Beyond the Assembly Hall: Revealing the Other Side of the UN
Adediran Babajide, President/CEO
Carlsron Initiative for Peace and Human Rights (CIPEHR)
Keywords: United Nations, informal diplomacy, Track II diplomacy, civil society, NGOs, global governance, multilateralism
Abstract
This article examines the “other side of the United Nations”—the less visible but influential processes and actors that operate beyond formal UN channels such as the General Assembly and Security Council. While traditional diplomacy (Track I) remains central to treaty-making and official state negotiation, this article highlights how informal diplomacy (Track II and Track III) and civil society actors including non-governmental organizations (NGOs) shape policy dialogue, normative agendas, and implementation outcomes. Drawing upon academic literature and UN sources, the article demonstrates that non-state actors and informal networks contribute to norm-setting, peacebuilding, and multi-stakeholder collaboration in ways that complement and, at times, push the formal system to evolve. It concludes by reflecting on how NGOs and informal diplomatic processes can be strategically engaged to strengthen global governance, inclusivity, and accountability within the UN system.
Introduction
The United Nations (UN) is widely recognized as the central multilateral institution for international peace, security, and development. Its formal structures—including the General Assembly, the Security Council, and the Secretariat—represent the locus of Track I diplomacy, where sovereign states negotiate treaties, adopt resolutions, and make binding decisions on issues of war, peace, and global public goods. Yet the UN’s impact on global governance extends far beyond these official organs. Beneath the formal architecture lies an informal and dynamic layer of diplomatic engagement that includes non-state actors, civil society organizations, and unofficial dialogues that collectively constitute the “other side” of the UN.
This article explores this less visible dimension of the UN. It investigates how civil society actors and informal diplomacy—often operating outside institutional chambers—shape policy agendas, inform state negotiators, and support implementation on the ground. These processes are not mere adjuncts to the formal system but rather are integral to how global decisions are debated, shaped, and realized in practice. Understanding this “other side” is particularly important for NGOs and advocacy networks seeking to maximize their impact on international policymaking.
The Formal Face of the UN: Track I Diplomacy
Track I diplomacy at the UN refers to official interactions between governments and their authorized representatives. This includes negotiations within the General Assembly, Security Council, and specialized agencies where member states deliberate on issues ranging from peacekeeping to climate change and human rights. These processes are characterized by formal rules of procedure, legal authority, and binding commitments that reflect the sovereign interests of member states.
Despite its centrality, Track I diplomacy has well-documented limitations. Formal negotiations can be slow, constrained by political rivalries, and limited in inclusivity, often privileging the interests of powerful states over those of marginalized groups. Moreover, complex global issues such as human security, environmental degradation, and social inequality often require insights that extend beyond the purview of state actors alone. These gaps have created space for informal mechanisms and non-state contributions to play a more prominent role within and around UN processes.
The Other Side of the UN: Civil Society Actors and Informal Diplomacy
The “other side” of the UN encompasses civil society organizations (CSOs), non-governmental organizations (NGOs), informal dialogues, and multi-stakeholder networks that engage with the institution and surface issues that might otherwise be sidelined.
NGOs and Civil Society in the UN System
NGOs and CSOs have become indispensable partners in the UN’s normative and operational work. Through ECOSOC consultative status, NGOs can attend sessions, submit written statements, and participate in events that influence debates on human rights, sustainable development, and peacebuilding. As of 2021, over 5,500 NGOs held active consultative status with ECOSOC, enabling them to contribute institutional memory, technical expertise, and grassroots perspectives to UN deliberations (United Nations, n.d.).
NGOs serve multiple roles: they act as advocates, raising awareness of issues such as gender equality and climate justice; as monitors, tracking implementation of global commitments; and as norm entrepreneurs, proposing standards later codified in international agreements. For example, international civil society coalitions have driven progress on global agendas such as the Sustainable Development Goals (SDGs) and international legal norms against landmines and gender-based violence (Carayannis & Weiss, 2021).
Moreover, the UN has developed formal partnerships with CSOs via departments such as the Department of Global Communications (DGC) and the Peacebuilding Support Office, enhancing dialogue with broader segments of civil society. These institutional efforts reflect recognition that multi-stakeholder engagement strengthens legitimacy, learning, and accountability in global governance (United Nations, n.d.).
Conceptualizing Informal Diplomacy: Track II and III
Informal diplomacy includes Track II and Track III processes that operate outside official state channels. Track II diplomacy refers to non-official dialogues and conflict-resolution efforts conducted by academics, retired officials, and civil society leaders with the objective of building trust and exploring innovative solutions to contentious issues (Diplo, n.d.). These dialogues are not legally binding but can ease tensions, generate ideas, and lay the groundwork for subsequent official negotiations.
Track III diplomacy focuses on grassroots and community-level engagement, involving local leaders, activists, and community organizations in peacebuilding, reconciliation, and social transformation. Track III efforts can help address societal divisions and local grievances that formal diplomacy cannot directly tackle, thereby complementing both Track I and Track II processes (Clark, Friedman, & Hochstetler, 1999).
Combined, these informal approaches enhance the resilience and inclusiveness of diplomatic processes by incorporating diverse perspectives and fostering trust that can shorten the distance between global decision-making and local realities.
Interplay Between Formal and Informal Processes
Although distinct, formal and informal processes increasingly interact. Informal actors often feed insights into official forums, shaping agenda formation and intensifying pressure for policy shifts. For instance, Track II dialogues have sometimes catalyzed breakthroughs in conflict zones by allowing parties to exchange perspectives away from the rigidity of formal negotiations (Beyond Intractability, n.d.).
Civil society engagement has similarly influenced UN outcomes. NGOs contribute expert research, mobilize public opinion, and coordinate advocacy campaigns that elevate neglected issues—such as the rights of indigenous peoples or global health inequities—onto formal UN agendas. By doing so, they amplify voices that might otherwise remain unheard and enhance the representativeness of multilateral decision-making (United Nations, n.d.).
However, this interplay is not without challenges. Informal actors often lack formal decision-making authority, and their influence can vary depending on the political receptivity of states and UN bureaucracies. Furthermore, informal processes may at times contest state sovereignty or generate tensions with entrenched diplomatic interests. Nonetheless, their presence enriches global diplomacy by introducing flexibility, innovative thinking, and multi-layered engagement.
Challenges and Limitations
Despite its contributions, the “other side” of the UN is not without limitations. One challenge is legitimacy and accountability: unlike elected officials, informal actors are not directly accountable to constituencies, raising questions about representation. Another issue involves coordination: connecting informal contributions with formal decision-making can be difficult, leading to fragmentation or redundancy.
Moreover, many NGOs face resource constraints and uneven access to UN forums—especially organizations from the Global South—limiting the diversity of perspectives involved in informal diplomacy. Efforts to democratize access and enhance capacity remain critical if civil society and informal processes are to fulfill their potential within global governance.
Opportunities for NGOs and Civil Society
NGOs seeking to engage effectively with the UN can leverage ECOSOC consultative status or partner with UN agencies to enhance visibility and influence on policy debates. Participation in Track II and Track III initiatives helps build relationships, develop innovative solutions, and influence negotiations indirectly. Forming networks and coalitions strengthens organizational capacity and amplifies advocacy on issues like human rights, peacebuilding, and sustainable development. By encouraging diverse voices, particularly from underrepresented regions and communities, NGOs enhance the legitimacy and efficacy of global dialogue. When these approaches are combined, NGOs can bridge gaps between global norms and local realities, contributing to both effectiveness and equity in multilateral governance.
Conclusion
The United Nations is more than the sum of its formal organs. While Track I diplomacy remains essential for negotiating treaties and shaping official policy, the “other side” of the UN—comprising civil society actors and informal diplomatic processes—plays an equally vital role in shaping global agendas and enhancing the UN’s responsiveness to complex global challenges. NGOs, Track II dialogues, and grassroots initiatives contribute expertise, innovation, and inclusivity that enrich multilateralism and lend dynamism to global governance. Recognizing and strategically engaging these informal dimensions can strengthen the UN’s legitimacy, resilience, and impact in the 21st century.
References
Beyond Intractability. (n.d.). Track II diplomacy. Retrieved January 17, 2026, from https://www.beyondintractability.org/essay/track2_diplomacy
Carayannis, T., & Weiss, T. G. (2021). The third United Nations: How a knowledge ecology helps the UN think. Oxford University Press.
Clark, A., Friedman, E., & Hochstetler, K. (1999). Sovereignty, global civil society, and the social conferences. International Studies Association.
Diplo. (n.d.). Track two diplomacy. Retrieved January 17, 2026, from https://www.diplomacy.edu/topics/track-two-diplomacy
United Nations. (n.d.). The role of civil society in advancing global citizenship. UN Chronicle. Retrieved January 17, 2026, from https://www.un.org/en/chronicle/article/role-civil-society-advancing-global-citizenship
United Nations. (n.d.). The UN and civil society. Retrieved January 17, 2026, from https://www.un.org/en/get-involved/un-and-civil-society
