Governing the Ungovernable
Jordan Ryan
May 11, 2026
Image: Osugi / shutterstock.com
Where does real power reside in the UN development system? A new policy brief from Cepei, a Colombian development policy institute, and the German Institute of Development and Sustainability (IDOS), presented earlier in May, poses this deceptively simple question. The answer matters because institutions that cannot govern fairly or transparently struggle to sustain legitimacy, and legitimacy is essential for peace.
The Cepei-IDOS diagnosis identifies a “triple disconnect” that structures contemporary development governance. Formal oversight bodies (the Executive Boards, ECOSOC, the General Assembly) set policy directions but control only a fraction of financing. Real resources flow through bilateral arrangements between major donors and agency leadership, operating largely beyond collective scrutiny. The ten largest donors shape system priorities through informal channels of influence. Meanwhile, the programme countries that host the vast majority of UN development operations report significantly weaker upstream influence than traditional donor states. This misalignment between authority, resources and voice is no longer incidental. It has become embedded in the way the system operates.
What transforms this observation from an efficiency problem into a peace imperative is the reality that ungovernable systems cannot respond to prevention and peacebuilding needs. A development architecture shaped disproportionately by donor priorities and limited programme-country voice lacks the legitimacy, flexibility and democratic accountability required to address the structural drivers of conflict. When host countries experience UN operations as imposed rather than negotiated, and when funding priorities reflect donor interests rather than local prevention priorities, the development system becomes an actor in grievance production, not prevention.
The governance–legitimacy nexus works in both directions. Ungovernable institutions erode the multilateral system’s credibility in the Global South. Successive rounds of ineffective UN reform, driven by incremental adjustments within existing power structures, signal to programme countries that the system is designed to resist their inclusion. This perception is strengthened when donors can navigate around formal governance bodies through bilateral arrangements. Over time, institutional opacity breeds delegitimation. The UN is then weakened as a platform for both development cooperation and conflict prevention, because confidence in its democratic character has fractured.
The Cepei-IDOS brief positions the first 1000 days of the next Secretary-General’s term as a narrow window for visible structural change. The argument is neither revolutionary nor naive. It does not propose wholesale redesign of the UN system. Rather, it suggests that an incoming Secretary-General with political capital and an informed strategic agenda can make power visible, realign financial flows with governance decisions, strengthen coordination across fragmented programme delivery, and treat programme country inclusion not as charitable consultation but as an operational requirement. Small shifts in how decisions are made, where resources are allocated and whose voice is heard can accumulate into meaningful redistributions of power.
For those committed to multilateral peace and development, the brief is important precisely because it refuses the false choice between institutional realism and structural ambition. It recognises that the current system is durable and resistant to change. It also demonstrates that durability does not mean immutability. The Secretary-General occupies a unique position to convene, name problems and propose sequenced shifts in practice. Whether that role is exercised for incremental adjustment or for visible realignment of power depends on the strategic choices made in the first 1000 days, when institutional attention is high and political mandates are fresh.
The launch event captured something essential about the moment. Participants acknowledged that the system is ungovernable as presently designed while recognising that accepting that reality is not the same as accepting its inevitability. The brief itself can serve as an anchor for what peace advocates and policymakers need to argue in the months ahead: that the next Secretary-General should treat governance reform not as a technical fix but as a peace imperative. When multilateral institutions are trusted by the countries they purport to serve, they become more effective instruments of prevention and cooperation. When they are experienced as vehicles for donor capture, they become part of the problem they claim to address.
If the next Secretary-General treats governance reform as a peace imperative rather than a technical exercise, the UN development system can begin to rebuild the legitimacy it is steadily losing among the countries and communities it exists to serve.
Related articles from this author:
The Secretary-General This Moment Demands (10-minute read)
From Reform to Reinvention: Reimagining the United Nations for the 21st Century (10-minute read)
The UN’s Withering Vine: A US Retreat from Global Governance (3-minute read)
