4 focuson the European Union and peace-building efforts in the Horn of OCTOBER 2001 Welcome

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WELCOME TO THE FOURTH EDITION S e Nile a OF FOCUS, the newsletter for the joint project ERITREA

B n l e u d e f A o of Africa Peace Forum (APFO), Saferworld and N lf i u l G e DJIBOUTI InterAfrica Group (IAG) in the . W hi t e ETHIOPIA INDIAN

N i l OCEAN For the first time, Focus has been written, e edited and published in so it has a truly AFRI CA regional perspective. KENYA Lake Victoria

The Cotonou Agreement Consultation This issue of Focus concentrates on address- This edition also reports on two important ing the challenges and opportunities for meetings held in the Horn and in implementing the newly agreed Cotonou which looked at resource-based conflict Agreement, which was signed in Benin in within the context of Cotonou. A number June 2000. This agreement defines the aid, of challenges for implementing Cotonou CONTENTS trade and development relationship emerged from these meetings that point to between the EU and 77 African, Caribbean the need for the EU to develop its own Editorial, Executive Director, 2 and Pacific countries (ACP) and is particu- capacity and to take steps to mainstream APFO larly important for civil society in the Horn. conflict prevention and peace-building into The Cotonou Agreement: 2 For the first time in such an agreement, real all areas of development co-operation. The what it means for civil weight and legitimacy is given to the role of reports also highlight the need for the EU society in the Horn of Africa non-state actors in conflict prevention, to engage with civil society in meaningful peace building and poverty alleviation. dialogue which leads to the forging of Seminars show need for 3 genuine partnerships. the EU to address Peace-building ‘Update from the EU’ in this edition of resouce conflict Building on the Cotonou theme, this Focus puts the spotlight on Brussels and edition of Focus attempts to give an insight provides an overview of significant policy Managing conflict risks in 4 into how donors and civil society are advances made over the last year. From the Karamoja working together to address important point of view of conflict prevention and Engendering peace-building 5 conflict risks in the Horn of Africa, within peace-building, the Swedish Presidency has efforts in Sudan the context of the Cotonou Agreement. elevated debate to the highest levels and Articles cover two peace-building projects there is now a solid basis for the Belgian Update from the EU 6 in Sudan and Uganda, which demonstrate government, who hold the current Update from the Horn 7 how donors and local civil society are Presidency of the EU, to take the process reducing the risk of violence. The first of forward. Conflict and Early Warning 8 the two articles highlights the efforts of the ‘Update from the Horn’ in this edition in the Horn European Community in a pastoral area of specifically looks at consultations which are Recent publications 8 Uganda, whilst the second looks at women being organised between civil society and and peace-building in Sudan. Both articles governments in the Horn and the European Focus was compiled and edited by demonstrate the need for greater co- Commission. It is hoped that this dialogue Elizabeth Mutunga, Bizuwork Ketete operation, local ownership and capacity will provide an important opportunity for and Cynthia Gaigals with assistance from Andy McLean and Laura Edge. building within civil society and provide civil society to help shape EU policies and Focus has been funded by Comic useful examples for donors attempting to take the lead in making the goals of Relief and the Community Fund (UK) implement the Cotonou Agreement. Cotonou a reality. Editorial: the Horn of Africa at the dawn of the new millennium

Bethuel Kiplagat, Executive Director, Africa Peace Forum

THE HORN OF AFRICA REGION seems jacking, robberies and cattle rustling The newly agreed Cotonou Agreement to be plagued with different types of threaten the very fabric of our societies. also offers us hope for the future. The conflicts from rebellion against states to Despite this sombre picture, there is a collection of articles in this edition of Focus communal violence and resource-based dim light at the end of the long and dark point to real opportunities and highlight conflict over water, grazing land and tunnel. It is dawning on our leaders, that some of the modest success stories that can livestock – the so-called cattle rustling. there are serious problems which need to be result from genuine partnership. Because of the spread and extent of addressed – hence the Sudan/IGAD Peace There is hope, and so those working for conflict, the region is now awash with small Process, the Algiers Peace Accord between peace should double their efforts. Urgency arms and light weapons. Nobody knows the Ethiopia and Eritrea, the Nairobi is needed in dealing with the problem of number of guns circulating illegally in the Conference on Small Arms and the Early conflict in the region and the co-operation region, but these weapons have become a Warning and Early Response project of of all stakeholders is absolutely essential. menace and a real threat to ordinary people Inter-Governmental Authority for Develop- With united effort we can succeed. trying to go about their lives. Banditry and ment (IGAD), which is being developed in general insecurity are on the increase – car concert with civil society in the Horn.

The Cotonou Agreement: what it means for civil society in the Horn of Africa

Bizuwork Ketete, regional networker, APFO/IAG/Saferworld

Cotonou at a glance non-state actors, including NGOs and the Article 11 provides the strongest evidence In June 2000, the latest in a series of agree- private sector, in development, conflict yet in EU-ACP agreements, of the joint ments between the European Union and its prevention and peace-building. In terms of commitment to conflict prevention and 77 African, Caribbean and Pacific (ACP) development, non-state partners will be peace-building. It refers to building capacity partners was agreed in Cotonou, Benin. The involved in consultations and the planning for peace and addressing the root causes of agreement, which defines the relationship of Country Support Strategies as well as in conflict. It focuses on support for establish- the implementation of programmes. They between the EU and ACP countries, covers ing effective mechanisms “for the peaceful will have more direct access to financial development assistance, aid and trade. The conciliation of group interests and for resources, up to 15% of programme funds, bridging dividing lines among different agreement will span a 20 year period and and be able to receive capacity building segments of society as well as support for an will build on the 25 years of ACP-EU support. active and organised civil society”. co-operation under four successive Lome Whilst the Cotonou Agreement provides Conventions. a framework for co-operation, it does not The central objective of the partnership Broadly based policies to provide the means for its implementation. is to reduce and eventually eradicate poverty “promote peace and to prevent, The challenge for the EU delegations and while contributing to sustainable develop- civil society in the Horn is to find a way to ment and to the gradual integration of ACP manage and resolve violent conflict turn the principles of the Agreement into countries into the global economy. shall play a prominent role in this reality. To that end, Saferworld, Africa dialogue. Peace Forum and InterAfrica Group, The contribution of civil society ” amongst others, are working towards “ Extract: Article 8, Cotonou Agreement setting up a series of national consultations to development can be enhanced involving key EU and ACP actors. It is by strengthening community Enhancing conflict prevention hoped that by raising awareness of the Significantly, Articles 8 and 11 of the opportunities and challenges presented by organisations and non-profit non- Agreement address conflict prevention and the Agreement, civil society in the Horn will governmental organisations in all also promote the valuable role of civil be able to play an effective part in its society in peace and security. Article 8 implementation. Other articles in this spheres of co-operation. addresses political dialogue, which aims to edition of Focus give a deeper insight into ” foster mutual understanding between how organisations are working with others Extract: Article 7, Cotonou Agreement parties, and covers general, regional and to turn Cotonou’s good intentions into a sub-regional interests. For the first time it partnership for peace and security for the Involving civil society also looks at significant conflict issues, Horn. In a break with the past, the new agreement including the arms trade and excessive provides a new and challenging role for military expenditure.

2 SAFERWORLD FOCUS · OCTOBER 2001 Seminars show need for the EU to address resource conflict

GOVERNMENT AND CIVIL SOCIETY REPRESENTATIVES from the Horn and the EU causes of conflict such as lack of effective discussed conflict risks and opportunities and challenges for implementing the Cotonou Agreement governance in Somalia are addressed. at a seminar in Addis Ababa in March 2001. This meeting was the first activity organised by … progress can only be made if Saferworld, APFO and IAG in the third phase of their conflict prevention project which focuses on “ enhancing the impact of EU engagement in the Horn of Africa. The meeting discussed mechanisms the structural causes of conflict for ensuring civil society involvement in national planning and implementation of the Cotonou such as lack of effective governance Agreement. Papers presented at the meeting highlighted conflict risks linked to access to important in Somalia are addressed. resources and participants proposed a series of recommendations to Horn governments and the EU ” in addressing these risks. The meeting was significant in providing many participants from the Civil society capacity building region with their first opportunity to raise issues directly with EU officials. Following the seminar, a training workshop was held to allow civil society representa- tives to build their knowledge of how the Conflict risks equivalent to the proceeds from oil EU works and to influence its policies. A extraction. Companies from , Sweden, number of personal testaments provided Pastoralism in Kenya: Canada and the UK, helped build Sudan’s insights into how advocacy could be used Kennedy Mkutu, Saferworld and APFO oil industry and are now profiting from more effectively and to recommend options The linkage between small arms, land, production. Extracting oil from a country for the implementation of Cotonou. The pastoralism and violence is an important at war can have serious humanitarian EU has not instituted clear mechanisms for concern in northern Kenya where the consequences. Companies are ignoring the engaging civil society or defined how it will growth of commercial ranches has exacer- links between their activities and the escala- ‘mainstream’ its existing conflict prevention bated competition for water and pasture tion of violence. If the EU is serious about objectives throughout its different policies. between pastoralists and ranchers and its foreign investment and coherence of its If the EU is to fulfil its policy commitments among pastoralists themselves. Pastoralists, instruments, it will need to address the role in the Horn, it is crucial that these mecha- require large tracts of land and as ranches of investment in conflict-affected countries nisms are established to ensure that civil now take up to 70% of available land in such as Sudan and support measures which society is involved in all phases of projects. some areas, access to pasture has decreased ensure that the benefits of extraction are Building dialogue with the EU dramatically. The proliferation of small equitably shared and not used to fuel war. arms in the area has also proved devastating. A follow-up seminar was held in Brussels in Pastoralists have a long history of cattle June where the seminar recommendations Extracting oil from a country at raiding, however, this has now reached were discussed with European policy- unprecedented levels in terms of numbers “war can have serious humanitarian shapers and decision-makers. There was of people killed and injured and in the num- consensus that the EU needs to invest in consequences. Companies are bers of cattle stolen. Unresolved land issues building genuine partnerships with civil and arms proliferation combine to threaten ignoring the links between their society based on continuous, wide-reaching human security and the prospects for long- and open dialogue. APFO, IAG and Safer- activities and the escalation of term peace and development. The EU needs world have therefore initiated a programme to support programmes that address small violence. of national consultation in Horn countries. arms and violence. Such programmes need ” These meetings aim to raise awareness of to be based at district level and link to cross the EU, the Cotonou Agreement and border programmes aimed at increasing Charcoal trade in Somalia: develop more effective mechanisms the capacity of administrations and local Fatima Jebril, Horn Relief through which the views of civil society can communities to manage their own As a result of Somalia’s civil war, the ability inform EU policy. For more information on resources, and address their own security of administrations and communities to the dates of these meetings, please contact and protection issues. control access to natural resources has Bizuwork Ketete at IAG or Sarah Bayne at decreased dramatically. Forests are being Saferworld. Details of the seminar reports The oil industry and conflict: destroyed as profits from the charcoal trade are provided in the publications section of Clive Robertson, Christian Aid increase and are used by war lords to fuel this edition of Focus. According to a Christian Aid report, instability. The impact of this trade in- thousands of people have been displaced creases poverty at local levels (communities … the EU needs to invest in Sudan since large-scale oil production are largely excluded from the benefits from “ began two years ago. Civilians, already trade which is exploited by militia). The EU in building genuine partnerships suffering in the civil conflict which has and other donors could play a key role in with civil society based on devastated Sudan, have been subjected to afforestation programmes, developing and increased levels of human rights abuses. funding sustainable energy projects, as well continuous, wide-reaching and Violence has escalated as the Government in as income diversification projects for open dialogue. the North clears more land for exploration. traders, and reintegration programmes for ” Sudan currently spends $1million a day on youth and former militia. However, real pursuing the war, a figure roughly progress can only be made if the structural

OCTOBER 2001 · SAFERWORLD FOCUS 3 Managing conflict risks in Karamoja

Simon Peter Egadu, Deputy Co-ordinator, Karamoja Projects Implementation Unit (KPIU)

KARAMOJA REGION IN NORTHEAST UGANDA has gained notoriety for its high levels of conflict, which threaten security in neighbouring districts in Uganda and Kenya. Yet in the midst Participatory approaches were of this tension, an EU funded project is helping to promote development. The involvement of civil “adapted and used at all stages of society in the project has been fundamental to its success and provides valuable lessons on how the project cycle and communities the Cotonou Agreement can be implemented in pastoral areas in the Horn of Africa experiencing were given the responsibility to similar challenges. define their own priorities on issues they felt needed EU attention. The people, who are predominantly agro- was designed to increase food production ” pastoralists, are among the poorest in and to improve the local economy. In 1988 with the changing priorities of the Uganda with the majority of the population KDP was handed over to the Government- communities. surviving on less than one dollar a day. owned Karamoja Development Agency r Ensuring the involvement of communi- Under-development in the area is evident in (KDA), but because it did not function well, ties through participatory approaches. all sectors, particularly education, causing the EU withdrew funding. r Initiating and supporting community- great concern. Karamoja is semi-arid and The Karamoja Project Implementation oriented projects in order to promote four times in the last ten years, drought has Unit (KPIU) was established in August and guarantee ownership and sustain- resulted in famines and serious food short- 1995 with the aim of involving the local ability. ages. The area has faced gradual vegetation communities more actively to contribute to 2. Large-scale projects should be excluded degeneration since the 1960s. Increasing the reduction of conflict in the region. from community development projects. levels of gun-related violence compound Participatory approaches were adapted r Participatory methods are not necessarily the environmental vulnerability. and used at all stages of the project cycle and suitable in such projects as not everyone communities were given the responsibility will have a clear view of the complexity to define their own priorities on issues they Increasing levels of gun- and implications of such projects. felt needed EU attention. Five key sectors r Large, expensive and complex infra- “related violence compound the were identified for development including structure projects put too heavy a strain water, livestock, agriculture, environment environmental vulnerability. on the communities’ resources. ” and support to community development activities. The unit has sought to support 3. Gender sensitivity is important at all Causes of conflict in Karamoja the following: stages of project development. Some of the main causes of conflict in the r The establishment of schools to help region include: Conclusion increase the level of education in the r Absence of effective and clear region. In community development, the main government policy on land and resource r The developments of micro credit objective is to strengthen the capacity of management. programmes, which are expected to offer communities to implement and manage r Growing competition over grazing land alternative sources of livelihood and thus their own development. This project and water. help diversify the local economy, that provides lessons for community and civil r Competition over livestock due to relies heavily on livestock rearing. society involvement in EU programming. Many pastoral areas in the Horn of Africa successive famines. r The creation of environmental sector still face high levels of conflict. The lessons r Existence of great wealth disparity and projects through the management of learned by the EU in Karamoja provide inequality. privately-owned tree nurseries and tree valuable opportunities for other r The collapse of traditional authority and planting. communities and could provide a model ineffectiveness of modern institutions of r The provision of valley dams and tanks for the effective implementation of the governance. to make available adequate water for r Cotonou Agreement to help prevent violent The fragile ecological balance. livestock, thus preventing movement to conflict by involving civil society at all stages r The growing lack of socio-political co- neighbouring districts in search of water. hesiveness between different generations. of project planning and operation. r Availability of small arms. Lessons learned from the Karamoja Since this article was written, Saferworld, experience APFO and IAG have learned that the EU Insecurity arising from conflicts has plans to end direct support for this project. adversely affected this already impoverished Through the process of EU engagement the This is concerning as it has been a positive area. Donors have an important role to play following lessons have emerged: example of how donors can support local in helping address this situation. 1. Projects can be implemented with peace-building initiatives. EU assistance to Karamoja communities as long as the communities The presence of the EU in Karamoja dates are involved in the whole process. Generally … the main objective is to the EU has been successful in Karamoja by back to 1981 when the EU supported the “strengthen the capacity of Karamoja Emergency Development employing an innovative new three- Programme (KEDP) in response to famine. pronged approach: communities to implement and r The EU then supported the Karamoja Establishing and maintaining a structure manage their own development. Development Programme (KDP), which in the form of KPIU capable of coping ”

4 SAFERWORLD FOCUS · OCTOBER 2001 Engendering peace-building efforts in Sudan: a Netherlands Initiative

Jos Hoenen, Royal Dutch Embassy, Nairobi

FOR DONORS ATTEMPTING TO SUPPORT PEACE IN SUDAN, the focus has been role in the peace process. As Sudanese largely on the IGAD peace process with less attention given to the local efforts of civil society. women organise themselves to influence the peace process, they are also paving the way This article describes how one European donor is supporting peace-building in Sudan. It provides for attaining stronger positions for them- insights into how women, representing different communities, civil society and political parties, selves in society and for attracting greater are bringing benefits to conflict-affected communities in Sudan. Programmes such as this provide attention to their issues. important lessons for the EU in implementing the Cotonou Agreement, which allows for support Due to the continuously changing social- political environment in Sudan, it is of “effective mechanisms for the peaceful conciliation of group interests, and for bridging dividing important that a flexible planning approach lines among different segments of society.” (Article 11, Cotonou Agreement) be adopted where Sudanese women take the lead. During phase 2 the Netherlands Government will play a less dominant role in the priority setting, planning and Background finally result in recognised and long-term implementation of activities. Men dominate participation in both politics peace benefits for Sudan: Several activities have already been and conflict in Sudan and whilst women r The importance of the role of women has identified within the programmes designed contribute to settling inter-clan disputes, been recognised and political leaders are by the women, including: their participation at higher levels has been expressing interest in the participation of r Grassroots activities – greater attention minimal due to constraints such as: a lack women in peace processes. of recognition of their role; low levels of for- to peace and empowerment activities at r mal education; poor access to information; Women have become more organised community level and a lack of space for debate. However, the and are working to achieve a common r Bottom-up networking – strengthening Netherlands Government is attempting to objective. linkages between community, national redress this balance though the initiation r There is increased political awareness of and international levels. of a facilitation process in support of the the role of women and their communities r International networking – strengthening peace-making efforts of women. The in political processes. co-operation between Sudanese women concept of ‘engendering the peace process’ r There is enhanced participation of and IGAD, women leaders from IGAD was developed by the Women and women in international events leading countries, and the international Development Department of the Ministry to greater awareness of peace processes community at large. of Foreign Affairs, initially for Israel in 1997. in Sudan. r Action-research and documentation – The Netherlands Embassy in Khartoum r Training in conflict resolution and identifying research priorities and then adopted it as a programme in support establishing a documentation centre. of women’s participation in the peace mediation, and learning from process in Sudan after confirming keen experiences in South Africa, is enhancing r Promotion of the efforts of Sudanese interest in the process by Sudanese women. local capacity for peace-building. women through various media including website and newsletter contributions. The way forward – Phase 2 Men dominate participation r Workshop organisation and participation Conclusions drawn from Phase 1 indicate of Sudanese women in international in“ both politics and conflict in that in order to contribute effectively to conferences. peace efforts, co-ordination at all levels Sudan … r Enhancing accountability and organisa- needs to be enhanced, and communities – ” tional capacity; increasing access to other at the grassroots level – need to be included The peace initiative – Phase 1 donors. more comprehensively. Nine working committees, representing The Netherlands, as a member state of the different communities and political parties EU, is playing an important role in develop- … empowered women can play from North and , have been ing approaches in support of civil society. established. These women’s committees “a more effective role in the peace Such projects provide real lessons for the provide a link between conflict-affected EU and other donors in the context of local communities and provide space where process. peace-building and civil society, and women can voice their concerns and where ” importantly, show that the principles of joint North-South meetings are possible. Phase 2 of the initiative, ‘Support to Cotonou can be implemented in innovative The initiative uses a number of tools and Sudanese Women’s Empowerment for and inclusive ways. approaches such as hearings, training Peace’ aims to build on and strengthen programmes for conflict resolution & existing Sudanese women’s initiatives to mediation, North-South meetings and attain a just and sustainable peace. The Such projects provide real international events. main fields of intervention will be ‘women “lessons for the EU and other donors and peace-building’ and ‘empowerment of Results women’. These two fields are crucial and are in the context of local peace- Some important achievements have been based on the assumption that more em- building and civil society … made which can be built on and which may powered women can play a more effective ”

OCTOBER 2001 · SAFERWORLD FOCUS 5 Update from the EU

AT LAST CONFLICT PREVENTION IS FIRMLY ON THE EU’S AGENDA. The past Common Position on Conflict year has seen new support for policy initiatives emerging from Europe. This is in part due to the very Prevention, Management and Resolution in Africa high profile which the Swedish Government gave to conflict prevention during its presidency of the The General Affairs Council adopted a EU (January 2001 to July 2001). The support also emerges from a willingness at the highest level, to Common Position on Conflict Prevention, avoid the costly mistakes of the past in failing to prevent conflict in the Balkans and Great Lakes. Management and Resolution in Africa Progress is evidenced by a number of developments including: 15 May 2001. It aims to strengthen African capacities for conflict prevention, ensure regular surveys to identify potential violent conflict in Africa, improve the support for Conflict Prevention Action Programme: rule of law and civilian administrations as African peacekeeping capacities, and ‘Programme for the Prevention of well as civil protection in crisis-affected highlights the strategic role of development Violent Conflicts’ countries. Whilst this support is welcome, co-operation in conflict prevention and The Swedish Government’s ‘concrete there is yet no clear understanding as to how post-conflict rehabilitation. The Council programme for conflict prevention’ was transition processes for long-term peace invited the Belgian Presidency to develop presented and endorsed at the European and stability will be undertaken. the application of these policies with Council summit in Gothenburg in June reference to the Great Lakes region. 2001. Many of the proposals in the The Patten/Solana conflict prevention programme are affirmations of previous paper The Council invited the Belgian commitments but there are some new A report Improving the coherence and initiatives including: a Council debate on effectiveness of EU action in the field of “Presidency to develop the potential conflict issues at the start of each conflict prevention was presented at the application of these policies with presidency to identify priority areas and Nice summit in December 2000 by Javier regions for EU action; a commitment for all Solana, the EU’s Foreign Policy High reference to the Great Lakes relevant EU institutions to mainstream Representative and Chris Patten, the region. conflict prevention; and joint training Commissioner for External Relations. This programmes for UN, OSCE and EU field report has helped to elevate the debate on ” and headquarters personnel. There is also conflict prevention to heads of state level Communication on Linking Relief, a commitment to develop instruments in and makes a compelling case for preventive Rehabilitation and Development areas such as expertise on human rights and action. However, whilst it does identify This Communication was published in democracy, fact-finding missions, disarma- some key areas for action, it is short on May 2001 and responds directly to the EU’s ment, demobilisation and reintegration concrete proposals to follow these through. acknowledged failing to effectively co- and demining. A report on progress in ordinate the activities of the EU, its member implementation is due to be submitted to states and UN agencies. Like the This report has helped to elevate the European Council in Seville in 2002. Communication on Conflict Prevention, This will be a test of whether the EU is really “the debate on conflict prevention it suggests using Country Strategy Papers as committed to “improve its capacity to a central reference for guiding interventions prevent violent conflict and to contribute to to heads of state level and makes a at different stages of the crisis cycle. It a global culture of prevention.” compelling case for preventive specifically suggests adding a work programme to these Papers in cases where action. This will be a test of whether ECHO or the Rapid Reaction Mechanism ” (RRM) funding will be utilised. “the EU is really committed to Linking conflict prevention to development assistance UK Government initiatives ‘improve its capacity to prevent Conflict prevention is now an explicit In the UK, DFID along with the Ministry violent conflict and to contribute to objective of new European Commission of Defence (MoD) and the Foreign and a global culture of prevention.’ (EC) Development Policy, which focuses Commonwealth Office (FCO), produced a on poverty reduction and requires that Consultation Document in March of this ” year, which looked at the causes of conflict The Swedish Presidency also looked at development assistance should be targeted in Africa. Besides this being an important the issue of civilian crisis management and to address the root causes of violent conflict. step in understanding conflict better, the identified concrete targets to fill capability Commission Communication on document is unique in that it represents a gaps in this area. Such a capability will cross-ministerial approach to conflict and enable Europe to respond more effectively Conflict Prevention poverty analysis. In addition, the UK to requests from the UN and OSCE. As part In April, 2001 the EC adopted a Government has set up a global fund for of the programme, the EU will seek to ‘Communication on Conflict Prevention’. conflict prevention which is a cross- employ police for international missions to The document contains a comprehensive governmental initiative involving the FCO, strengthen local police capabilities and to review of all recent EU initiatives to DFID and MoD. The successful implemen- perform executive police functions when promote peace and stability and proposes tation of these initiatives is critical if local structures are failing. Member States of a consolidated EU approach to conflict coherence of government policies is to the EU agreed a ‘Police Action Plan’ for the prevention. The Communication is a become a reality. planning and conduct of European policing follow-up to the joint report on conflict operations. Besides the issue of policing, prevention prepared at the Nice Summit in Member States also looked at support to the December 2000.

6 SAFERWORLD FOCUS · OCTOBER 2001 Update from the Horn

Cotonou Consultations Regional progress has been made this year with the A forthcoming meeting, being organised start of a process to strengthen and Consultations are being held in a number for October this year by APFO, IAG and harmonise legislation, increasing national of countries between the EU, national Saferworld, will take forward the Cotonou co-ordination with the creation of inter- governments and civil society to discuss theme in the region. The roundtable, which agency focal points, moves to enhance the conflict prevention, poverty alleviation and is being organised back-to-back with an EC operational capacity of law enforcement the implementation of the Cotonou heads of delegation meeting in Nairobi, will agencies and improve cross-border Agreement. For the Horn, progress in being provide an opportunity for civil society co-operation, and the establishment of the made in Ethiopia, Djibouti and Kenya with from across the Horn, and the EU to discuss Nairobi Secretariat in the Kenyan Ministry meetings planned for the remaining IGAD resource-based conflict risks and priorities of Foreign Affairs to co-ordinate countries. The meetings are being organised for the implementation of the Cotonou implementation. to inform the development of Country Agreement. Support Programmes across the region and Somalia to establish mechanisms through which the Peace-building and conflict Somalia’s Transitional National EU can form more effective partnerships Government (TNG), through the Ministry with non-state actors. prevention in the Horn of Livestock of Somalia, issued a directive on 4 September 2001, which aims to ban Ethiopia Djibouti charcoal exports. The takes effect on The Ministry of Economic Development In May 2001, the Djibouti Government and 10 September and will be backed by law. and Co-operation and the European Union the Front for the Restoration of Unity and This also means that foreign-owned ships in Addis Ababa jointly organised a one-day Peace (FRUD) signed an agreement which will face arrests and fines if they are caught workshop in March. The workshop may finally end Afar insurgency in northern smuggling charcoal. Ending the trade will discussed the draft Country Support and south-western Djibouti. The agreement require co-operation among Arab Strategy (CSS) for Ethiopia. The workshop was signed by FRUD leader Ahmed Dini countries, Somali traders, communities was attended by various donor agencies, and Djibouti’s Interior Minister Abdallah and donors. “Enforcement of the ban will international and local NGOs, members of Abdillahi Miguil. Ahmed Dini had led Afar also depend on the ability of the TNG to set up the private sector and individuals. Among insurgency in northern Djibouti from 1991 territorial control and an effective justice the issues raised was the absence from the to 1994, after which the moderate wing of system”. draft CSS of significant issues such as FRUD signed an agreement with the (Source: IRIN 10 September) gender, engagement of civil society Government. organisations, pastoralism, and resource Uganda Ethiopia allocations. The meeting represented the According to an IRIN report, the govern- first step in a process designed to involve Progress in being made in normalizing ment of Uganda will attempt to disarm civil society in national development relations between Ethiopia and Eritrea Karamojong pastoralists in northeastern planning under the Cotonou Agreement. despite the serious issues which still have to Uganda following the imposition of a state A follow up meeting organised by IAG was be addressed. A Temporary Security Zone of emergency which was called after held in August which addressed critical (TSZ) has been established as part of the continued armed attacks by Karamojong conflict risks at local, national and regional implementation of the Agreement on the warriors. The Government of Uganda had levels. Cessation of Hostilities. Kofi Annan, the been criticized for failing to disarm the UN Secretary-General, has called on Karamojong as a 12-month deadline for Djibouti Ethiopia and Eritrea to resolve their disarmament, set by parliament, passed Meetings, organised by IAG in Djibouti also outstanding issues and to ensure effective without guns being handed in. The focused on implementation of the Cotonou demilitarisation. He also stressed the Government admitted that pastoralists agreement and the necessity of involving importance of the Boundary Commission from the Karamoja sub-region used arms civil society in national consultations. mandated to delimit and demarcate the provided by the government to launch raids Although civil society is still coming to grips border between the two countries, and into Katakwi. “The Government initially with the challenges posed by Cotonou there “resolve the dispute that caused the war” gave weapons to small groups of ‘home is real interest and commitment to the (Source: IRIN, 21 June 2001). guards’ within Karamoja to enable the process. population to defend itself against raids from Kenya other pastoralist groups in the region”. Kenya The need to tackle the spread of small arms (Source: IRIN: 6 September, 2001) An newly emergent ‘Friends of Cotonou’ in the sub-region is high on the political group is spear-heading the national agenda. Foreign ministers from 10 countries consultation process in Kenya. The group signed the ‘Nairobi Declaration on the of like minded NGOs includes Econews (the problem of the proliferation of illicit small East Africa focal point for Cotonou) as well arms and light weapons’ in March 2000. as APFO and other NGOs and academics This was then supplemented in November working for peace in the region. A national by the agreement by senior government consultation is planned for September. officials of a ‘Co-ordinated Agenda for Meetings are now also being planned for Action’ and ‘Implementation Plan’. These Uganda, Somalia and Eritrea. set out the legislative and operational steps that governments have pledged to take. The challenge is ensuring that these documents are effectively implemented. Promising

OCTOBER 2001 · SAFERWORLD FOCUS 7 Conflict and Early Warning in the Horn

THE LACK OF PRIOR WARNING OF to provide feedback on the proposed given which outlined successful commu- CONFLICTS, and of a structure through CEWARN framework and to ensure that nity peace-building initiatives.One particu- which action can be taken to address them, the model incorporated the views of a wide lar model, derived from lessons learned has been highlighted as a key priority in the audience of both state and non-state from Wajir in Kenya, underscored the need Horn of Africa. The Inter-Governmental representatives. for close co-operation between local Authority on Development (IGAD) is In August this year, state and civil society administrations, law enforcement officers, developing a Conflict Early Warning and actors from across the IGAD sub-region and local communities. Indeed, throughout Response Mechanism (CEWARN) as part came together in Ethiopia to discuss the the meeting, presentations and discussions of its peace and security agenda. IGAD, concrete development of CEWARN. The gave significant attention to the role of civil with support from donors USAID and meeting specifically attempted to develop society. There was general consensus on the GTZ, has commissioned the Forum on mechanisms for responding to conflicts in vital role of civil society in providing early Early Warning and Early Response pastoral areas along borders. Two case- warning information, and the need to work (FEWER) to undertake a study of the studies were presented which examined together to develop long-term solutions. feasibility of developing a CEWARN and to conflict along the Kenya-Uganda-Sudan Following the meeting, legal experts design a process for taking this forward. border, and along the Kenya-Ethiopia- came together to discuss the legal A three-phased approach was under- Somalia border. The case studies high- ramifications and requirements for making taken with a number of workshops and lighted the need for harmonised approaches CEWARN a functional and effective consultations. Meetings in Nairobi and to cross-border conflict and for building on operation. Hopefully this will enable the Kampala in 2000 brought together existing mechanisms at local, national and mechanism to be implemented soon at the participants from across the sub-region sub-regional level. Presentations were also national and sub-regional level.

Publications

Conflict-sensitive approaches to Forum, Inter Africa Group, Saferworld The proliferation of small arms, control development, a review. Cynthia Gaigals publication, 2001 and management through indigenous with Manuela Leonhardt, Saferworld, approaches. J. Egesa and K. Mkutu, Prevention of violent conflict and the 2001 Africa Peace Forum, 2000 coherence of EU policies towards the Prevention of violent conflict and the Horn of Africa: report of the Brussels Peace and policy, discussion forums, coherence of EU policies towards the seminar, June 2001, Africa Peace Forum, Africa Peace Forum, 2000 Horn of Africa: a case study on pastoral Inter Africa Group, Saferworld Peace initiatives in the Democratic conflict and small arms proliferation in publication, 2001 Republic of Congo. Africa Peace Forum, Laikipia, Kenya. K. Mukutu, APFO- Implementing the Nairobi Declaration on 2000 Saferworld publication, 2001 the problem of the proliferation of illicit The EU’s Common Foreign and Security Prevention of violent conflict and the small arms and light weapons in the Policy: Opportunities for a more effective coherence of EU policies towards the Great Lakes region and the Horn of EU response to crisis-affected countries Horn of Africa: report of the Addis Ababa Africa, Nairobi Secretariat, 2001. in Africa. ECDPM discussion paper seminar, March 2001, Africa Peace No. 22 ✄ Order form / Subscription Please send me: QUANTITY COST TOTAL Name ______Future copies of Focus Free ______Address______Conflict-sensitive approaches to development, £10* ______a review ______Prevention of violent conflict and the coherence £10* ______of EU policies towards the Horn of Africa: a case study on pastoral conflict and small arms Postcode ______proliferation in Laikipia, Kenya ______Prevention of violent conflict seminar reports £10* ______Comments on Focus ______Conflict Case Studies: ______Djibouti £10* ______Uganda £10* ______Awash Valley £10* ______

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