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Choosing to Engage:Armed Groups and Peace Processes

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Issue 16 2005 A ccor d Conciliation Resources 16 Choosing to engage:armed groups and peace processes Non-state armed groups are central figures in many of the world’s internal armed conflicts.Their objectives and use of an international review of peace initiatives violence spark deep controversy about appropriate responses to their actions,particularly in the context of the global ‘war on terror’.Yet in the last two decades armed groups have participated in peace processes on every continent,resulting in a wealth of experiences of dialogue and peace negotiation involving state actors,civil society groups,foreign governments and multilateral organizations. Choosing to engage: armed groups and peace processes This Accord issue draws on these experiences to explore the case for engagement with armed groups and lessons learned from peacemaking practice.Highlighting both the opportunities and challenges of this approach,it suggests that the diversity of engagement options and potential interveners makes a strong argument for greater commitment to engagement by all stakeholders.The publication combines the voices of armed groups,governments and intermediaries for a rich and varied set of perspectives on five key issues:the challenge of understanding armed groups;armed groups’choices about peacemaking;political and humanitarian engagement options; the roles of governmental and non-governmental actors;and the impact of asymmetries in a state-based international system. With case studies from twelve countries complementing analytical overviews of these issues,Choosing to engage:armed groups and peace processes highlights important lessons and good practice for future peacemaking efforts involving armed groups. Conciliation Resources and the Accord programme Conciliation Resources (CR) is an international non- governmental organization,which supports people working to prevent violence,promote justice and transform armed conflict. CR’s Accord programme aims 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. “Accord is an incredible source of valuable insight and information,indispensable for any peace or conflict worker.” Johan Galtung,Professor of Peace Studies and Director of TRANSCEND. Choosing to engage “Accord offers very interesting and informative reporting.It will Conciliation Resources greatly contribute to our own knowledge and wisdom as we work in this complex field of peacebuilding and conflict Armed groups and peace processes resolution in Africa.” Joseph W.Butiku,Executive Director, The Mwalimu Nyerere Foundation,Tanzania ISSN 1365-0742 £17.00 Issue Editor Robert Ricigliano The full text of all issues in the Accord series can be found on the Conciliation Resources website at http://wwwc-rorg Choosing to engage Armed groups and peace processes Issue Editor: Robert Ricigliano Conciliation Resources London 2005 Acknowledgements Accord Series Editor Celia McKeon Issue Editor Robert Ricigliano Accord Editor/Researcher Aaron Griffiths Accord Communications Coordinator Sarah Wheeler Accord Distribution Coordinator Nathalie Wlodarczyk Accord Programme Supervisor Andy Carl The focus of this thematic project was developed through a consultation process in early 2004 and further refined during an international joint analysis workshop in June that year. Conciliation Resources would like to extend grateful thanks to our authors, peer readers, photographers, translators and those who contributed to these consultation and analysis processes, especially: Natalia Aiello, Ilyas Akhmadov, Lam Akol, Mehmet Balci, Pascal Bongard, Dan Borjal, Peter Bowling, Mark Bradbury, Jimmy Carter, Jaime Casas, Diana Chigas, Alastair Crooke, Majak D’Agoot, Teresita Quinto Deles, Tom De Waal, Sarah Douglas-Pennent, David Fairman, Austin Fernando, Miriam Coronel Ferrer, Vicenç Fisas, Frances Fortune, Jean-Pierre Gontard, Claudine Haenni, Tore Hattrem, Fink Haysom, Kristian Herbolzheimer, Bryn Higgs, Fiona Hill, Matt Hodes, Julian Hottinger, James Hughes, Chris Hunter, Bruce Jones, R. Nimalan Karthiksyan, Stephan Klingebiel, Steven Lanjouw, Miriam Lanskoy, Kim Maynard, Clem McCartney, Brian McQuinn, Mo Mowlam, Terence Nahimana, Reuven Paz, David Petrasek, Liz Philipson, Pablo Policzer, Magnus Ranstorp, Elisabeth Reusse-Decrey, Hans Romkema, Visuvanathan Rudrakumaran, Kris Ruggiero, John Ryle, Rashid Sandi, Pakiasothy Saravanamutu, Rene V. Sarmiento, Onno Seroo, Alan Smith, Steve Smith, Saw David Taw, Yonatan Touval, Jan Van Eck, Joaquín Villalobos, Stein Villumstad, Janine Voigt, Terry Waite, Sue Williams. 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 E-mail [email protected] Website http://www.c-r.org © Conciliation Resources 2005 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 Commanders of the Patriotic Movement of Côte d'Ivoire participate in a meeting with the Economic Community of West African States contact group at Bouake, October 2002. Source: PA Photos/EPA Introduction 4 Robert Ricigliano The case for engagement 10 An interview with President Carter Understanding armed groups Understanding armed groups 14 Sue Williams and Robert Ricigliano Assessing groups and opportunities: a former government minister’s perspective 18 An interview with Mo Mowlam Contents Attempting to understand: an intermediary’s perspective 22 An interview with Terry Waite Chechen resistance: myth and reality 26 Ilyas Akhmadov Armed groups’ choices From armed struggle to political negotiations: Why? When? How? 30 Clem McCartney The Salvadorean insurgency: why choose peace? 36 Joaquín Villalobos Choosing to engage: strategic considerations for the Karen National Union 40 Saw David Taw Humanitarian and political engagement Vive la différence? Humanitarian and political approaches to engaging armed groups 44 David Petrasek The struggle against landmines: an opening for peace talks in Colombia 48 Elisabeth Reusse-Decrey Operation Lifeline Sudan: war, peace and relief in southern Sudan 52 Lam Akol Track one - track two interaction The relationship between track one and track two diplomacy 56 Julian Thomas Hottinger Ceasefire negotiations in eastern Democratic Republic of Congo 60 Steven A. Smith Building links and sustaining momentum: reflections on track two roles at the Lomé peace talks 64 Rashid Sandi and Frances Fortune The impact of asymmetries Engaging armed groups: the challenge of asymmetries 68 Liz Philipson Facilitating dialogue with armed insurgents in the Philippines 72 Rene V. Sarmiento In search of respect at the table: Hamas ceasefires 2001-03 76 Alastair Crooke Asymmetries in the peace process: the Liberation Tigers of Tamil Eelam 80 Visuvanathan Rudrakumaran Engaging armed groups in peace processes: lessons for effective third-party practice 8 4 Nicholas (Fink) Haysom Key texts and agreements 90 Further reading 96 Glossary 98 Acronyms 100 About Conciliation Resources 101 Accord series 102 Order form 104 Contents 3 Filipino Muslim and Christian students march in Jolo to call for the resumption of negotiations between the government and the armed group Abu Sayyaf, August 2000. Source: Reuters/Romeo Ranoco Introduction engaging armed groups in peace processes or people living in the Darfur region of western Sudan, the jungles of Colombia, the eastern parts Fof the Democratic Republic of Congo, and for millions of others around the world, the presence of non-state armed groups and the conflicts that often Robert Ricigliano surround them are all too familiar. Over the last two decades, whether in the context of a peace process or a humanitarian initiative, armed groups have come to be seen as key actors in efforts to ease suffering and rebuild conflict-torn societies. In a September 2004 report, the United States Air Force Institute for National Security Studies concluded that, “armed groups are no longer minor players in a world once dominated by states”. However this increased awareness of the importance of armed groups has caused problems. In particular, since 11 September 2001, armed groups have been looked at in a different light – as potential terrorist organizations and possible new cells in an ever more menacing international terrorist network. Thus, engaging, or more accurately, not engaging with them has taken on a whole new meaning. The result has been a pronounced incoherence in policies of governmental and non- governmental actors toward whether and how to engage with armed groups. Pablo Policzer, of the Armed Groups Project and the University of Calgary, puts the challenge succinctly: “Armed groups are widely recognized to be of paramount political importance, but there is far less consensus over how to deal with them than there was even a decade ago.” Meanwhile, the suffering of local populations continues Robert Ricigliano is the Director of unabated and gives urgency to sorting through this policy incoherence and increasing
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