Book Reviews

Glassner, Ira Martin. The United Nations at Work. Westport, CT, London: Praeger, 1998. Pp. xx, 340. Index.

The last two decades, at least, have witnessed a proliferation of literature on the United Nations. While some dismiss the ideal of multilateralism and, by extension, the United Nations, as untenable, others, maintaining an abiding faith in the United Nations, offer reform proposals. In The United Nations as Work, Glassner's goal is to fill a gap in the existing body of literature by providing an analysis of `the UN's practical, everyday activities'. The book is a continuation and an expansion of the author's earlier work that appeared in the journal Political Geography.<sup>16</sup> Contributors to the book, according to Glassner's criteria, had to be persons `with either a solid reputation in his field or considerable UN experience' and who were not present employees of the UN or of any body within the UN system (pp. ix-x).

Divided into four parts and 13 chapters, the book examines a wide range of topics in international law, from international waterways, the outer space, environmental protection and trade to human rights. Part I focuses on International Law, Part II on International Relations, Part III on Individuals, and Part IV on Prevention and Resolution of Conflict. After an introduction by Glassner, Caflisch Lucius leads off in Chapter 1 with an examination of attempt by states to regulate the non-navigable uses of international waterways, from a 1961 resolution adopted by the Institute of International Law in Salzburg¹⁷ to the recent Convention on the Uses of International Watercourses Other than Navigation.¹⁸ How effective will the new Convention be? Calfisch is not too optimistic for two reasons: first, because `the number of affirmative votes barely exceeds that of the ratifications and accessions required to bring the Convention into force'; second, because `it is uncertain whether there will be sufficient number of downstream and upstream countries Parties to the Convention, so that the new instrument can serve its purpose' (p. 26).

The expansion of the UN's activities into areas not specifically mentioned in its Charter has become a feature of our time - a necessary evil, some would argue. In Chapter 3, Djamchid Momtaz examines the work of the UN in one such area - the field of environmental protection. His focus is on the UN's role in the progressive development of international law in this field and the work of two bodies central to the UN's activities in the area: the United Nations Environment Programme (UNEP) and the United Nations Commission on Sustainable Development. Ultimately, Momtaz's piece offers valuable insight into the role of the UN in international norm creation. Sherry M. Stephenson's task in Chapter 5 is to present an overview of international trade within the UN system. This she does by tracing the growth of international trade over the past 40 years and the role that various institutions within the UN have played in the field.

In Chapter 7, Hungdah Chiu takes up a rather unpopular, if not `untouchable', issue in international politics today: the status of Taiwan in the United Nations. Tracing the early role played by the Republic of China in the crafting of the UN, he concludes that `by a fair standard of international law, moral principles and common sense, the exclusion of the Republic of China and its 21 million people from participation in the United Nations and its specialized agencies is an injustice in the world today' (p. 168).

The idea of a global civil society is one that has gained currency in recent times. Yet what impact non-governmental organizations (NGOs) actually have in the international arena remains unclear and highly contested. Peter Uvin and Thomas G. Weiss, in their piece, `The United Nations and NGOs: Global Civil Society and Institutional Change', offer an analysis of the increasing role of NGOs in international affairs and within the UN system. The authors' goal is to analyse `the myth and the reality of the relations between the United Nations (UN) and NGOs' (p. 214).

Other topics covered in the book include: `The United Nations and International Space Law', by Vladmir Kopal; `The Protection of Minorities', by Budislav Vukas; `The United Nations and the Trade and Transit Problems of Land-locked States', by Surya P. Subedi; `International Migration: UN Moves', by William B. Wood; `A Note on Some UN Achievements with Special Reference to the World Food Programme', by D. John Shaw and Sir Hans W. Singer; `Contributions of the United Nations to Solving Boundary and Territorial Disputes, 1945-1997', by Victor Prescott; `The United Nations, the Oceans and Some Geography', by Shabtai Rosenne; and `United Nations Peace-Maintenance', by Jarat Chopra.

Perhaps, having as its goal simply to present to the reader `what the UN actually does' (p. xi), most of the contributors refrain from passing any critical judgment on the work of the UN; (indeed it was Glassner's intent to produce a book that was `neither condemnatory nor celebratory'). Some do so nonetheless. Stephenson would give the UN what appears to be an `A' for its role in the promotion of international trade: `the success of the international trading system has become one of the most positive accomplishments of UN's post war system' (p. 106). On what does she base her judgment? On what, arguably, is a rather controversial standard: `a truly global economy of unprecedented magnitude, a true integration of the international market-place'. Despite his lack of optimism about the prospects of the Convention on the Uses of International Watercourses Other than Navigation, Calfisch is quick to absolve the UN of blame: `if, in the end, the result does not live up to its expectation, that is due to the lack of agreement among its member states rather than any failings of the organization' (p. 26). However, on the role of NGOs in the international system, Uvin and Weiss are more guarded. While NGO pressure can lead to greater openness of the UN institutions, `UN organizations - and the (powerful) governments behind them - remain firmly in control of policy-making', they conclude.

Given the broad range of activities the United Nations is involved in today, it would be difficult to expect a book of this nature to cover all aspects of the UN's work. The work of the UN with traditionally marginalized groups such as women and children is, regrettably, noticeably absent. Also noticeably absent are women's voices among the authors. Of the 15 contributors, only one is a woman, perhaps reflecting charges by women's groups that, despite repeated calls for reform, the UN has remained a men's club.

Nonetheless, The United Nations at Work puts in the hands of readers, clear and concise accounts of the UN's work in a wide variety of issues, many of which are contemporary, controversial or otherwise ignored or trivialized. Its strength lies in the analysis of more novel or ignored issues in international law (for example, space law, waterways, transit problems of landlocked states) and the UN's work in these areas. Moreover, at a time when global security concerns cloud any assessment of the UN, the book offers insight into those aspects of the UN's work that may never make the headlines.

Uché Ewelukwa
Harvard Law School

16 15 Political Geography (March-April 1996).

17 Resolution on the `Utilization of Non-Maritime International Waters (for Purposes Other than Navigation),' 49 Annuaire de l'institut de droit International (1961), at 381.

18 GA Res. 51/229 of 22 May 1997.

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