Portugal's António Guterres has put forward a sweeping seven-point plan to overhaul United Nations peacekeeping operations, a move that could reshape how international missions operate in conflict zones worldwide—and marks one of his final major initiatives before stepping down as UN Secretary-General later this year.
Why This Matters
• Global conflict levels have hit their highest point since 1945, with 61 active wars globally and over 181,000 deaths in combat in 2025 alone—six times higher than in 2008.
• Peacekeeping missions are struggling with outdated mandates, a $2 billion funding shortfall, and new threats including drones, AI-powered weapons, and transnational criminal networks.
• The reform proposal emphasizes preventive diplomacy, clearer exit strategies, and stronger regional partnerships—especially with the African Union—to make missions more agile and cost-effective.
Speaking to member states in New York, the former Portugal Prime Minister unveiled the reform blueprint just months before his decade-long tenure concludes. The 118-page review, titled "The Future of All Forms of United Nations Peace Operations," responds to what Guterres called "new and dramatic realities" in a world where conflicts have become more internationalised, prolonged, and lethal.
The Seven-Point Blueprint
Guterres's reform architecture rests on seven pillars designed to modernise how the organisation deploys its famed blue helmets across volatile regions. First, preventive diplomacy takes priority over troop deployment. The Portugal-born diplomat argued that military missions should be reserved for extreme scenarios, with the Secretary-General's good offices and envoys leading conflict-resolution efforts upfront.
Second, the plan calls for partnerships with host nations to be strengthened significantly. Lasting peace, Guterres stressed, must ultimately come from within—external forces can only create space for dialogue and political solutions. Third, missions must have focused and adaptable mandates with measurable objectives, regular assessments, and exit strategies planned from the outset. The Secretary-General was blunt: "Peace operations should only be deployed when there is a peace agreement or at least a robust ceasefire in place. We cannot keep a peace that does not exist."
The fourth pillar demands a clear division of labour across the UN system and the wider international community to avoid duplication and align objectives with national actors. Fifth, operations must become more agile, supported by flexible administrative structures, clear command chains, and robust planning processes—a departure from the bureaucratic inertia that has plagued some missions.
Sixth, the blueprint prioritises efficiency and accountable resource management, with a zero-tolerance policy for misconduct by personnel in the field. Finally, Guterres urged stronger regional partnerships, singling out collaboration between the United Nations and the African Union as an "excellent example" of effective cooperation. The AU has taken on increasing responsibility for security on the African continent, though it faces persistent funding challenges and relies heavily on external donors.
Technology and the New Battlefield
The reform recognises that peacekeeping forces, designed for an analogue world, must now contend with digital-age warfare. Modern conflicts feature armed drones, lethal autonomous weapons systems, and the interference of transnational criminal networks—challenges that were barely imaginable when many current mandates were written. The plan calls for technological readiness and emphasises ending impunity for those who attack UN peacekeepers.
This technological gap is not theoretical. In multiple theatres, disinformation campaigns—some linked to groups like the Wagner Group (now rebranded as Africa Corps)—have undermined mission credibility and complicated operations. Portugal-based analysts note that the UN's capacity to counter these hybrid threats lags far behind state actors and even some non-state armed groups.
The Financial Crisis
The reform arrives amid what Guterres described as an "unsustainable" financial situation. The UN Peace Operations budget for 2024-2025 was set at $5.6 billion, but a $2 billion shortfall has crippled operational capacity. The UN Peacebuilding Fund alone faces a €431 million gap and cannot meet demand from member states requesting support.
Guterres urged members to either fulfil their financial obligations or reform the budget rules entirely. Without predictable, adequate, and flexible funding—particularly for African Union missions, which the UA has long sought—the system cannot function effectively. Some Portugal-based international law scholars argue that mandatory contributions for regional missions could ease the burden on UN coffers while empowering regional actors better positioned to understand local dynamics.
What This Means for International Stability
The proposals come as geopolitical fragmentation deepens. The proportion of conflicts resolved through peaceful agreements has fallen to its lowest level in decades, and the number of countries involved in external conflicts has nearly doubled since 2008, reaching 103 nations in the 2026 Global Peace Index. Over 117.8 million people are forcibly displaced worldwide, and the economic impact of violence has climbed to $21.81 trillion—equivalent to 10.5% of global GDP.
For Portugal, a nation that has historically contributed both personnel and diplomatic expertise to UN peacekeeping, the reforms carry particular resonance. Portuguese troops and police have served in missions from East Timor to the Central African Republic, and Guterres's tenure as Secretary-General has been a source of national pride. His emphasis on regional partnerships also aligns with Portugal's ties to former colonies in Africa and its role in Lusophone forums.
The Path Forward
Guterres was explicit that peacekeeping operations are, above all, political instruments. They cannot substitute for political agreements or impose peace where none exists. The review urges member states to use the blueprint when considering options to adapt UN peacekeeping for a transformed world. "We need to adapt to a changing world. And together, we need to find the will—and the resources—to forge pathways toward peace," he concluded.
The Secretary-General will hand over leadership of the organisation when his second five-year term ends in December, leaving behind a legacy shaped by crises in Ukraine, Gaza, Sudan, Myanmar, Yemen, and the Democratic Republic of the Congo. Whether member states—particularly the five permanent members of the Security Council, whose inflexible demands and veto threats have paralysed decision-making—will embrace the reforms remains uncertain.
One measure of success will be the inclusion of women in peacekeeping roles, which the plan identifies as essential. Another will be whether missions can shift from reactive deployments to preventive diplomacy, reducing the need for costly military interventions. The blueprint is ambitious, but it confronts a stark reality: the world now faces more deadly conflicts than at any point since World War II, and the tools designed to manage them are badly outdated.
For residents of Portugal watching the global stage, the reforms represent both a diplomatic challenge and an opportunity. If adopted, they could reshape how international security is managed for decades—and offer a model for multilateralism in an era of deepening fragmentation. If ignored, they may serve as a final warning that the post-1945 peace architecture is no longer fit for purpose.
