SECURITY IN SUSTAINABLE DEVELOPMENT: COMPARING UNITED NATIONS 2030 AGENDA FOR SUSTAINABLE DEVELOPMENT WITH MILLENNIUM DECLARATION SÜRDÜRÜLEBİLİR KALKINMADA GÜVENLİK: BİRLEŞMİŞ MİLLETLERİN 2030 SÜRDÜRÜLEBİLİR KALKINMA GÜNDEMİ İLE BİNYIL BİLDİRGESİNİN KARŞILAŞTIRILMASI

This study aims to compare United Nations 2030 Agenda for Sustainable Development with Millennium Declaration in terms of their security conceptualizations to explore changes in security thinking and policy components (goals, targets, principles, priorities etc.) over time. In doing so, it is envisaged that United Nations’ expectations from member states regarding their national security policies and organizations could be revealed. Security thinking has changed since late 1980’s with the introduction of sustainable development approach by the United Nations. This shift in security thinking encompasses human security and securitydevelopment nexus. Holding all member states responsible, Millennium Declaration and 2030 Agenda for Sustainable Development constitute the primary and the most recent outcome documents of United Nations’ sustainable development policy. Both documents have security components. This enables extracting security elements and comparing them with an analytical manner. Consequently, findings are compared and discussed in terms of public policy and organization at national level.


INTRODUCTION
The world has witnessed fundamental changes since the late 20 th Century as consequences of globalization. This has led to emergence of new policy domains for and responses to social and economic challenges. As globalization has increased interactions all over the world, public policy process and organization have gone through a transformation.
This transformation can be explained in terms of globalization of public policy by policy transfer and convergence (Evans and Davies, 1999;Dolowitz and Marsh, 2000;Drezner, 2001;Stone, 2004;Knill, 2005;Zaei, 2013) and integration of policy domains by policy integration (Meijers and Stead, 2004;Briassoulis, 2005). Globalization of policy refers to designing public policy process at global level and transferring common policy components to nations while integration of policy domains represents introducing thematic policies.
Sustainable development policy exemplifies this transformation and encompasses a variety of policy domains, one of which is security. Sustainable development, as a combination of policies, has paved way for paradigm shifts in both security and development.
In this context, there has been a consensus within international development community on linking security and development since the late 1980s. The consensus gained prominence with 8 the Report of World Commission on Environment and Development (Brundtland Report) in 1987, which introduced the concept of sustainable development to international community.
Incorporating security into its agenda distinguishes sustainable development policy from previously introduced policies which had been designed and conducted as functional areas, such as health, education, transportation etc. In sustainable development, security has been dealt with and addressed as a primary policy component.
It may be argued that security conceptualization in Brundtland Report stands for the initial conceptual framework of security-development nexus. Security-development nexus refers to merging development and security policymaking to yield policy coherence for sustainable development. This approach has been built upon the principle that security and development are inextricably linked.
Security conceptualization in sustainable development has evolved in nearly three decades up to date. The changes in security thinking and policy priorities of sustainable development may be traced by analyzing pertinent and the latest policy documents longitudinally, which have been publicized since the beginning of 21 st Century. Holding all member states responsible, Millennium Declaration and the 2030 Agenda for Sustainable Development are the primary and the most recent outcome documents of United Nations' sustainable development policy. Both documents have security aspects. In this context, this study seeks to find answers to questions stated below:  What are the security related causalities and terms that comprise security conceptualization of Millennium Declaration?
 What are the security related causalities and terms that comprise security conceptualization of the 2030 Agenda for Sustainable Development?
 What is the difference between security conceptualizations of Millennium Declaration and the 2030 Agenda for Sustainable Development?
 What implications for public policy and organization can be inferred from the security conceptualizations?
To answer these questions, the paper compares United Nations 2030 Agenda for Sustainable Development with Millennium Declaration in terms of their security 9 conceptualizations. The study categorizes the security related causalities and security terms of each document. In the first step, security related causalities are extracted from both documents and security terms (security, safety, secure, peace) are determined by scanning security and its related concepts. In the second step, the rationales that causalities rely on are demonstrated in relation to their implications for public policy and organization and the contexts of security terms are exhibited. In the third step, the causalities and security terms of each document are compared in such a way that reveals the longitudinal shift in security conceptualizations. The study ends with concluding remarks.

CONCEPTUAL FRAMEWORK: SECURITY-DEVELOPMENT NEXUS
Security-development nexus refers to a multi-policy approach emerged within international development community in the late 1980s. Evolved within UN and Organization for Economic Cooperation and Development (OECD) Development Assistance Committee (DAC), it argues that security and development constitute the prerequisites of each other (Duffield, 2010;Hrychuk, 2009;Stern and Öjendal, 2010). In other words, minimum level of security is necessary for development and vis-a-vis. In this approach, both security and development understandings represent new paradigms. While development turned out to be sustainable instead of focusing solely on economic growth of nations, security paradigm has shifted from state-centric to human centric, that is, human security.
In order to explore and take a grasp of the basic argument of security-development nexus, firstly, we need to examine the Report of World Commission on Environment and Development (Brundtland Report), which announced the concept of sustainable development in 1987. Since sustainable development is a multi-faceted and an integrated policy, one may find a variety of policy issues within its agenda. Security, inter alia, is one of the primary components of sustainable development. And Brundtland Report criticizes traditional security approach which is characterized by conventional and nuclear weapons, and arms race of nations in Cold War era (United Nations, 1987).
Urging governments to leave traditional security definitions in terms of political and military threats to national sovereignty, Report demanded from nations to broaden their security approaches so as to encompass environmental issues at varying levels of analysis (locally, nationally, regionally, and globally) (United Nations, 1987). The introduction of sustainable development to international community pointed to insecurity as a source of environmental and developmental degradation. According to the Report, "peace and security bear directly upon the concept of sustainable development".
Pertinent causalities in Brundtland Report that have shaped security approach in sustainable development policy can be categorized as shown in Table 1. The causalities demonstrate security conceptualizations at policy level, thus indicating the initial elements and concerns of security-development nexus.  (UNDP, 1994). In its 1994 Human Development Report, UNDP adopted a multidimensional security conceptualization. It was human security. The basic principle of human security relied on security-development linkage, broadening security conception so as to encompass non-state and non-military aspects (Paris, 2001;Krahmann, 2008).
According to UNDP (1994: 22), "security of territory from external aggression, or as protection of national interests in foreign policy" is a narrow interpretation of security. As put forward by UNDP, human security has two main aspects. First, safety from such chronic threats as hunger, disease and repression. And second, protection from sudden and hurtful disruptions in the patterns of daily life-whether in homes, in jobs or in communities." (UNDP, 1994: 23). UNDP's human security concept has seven dimensions (UNDP, 1994: 24-33): Economic security, food security, health security, environmental security, personal security, community security, political security. It is apparent that human security is comprised of a variety of policy domains which have multiple interactions amongst.
Given human security approach, security-development nexus is based on the proposition that "there can be no development without security and no security without development" (Duffield, 2010;World Bank, 2011;Jackson, 2015). In other words, securitydevelopment nexus presumes that there is an interaction between the security situation and development outcomes, between the development situation and security outcomes (Schnabel, 2012). As a result, security and development policies have been broadened to handle common issues in such a way that reinforces each other (Nikolaisen, 2011).

Security in Millennium Declaration
The Millennium Declaration is a resolution adopted by the General Assembly at the very beginning of 21 st Century. According to it, the central challenge was globalization and its uneven consequences for people all over the world (United Nations, 2000). Given the Millennium Declaration, globalization can be taken as the main source of insecurity. In this context, Table 2 shows security conceptualization inferred from the text of Millennium Declaration.

Causality Rationale Implications for Public Policy and Organization Globalizationsecurity
Insecurity is an adverse consequence of globalization.
International cooperation in security UN-Security UN must play central role as the most representative. Global governance

Freedom-security
Freedom is essential for security and vis-a-vis. Democratic-participatory governance

Rule of Lawsecurity
Rule of law is a basis for effective security.
Compliance with international law; national law; human rights law Governancesecurity Governance enhances security by including non-state actors.
Public-Private-non-governmental-civil society partnerships Shared responsibilitysecurity Shared responsibility enhances security. Cooperation; multilateralism; policy coherence

Terrorismsecurity
Terrorism is a source of global insecurity.

Disarmamentsecurity
Disarmament creates security environment.
Arms control; no weapons of mass destruction and nuclear weapons; more transparent arms transfers; supporting regional disarmament Sport-Peace Olympics promotes peace. Organizing/participating in Olympics.
In Table 2, causalities indicate the priorities of sustainable development policy in terms of security. That globalization was addressed as main cause of problems, including insecurity, and the central role given to UN imply a prospective global governance structure that would be reference for national policy priorities. Freedom, rule of law, governance and shared responsibility can be described as principles for policy priorities and managing policy process, while terrorism, disarmament and sports are the policy areas that nations were supposed to engage in international cooperation regarding security issues. Overall, it may be argued that general focus of Millennium Declaration was cooperation at international level.
Having discussed the security related causalities of Millennium Declaration, which comprise its security conceptualization, we need to analyze it by security terms in order to understand its context. So, security conceptualization in Millennium Declaration can also be expressed as a categorization of security terms and pertinent concepts (see Table 3). refugees and displaced persons, as well as drinking water, which relied on human security.

Security in the 2030 Agenda for Sustainable Development
The 2030 Agenda for Sustainable Development was adopted by General Assembly in September 2015 and came into effect on 1 January 2016. It will cover the next fifteen years until 2030. The Agenda is much more elaborated than Millennium Declaration with its 17 goals and 169 targets. According to the 2030 Agenda, the greatest challenge that humanity is facing today is poverty. In this context, we may argue that all goals and targets are expected to serve eradicating poverty. Security, as well, is a prerequisite for eliminating poverty.
Targeting an environment which is free from fear and violence, namely, human security, the Agenda argues that there can be no sustainable development without peace and no peace without sustainable development (United Nations, 2015). This denotation establishes a causality between peace and development. It may also be taken as a causality between peace and poverty. The 2030 Agenda uses the word of peace as a basis for security-development nexus and even goes beyond it.
This fact can be seen in security conceptualization of the 2030 Agenda. And it shows itself by security related causalities established within. Table 4 shows those causalities which comprise security conceptualization in the 2030 Agenda.

Violence-security
Children must be protected against violence.
Security measures focused on protection of children

Terrorismsecurity
Terrorism is a security problem International cooperation and capacity building for fighting terrorism

Peacedevelopment
Women should have role in peace-building; self-determination of peoples should be recognized Inclusion of women in peace-building missions; application of self-determination for conflict-affected people in a given territory

Social exclusion causes insecurity
Inclusion of all people in public affairs and public decision making

Equality-security
Inequality causes insecurity Equal access to justice; equality of opportunity

Human rightssecurity
Violence of human rights is a source of insecurity Incorporating respect for human rights into public sphere

Rule of lawsecurity
Rule of law enhances security Rule of law in public security affairs

Good governancesecurity
Good governance enhances security Good governance as an organizing principle

Security relies on institutions
Transparency, effectiveness and accountability in security institutions Illicit financial and arms flowssecurity

Illicit financial and arms flows cause insecurity
Eliminating illicit financial and arms flows as security policy goals  In Table 5, the terms of "security", "safety" and "secure" are generally at human/community level and can be related to urbanization process. They have to do with living conditions of people and refer to general conception of human security. And the term of peace connotes creating an environment at national and global levels which is conducive to permanent and worldwide peace.

Having analyzed and put forth the security conceptualizations in Millennium
Declaration and the 2030 Agenda, both documents are compared below in terms of their security conceptualizations.  ignored. There seems an endeavor to connect sub-national security to global policy process.
Besides, the 2030 Agenda envisages creating institutions for providing security. This points to a new institutional approach to security. According to new institutional view (or new institutionalism), main goal of an institution is to gain legitimacy to survive in an environment comprised of many other institutions (March and Olsen, 1984;DiMaggio and Powell, 1991).
Therefore, legitimate security institutions are considered to be essential for providing security conditions. In the 2030 Agenda for Sustainable Development, a prospective "peacedevelopment nexus" approach can be observed. A peace-development nexus would broaden the debate at global level, thus providing legitimacy of sustainable development policy with peace discourse.
Alongside the causalities mentioned so far, security terms give an idea about changing security conceptualization of sustainable development policy. Table 7 presents a comparison of security terms of Millennium Declaration and the 2030 Agenda. In providing security, the concept of (social) inclusion draws attention. Social inclusion refers to giving a right to say and responsibility to everyone in the society in political, social and economic affairs regardless of their differences of race, gender, class, generation and geography and providing equality of opportunity. Social inclusion also requires subordination of military and economic power to civil authority. The rationale of social inclusion is avoiding undesired events such as armed rebellion, urban rioting and the disaffection of young people (United Nations, 2010). The rationale indicates an established causal connection between social inclusion and security in the Agenda.
According to Table 7, the term of security in Millennium Declaration emphasized restructuring UN system and offered the basic principle of international cooperation, namely, shared responsibility. On the other side, in the 2030 Agenda, the concept of security was associated with food security and personal security, which are main components of human security and take "human" as the unit of analysis in security issues.
When it comes to the safety, it is observed that the content of safety has been broadened up to date. In Millennium Declaration, safety was associated with refugees and displaced persons, drinking water, UN and associated personnel while, in the 2030 Agenda, it is composed of mainly urbanization and urban security challenges in a wider perspective.
The term of peace in Millennium Declaration was addressed mainly in terms of tolerance as well as international cooperation. On the other side, the 2030 Agenda abstains from an explicit emphasis on international cooperation and accepts a value-based approach to peace. Particularly, the targets of universal and durable peace, culture of peace and peaceful societies are indicators of emerging values in creating an environment of peace. In this context, peacebuilding is offered as a policy instrument for achieving the targets. And finally, the term of secure was not included in Millennium Declaration. But, in the 2030 Agenda, it is associated with and points to production factors and markets for stable production and consumption conditions.
Then, what implications can be inferred from those changes in terms of policy? First, it may be argued that national security policies will be formulated and implemented for safety concerns at urban level, thus relying more on human security. Because, changing security conceptualization indicates a shift in priorities from organizing global governance to building a security environment for eliminating challenges that threaten social, political, and economic stability. And that would mean creation of inter-sectoral policies based on public-private partnerships and multi-level governance. Since both the fragmentation of authority and privatization have increased over the past three decades and led to loss of control over policy outputs and outcomes (Christiensen and Laegreid, 2006), incorporating the security view into sectoral policies would mean a policy tool for political and administrative centralization regardless of human based paradigm.
Second, in the next fifteen years, a more value-based security policy process would appear and shape policy responses to security challenges. So, it may be asserted that securitydevelopment nexus would be operationalized mainly by security policy responses which will be formulated in accordance with those values embedded in policy process. Social inclusion, as a response to inequality which has proved to be the main cause of insecurity within societies, heads the value domain in providing security conditions to achieve sustainable development goals and targets. Since poverty has been recognized as the key indicator of social exclusion (Noya and Clarence, 2008), national policies would lean on poverty reduction in the following years. In a wider perspective, social policy domain will constitute the principal base of security programs at national and sub-national level.
Third, latest security approach of sustainable development policy merges internal and external security concerns of nations. This approach is likely to remove distinction between two policy domains and be embodied by high level decision making bodies and coordination mechanisms as well as inter-ministerial organizations above functional bodies at national level. Security approach of sustainable development also encourages multi-level governance for security. This requires an alignment from supra-national to sub-national level and a cooperation among them. In this type of governance, state apparatus can be defined both as a facilitator and an actor in security policies and the legitimacy of state would come from its commitment to (global) security governance. In addition to those, security approach of sustainable development brings together a variety of policy domains so as to yield policy coherence and expected results. In doing so, UN extends its engagement with nations and create more space for influencing national policies under a thematic policy domain, namely, sustainable development.
Fourth, it is observed that while the 2030 Agenda highlights food security and personal security as matters of security in general, it elaborates and classifies security related issues under the conceptions of safety and secure. This manner demonstrates that individuals' being safe and secure is the primary concern of policy and that pertinent issues classified under those conceptions will constitute the policy priorities for nations in the next fifteen years. When considered that policy priorities direct resources to issues to be resolved, it may be argued that national budgets will concentrate on mobilizing financial resources to address those issues. This argument can be tested fifteen years later from now by examining distribution of expenditures in national budgets. In order to track policy outcomes in terms of expenditures, security related indicators may be developed at national level. Besides, as UN emphasized, domestic resources should be mobilized to finance sustainable development policies. In this context, governments may seek further financial cooperation with non-state actors in addition to tax revenues to foster security at local (urban) level.
Finally, national policies are most likely to focus on investments for infrastructure, which is considered to promote living conditions of individuals. It may be asserted that both international (official) development assistance and domestic resources will be diverted to programs for improving infrastructures, especially in developing countries. According to the 2030 Agenda, improving infrastructures would proliferate all types of interactions among individuals within and among nations and their access to utilities, public spaces, and markets, thus creating an environment for peaceful societies and durable peace as well as for developing a culture of peace.

CONCLUDING REMARKS
We are living in a world which is characterized by intense interactions and complex issues as well as integrated policy responses. As all kinds of connections proliferated and spread across borders, security, inter alia, has become a multifaceted issue to the extent that it could not be defined in conventional terms. So, security has been under re-conceptualization in an age that marked everybody's lives. It does not mean solely national security anymore.
This may be explained as a consequence of globalization. And it is evident that an effort to explain fundamental changes since the late 20 th Century cannot ignore globalization.
One of the consequences of globalization is the emergence of integrated policies at global scale. In this context, sustainable development can be described as a global policy which aims to combine different policy domains as a response to common issues in a globalized world. Sustainable development is also a thematic policy which offers a certain type of development and aims to integrate diverse policy processes. The convergence of security and development, namely, security-development nexus has evolved through sustainable development policy. Incorporating security concerns into sustainable development resulted in broadening of the scope of security while development approach extended beyond economic growth.
Introducing human security to international community, the UN complemented sustainable development approach with a comprehensive concept. Both sustainable development and human security are thematic policy domains and they have shared policy issues. Human security constitute the conceptual framework of security-development nexus.
Since three decades up to date, sustainable development policy has been adjusted to response to contemporary issues so as to address new policy challenges. So has been the security in it.
The policy priorities, as well as goals and targets have been reviewed.
In 2000's, sustainable development policy produced two major documents which have security aspects. The first one was Millennium Declaration and the latter is the 2030 Agenda First, in the 2030 Agenda, the emphasis is on urbanization. This proves that next generation policies will be handling mainly urban security issues. So, national public policy processes and organizations may be expected to be designed to overcome urban security problems, especially personal security concerns. Second, it is observed that a human or community based security approach is leading security definitions much more than before.
That means a move from inter-state security definitions to intra-state and sub-national definitions of security.
Additionally, traces of new institutional approach can be seen in the 2030 Agenda.
According to this approach, security must be provided by legitimate institutions operating in accordance with the principles of good governance. And good governance may be described as a criterion of legitimacy for security institutions, like other public bodies. Finally, an emerging peace-development nexus is observed in the 2030 Agenda. A prospective peacedevelopment nexus could both broaden the debates in security-development nexus approach and enhance legitimacy of security aspects in sustainable development policy.
As security related causalities have proliferated over time, security conceptualization of sustainable development agenda has broadened and deepened. The proliferation of those causalities, by creating new rationales, also point out prospective policy domains and responses that are likely to be developed in the next fifteen years. And that will mean enlargement of public sphere and creating more space for public intervention through new structures and functions for national public policies and organizations. Besides, the proliferation of security related causalities signifies increasing securitization in public policy and organization.