Peace by Piece:Addressing Sudan’S Conflicts an International Review of Peace Initiatives

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Peace by Piece:Addressing Sudan’S Conflicts an International Review of Peace Initiatives Accord18.Cover 04 11/12/06 22:52 Page 1 Issue 18 2006 A ccor d 18 Conciliation Resources Peace by piece:addressing Sudan’s conflicts an international review of peace initiatives The signing of the Comprehensive Peace Agreement (CPA) on 9 January 2005 was hailed by some as the dawn of a new era for Sudan. However, Sudan has a number of interlocking conflicts that cannot be fully addressed by a bilateral agreement.The CPA is just one part – if a very significant one – of a piecemeal approach to resolving Sudan’s conflicts that has produced separate agreements for Darfur and eastern Sudan. It is unclear if these can fit together as the jigsaw pieces of a comprehensive peace – or what pieces are still missing. The Sudanese conflict and peace processes Peace by piece: addressing Sudan’s conflicts is a study of a work in progress. It looks back at the process that led to the CPA,identifying what difficult issues were tackled and how, and what decisions were deferred. It asks which constituencies, interests and issues were excluded from the process, and suggests that future initiatives must be more inclusive and better coordinated if they are to help build a lasting peace. Produced in partnership with Concordis International and featuring contributors from different sides of Sudan’s conflicts, this issue of Accord presents perspectives on the process that led to the CPA, examines the difficulties in reaching an agreement on Darfur and includes accounts of other peacemaking initiatives. It also contains detailed information on peace agreements, profiles of key actors and a chronology. Conciliation Resources and the Accord series Conciliation Resources (CR) is an international non-governmental organization that supports people working to prevent violence, promote justice and transform armed conflict.CR’s Accord projects aim to inform and strengthen peace processes,providing a unique resource on conflict and peacemaking.Working collaboratively with locally based organizations,we document peace processes,increase understanding and promote learning from past and comparable peacemaking experiences. “… we use your publications as part of our briefing materials for Norwegian personnel undertaking international assignments in the field of democracy and human rights in various parts of the world.” Kristin Høgdahl,Norwegian Institute of Human Rights “Resource material such as Accord is of great help for those of us Peace by piece working in this field.” Conciliation Resources Ambassador Bethuel Kiplagat,Africa Peace Forum Addressing Sudan’s conflicts The full text of all issues in the Accord series can be found on the Conciliation Resources website at http://www.c-r.org £17.00 Issue Editors Mark Simmons and Peter Dixon Accord 18_43 13/12/06 13:31 Page 1 Peace by piece Addressing Sudan’s conflicts Issue Editors: Mark Simmons and Peter Dixon Conciliation Resources London 2006 Accord 18_43 13/12/06 13:31 Page 2 Acknowledgements Accord Series Editor Aaron Griffiths Issue Editors Mark Simmons and Peter Dixon Director of Policy, Communications and Comparative Learning Celia McKeon Communications Manager Sarah Wheeler Events and Marketing Officer Georgina Burns Executive Director Andy Carl Conciliation Resources would like to extend grateful thanks to our authors, peer readers, photographers, translators and all those who contributed to consultation and analysis in the process of putting this publication together, especially: Mark Bradbury, Hassan Abdel Ati, Maha Abu Shama, Amira Yousif Abu Tawilla, Yahia Adam Abdalla, Daniel Awet Akot, Mona Ayoub, Atta el-Battahani, Luka Biong Deng, Omer Egemi, Bjoern Eser, El-Tayib Haj Ateya, Caroline Gullick, Musab Hayatli, Tim Hayden-Smith, Fink Haysom, Cirino Hiteng Ofuho, Tim and Jo Holmes, Julian Hottinger, Mohamed Mukhtar Hussein, Anne Itto, Douglas Johnson, Tania Kaiser, Sayed el-Khatib, Marv Koop, as-Sadiq al-Mahdi, Taj es-Sir Mahjoub, Jason Matus, Michael Medley, Mohamed Osman al-Mirghani, Hafiz Mohamed, Paul Murphy, Laurie Nathan, Sara Pantuliano, Suleiman Rahhal, John Ryle and the Rift Valley Institute, Ahmed Saeed, Catherine Simmons, Lazaro Sumbeiywo, Alfred Taban, Jostein Tellnes, Alex de Waal and Ngele Waweru Ali. The publication was made possible thanks to the financial support of the UK Department for International Development (DFID), the Swiss Federal Department of Foreign Affairs and the Swedish International Development Cooperation Agency (SIDA). Published by Conciliation Resources 173 Upper Street London N1 1RG United Kingdom Telephone +44 (0)20 7359 7728 Fax +44 (0)20 7359 4081 Email [email protected] Website http://www.c-r.org © Conciliation Resources 2006 Permission is granted for reproduction and use of these materials for educational purposes. Please acknowledge your source when using the materials and notify Conciliation Resources. UK charity registration number 1055436 ISSN 1365-0742 ISBN 1-905805-01-2 Front cover: Sudanese reflected in a pool of rain water, September 2005. Source: Reuters/David Mwangi Accord 18_43 13/12/06 13:31 Page 3 Acronyms 4 Map 5 Introduction 6 Mark Simmons and Peter Dixon A complex web: politics and conflict in Sudan 10 Atta el-Battahani Land and conflict in Sudan 14 Mona Ayoub Major Sudanese peace processes and agreements 16 The IGAD peace process and the Comprehensive Peace Agreement Contents Negotiating peace: the road to Naivasha 18 Mohamed el-Mukhtar Hussein Negotiating peace: restarting a moribund process 20 Cirino Hiteng Ofuho The mediator’s perspective 22 An interview with General Lazaro Sumbeiywo Reflecting on the IGAD peace process 28 An interview with Nicholas (Fink) Haysom A summary of the Comprehensive Peace Agreement 32 The three areas: a template for regional agreements 34 Jason Matus The unexpected deal: oil and the IGAD process 38 Jostein Tellnes Planning for reconstruction: the Joint Assessment Mission 42 Taj es-Sir Mahjoub Peace for everyone? The Darfur Peace Agreement: expectations unfulfilled 46 Julian Thomas Hottinger Failings of the DPA 50 Laurie Nathan The DPA and its national context 51 Alex de Waal A summary of the DPA and ESPA 52 Land and the peace processes 54 Omer Egemi Guests at the table? The role of women in peace processes 56 Anne Itto The role of track two initiatives 60 Peter Dixon and Mark Simmons The delicate practice of supporting grassroots peacebuilding in southern Sudan 64 Paul Murphy Untapped potential: civil society and the search for peace 68 Hassan Abdel Ati Hopes for the future: the case of Sudanese refugees in Uganda 72 Tania Kaiser The limitations of bilateral governance 74 As-Sadiq al-Mahdi The imperative of decentralization 76 Daniel Awet Akot Key texts and agreements 78 Profiles 82 Glossary 89 Chronology 90 Further reading 99 Accord Series 100 About Conciliation Resources and Concordis International 102 Order form 103 Contents 3 Accord 18_43 13/12/06 13:31 Page 4 Acronyms ABC Abyei Boundaries Commission NRF National Redemption Front AEC Assessment and Evaluation Commission NSCC New Sudan Council of Churches AMIS African Union Mission in Sudan NSP National Strategic Plan AU African Union OLS Operation Lifeline Sudan CPA Comprehensive Peace Agreement PDF Popular Defence Force DDDC Darfur-Darfur Dialogue and Consultation PNC Popular National Congress DoP Declaration of Principles SAF Sudan Alliance Forces (NDA) or Sudanese DPA Darfur Peace Agreement Armed Forces (government) DRDF Darfur Reconstruction and SANU Sudan African National Union Development Fund SCC Sudan Council of Churches DUP Democratic Unionist Party SCP Sudan Communist Party EDF Equatoria Defence Force SLM/A Sudanese Liberation Movement/Army EF Eastern Front SPDF Sudan People’s Democratic Front ELI Egyptian-Libyan Initiative SPF Sudan Peace Fund ESPA Eastern Sudan Peace Agreement SPLM/A Sudan People’s Liberation Movement/Army GNU Government of National Unity SRRA Southern Sudan Relief and GoS Government of Sudan Rehabilitation Agency GoSS Government of Southern Sudan SSDF South Sudan Defence Forces ICC International Criminal Court SSIG South Sudan Independence Group ICF Islamic Charter Front SSIM/A Southern Sudan Independence IDP Internally Displaced Person Movement/Army IGAD Intergovernmental Authority SSLM South Sudan Liberation Movement on Development* SSU Sudanese Socialist Union IGADD Intergovernmental Authority on SSUM/A South Sudan Unity Movement/Army Drought and Development* TDRA Transitional Darfur Regional Authority IMF International Monetary Fund TMC Transitional Military Council IPF IGAD Partners Forum UDSF Union of Democratic Sudanese Forces JAM Joint Assessment Mission UNDP United Nations Development Programme JEM Justice and Equality Movement UNESCO United Nations Educational, Scientific and JIU Joint Integrated Unit Cultural Organization LRA Lord’s Resistance Army UNHCR United Nations High Commission MDTF Multi-Donor Trust Fund for Refugees NCP National Congress Party UNICEF United Nations Children’s Fund NDA National Democratic Alliance UNMIS United Nations Mission in Sudan NGO Non-Governmental Organization USAP Union of Sudan African Parties NIF National Islamic Front NPC National Petroleum Commission *IGADD was renamed IGAD in March 1996. 4 Accord 18 Accord 18_43 13/12/06 13:31 Page 5 Map of Sudan Map of Sudan 5 Accord 18_43 13/12/06 13:31 Page 6 Crowds gather in Khartoum in July 2005 as John Garang is sworn in as Vice-President Source: Sven Torfinn/Panos Pictures Introduction Mark Simmons and Peter Dixon he signing of the Comprehensive Peace Agreement (CPA) in Nairobi on 9 January 2005 was hailed by T leaders from around the world as the dawn of a new era for Sudan. Uganda’s President Yoweri Museveni described the scene: “We saw here the reality of the Sudan when they were dancing, the people of the turbans and the people of the ostrich feathers. How do they live together respecting each other’s culture? This has been the problem of the Sudan.” Two years on, it is not clear whether Sudan has moved any closer to answering Museveni’s question. There is, though, an underlying flaw in the question: implicit in his observation is the common tendency to describe Sudan’s conflicts in simplified terms, north and south, Arab and African.
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