United Nations (UN) – the subject of this volume – can be viewed as either a state or non-state actor. In this volume, A. Walter Dorn, Professor of Defence Studies at the Royal Military College of Canada, has brought together an impressive line-up of scholars and practitioners to consider how the UN has used both kinetic and non-kinetic air power as a tool for peacekeeping operations. Indeed, the narrative of UN peacekeeping operations generates images of soldiers in blue helmets on the ground. However, as this book ably demonstrates, air power has been a vital element of UN operations since the creation of its first “Air Force” in 1960.
The book examines of the use of air power by the UN since 1960 through to Operation UNIFIED PROTECTOR – the air operations over Libya by NATO in 2011, which enforced UN Security Council Resolutions 1970 and 1973. The book consists of 17 chapters split over six thematic areas: The UN’s First “Air Force”; Airlift; Aerial Surveillance; No-Fly Zones; Combat and evolving capabilities. The latter aspect looks at some of the challenges for the UN in the future. Indeed, by splitting the analysis into the aforementioned themes, Dorn et al illustrate that UN air operations cover the broad spectrum of roles readily identifiable in modern air power doctrine: control of the air; attack; situational awareness and air mobility. It also ably illustrates the challenges and potential contradictions of ‘Ends’, ‘Ways’ and ‘Means’ in UN strategy and peacekeeping operations. As Dorn notes in his preface, ‘While peacekeeping is meant to de-escalate violence, it is sometimes necessary to use force to stop force.’ (Emphasis in original) (p. xxvi). As such, in order to meet the ends desired by the UN – the cessation of violence between, states, groups or organisations – it is often necessary to utilise air power’s various capabilities – the ways – in order to moderate and influence the behaviour of the parties involved. Therefore, air power offers a toolkit to try to support the enforcement of UN Resolutions. Indeed, as Robert C. Owen’s chapter on Operation DELIBERATE FORCE in 1995 (pp. 231-40) and Christian Anrig’s piece of Libya in 2011 (pp. 255-82) illustrate air power can be a useful tool in shaping behaviour. DELIBERATE FORCE ensured that the Bosnian Serbs complied with UN Resolutions and put the UN in a position to shape the Dayton Accords (p. 236). However, this, in itself, was only possible due to the technological changes, such as the emergence of Precision Guided Munitions, which allowed the multinational air forces involved in DELIBERATE FORCE to conduct a humanitarian war. Had the air forces involved been equipped with ‘dumb’ weapons then the diplomatic fallout from collateral damage would have, potentially, hindered the ends sought by the UN. Similarly, in 2011, air power offered the UN the means to apply military force in order to level ‘the playing field’ (p. 280) in the defence of civilians during the Libyan Civil War. Furthermore, unlike in DELIBERATE FORCE, air power – as the means of applying military force – was the key tool for both the UN and NATO because UN Security Council Resolution 1973 forbade the use of occupying forces in Libya. However, it should also be remembered that air power was not used in isolation, and that it worked with naval forces and special operations teams to achieve the ends desired by the UN.
Importantly, this volume does not avoid discussing some of the challenges inherent in the application of air power by the UN. As with any forces it deploys, the UN is reliant on the support of its member nations to provide the ways and means to achieve its ends. At the time of publication (2014), the UN deployed around 200 to 300 aircraft to provide air support for peacekeeping missions (p. 283). Not only is relying on member states to willingly supply forces a risky strategy – states tend to only support those missions viewed to be in its own interest – it is also very expensive as the UN pays for the use of lease of both military and civilian aviation assets to achieve its ends. Some of these challenges are considered in the final section of the book on ‘Evolving Capabilities’ (pp. 283-316).
This fascinating book highlights the many challenges concerning the application of air power in the context of peacekeeping operations. It considers both some of the practical challenges of deploying air power into theatre to the many diplomatic considerations that affect the use of air power as a policy tool for the UN. Clearly, air power is not always the answer; however, as part of a toolbox of political, diplomatic, economic and military means, air power can provide the ways to achieve the ends sought by the UN if applied correctly. Finally, it is worth reflecting that many of the lessons found in this book should not be considered as unique to the UN, but can also be applied to peace support operations undertaken by individual sovereign nations. Indeed, David Neil’s chapter of Unmanned Aerial Vehicles (pp. 147-64) highlights some of the regulatory challenges concerning their use, which are just as important to national air forces as they are for the UN.