Peacebuilding in Colombia

Home , Ron Silver

October 2007 Inside 3 New Institute Board Members Sworn In 4 USIP’s Iraq Grants: Different Paths Toward Same Goal Vol. XIII, No. 3 5 New USIP Guide Bridges Gap Between United States Institute of Peace ■ Washington, D.C. ■ www.usip.org Military and Aid Workers 6 USIP Hosts Second College and University Peacebuilding in Colombia Faculty Seminar 7 Second Annual s part of a continuing Community College effort, USIP recently Faculty and held a conflict Administrators resolution work- Seminar Meets at Institute shop, rooted in 8 Interview with an innovative Mohammed M. approach, for Hafez 10 Somalia: A participants from the greater Cúcuta New Cycle of area of northeastern Colombia. Conflict Senior Program Officers Jonathan 11 Examining Sources Morgenstein and Nina Sughrue con- of Terror tinued USIP’s partnership with the Financing Colombian NGO Corporación Es- cuela Galán (CEG) and CEG staff Astrid Yepes and Tania Figueroa in undertaking the event. In recent years, the region has been at the center of a volatile blend of oil pipelines, paramilitary activity, and the traffick- A recent protest over toll booths near Cúcuta, at Colombia’s border with ing of both illicit fuel and cocaine. Venezuela. This and other conflicts were discussed at the recent USIP seminar. The participants included leaders (AP Photo/La Opinion, Edgar Cusguen) from local government, education, police/military, civil society, unions, calized topics. It is “useful to develop broker an end to El Salvador’s civil business, and religious groups. amicable relationships of trust before war in the early 1990s. Based on this USIP and CEG established a you jump into contentious, divisive reading, the participants discussed unique program that focused first issues,” he noted. general lessons learned about produc- on identifying broader issues in In an example of how the group tive—and unproductive—paths to conflict resolution and subsequently concentrated on more abstract ending violent conflict, with an em- pinpointing specific local areas of themes before looking at specific phasis on the role of third parties. contention. The main idea behind conflicts, the group discussed the Bearing in mind this framework, the program, according to Morgen- article “Ending Violent Conflict in the participants were divided stein, was to establish links of trust El Salvador” by Alvaro de Soto (in into several groups to look at and harmony between the parties the USIP publication Herding Cats). specific localized conflicts. One on more abstract issues in order to The piece deals with how the Orga- group explored the Colombian facilitate subsequent discussion of lo- nization of American States helped government’s establishment of tolls on routes from Venezeula, an action that has provoked confrontation “It is useful to develop amicable relationships of trust before you between cross-border trade interests, smugglers, and traffic drivers. A jump into contentious, divisive issues.”—Jonathan Morgenstein See Colombia, page 2 the situation. The last looked into being in their home town on a daily Colombia how various religious denominations basis. At night, the group took part continued from page 1 contend, at times in destructive ways, in games that were designed to build second looked into the Colombian to provide humanitarian and other teamwork and the group dynamic. “It government’s imposition of assistance to vulnerable populations. was a really fun group. They wanted new higher-education standards A key feature of the program was to continue the activities,” said —without input from teachers, to temporarily relocate the partici- Sughrue. administrators, or students. Another pants, for two days, to a hotel setting According to Sughrue, two of the examined the phenomenon of in Chinácota, a local village 40 kilo- lasting benefits of the workshop were squatters encroaching on a pre- meters from Cúcuta. Such a setting the networks that were formed and existing community, which became facilitated discussion of the issues at the “multiplier effect”—participants outnumbered. Both parties have hand, and participants were more in the seminar would eventually struggled over leadership and how easily able to focus on the sessions become trainers able to impart the outside assistance can best alleviate rather than on the distractions of See Colombia, page 12

Left: USIP Senior Program Officers Nina Sughrue (top, fourth from left), Jonathan Morgenstein (bottom right) and conflict resolution training workshop participants in Cúcuta, Colombia. Center: Sughrue, Morgenstein, and Astrid Yepes, from Escuela Galán, review seminar activity. Right: Sughrue and seminar participants.

Peace Watch (ISSN 1080-9864) is published five times a year by the United States Institute of Peace, an independent, nonpartisan national institution established and funded by Congress to help prevent, manage, and resolve international conflicts. The views expressed herein do not necessarily reflect views of the Institute or its Board of Directors. To receive Peace Watch, visit our web site (www.usip.org); write to the United States Institute of Peace, 1200 17th Street NW, Left and Center: Sughrue and Morgenstein facilitate workshops. Right: Workshop participants. Suite 200, Washington, DC 20036-3011; call 202-429-3832; or fax 202-429-6063. A complete archive of Peace Watch is available at www.usip.org/peacewatch. President: Richard H. Solomon Executive Vice President: Patricia Thomson Director of Public Affairs and Communications: Ian Larsen Director of Publications: Valerie Norville Writer/Editor: Peter C. Lyon Production Manager: Marie Marr Jackson Production Coordinator: Katharine Moore Photo Credits: Staff, AP/ Wide World Photos, Mohammed M. Hafez Board of Directors Chairman: J. Robinson West. Vice Chairman: María Otero. Members: Holly J. Burkhalter, Anne H. Cahn, Chester A. Crocker, Laurie S. Fulton, Charles Horner, Kathleen Martinez, George E. Moose, Jeremy A. Rabkin, Ron Silver, Left: Program participants in “night activities.” Right: Sughrue and Colombian participants enjoy a Judy Van Rest. Members ex officio: Robert M. Gates, light moment. Department of Defense; Condoleezza Rice, Department of State; Richard H. Solomon, Institute president (nonvoting); Frances C. Wilson, National Defense University. New Institute Board Members Sworn In

Left to Right: Justice O’Connor swears in new board members Martinez, Silver, Rabkin, Cahn, Van Rest, and Moose.

SIP is pleased to senator and lieutenant governor. Center to increase employment announce the Short biographies of the incoming opportunities for Latinos with Uconfirmation of six new members are listed below. disabilities in the U.S. It is funded members of its board of directors, Anne H. Cahn is a former by the Rehabilitation Services who were sworn in on September scholar in residence at American Administration and Access to 20, 2007. Former Associate University. Holder of a doctorate Assets, an asset-building project Supreme Court Justice Sandra in political science from MIT, to help reduce poverty among Day O’Connor presided over the she has served as chief of the people with disabilities. At WID, ceremony. O’Connor is not the Social Impact Staff at the Arms she also headed up the team that sole Supreme Court member to Control and Disarmament Agency produced the acclaimed webzine have sworn in board members; (1977–81), special assistant to DisabilityWorld in English and Stephen Breyer, Warren Burger, the deputy assistant secretary of Spanish. and Antonin Scalia have done so defense (1980–81), and president George E. Moose is a since USIP’s inception. and executive director of the former career member of the The Institute’s bipartisan board Committee for National Security U.S. Foreign Service, where is nominated by the president (1982–88). Her latest book, he attained the rank of career of the U.S. and confirmed by Killing Detente: The Right Attacks ambassador. His service with the the U.S. Senate. Individuals the CIA, was published by Penn U.S. State Department included appointed to serve on the board State University Press in 1998. assignments in Asia, Africa, the may serve no more than two four- Kathleen Martinez has been Caribbean, and Europe. He held year terms. Many distinguished the executive director of the appointments as U.S. Ambassador Americans from across the World Institute on Disability to the Republic of Benin country have served on the board (WID), based in Oakland, (1983–86) and to the Republic since the Institute’s founding. California, since September of Senegal (1988–91). From The six new members are 2005. Blind since birth, Kathleen 1991 to 1992, he served as U.S. filling three vacant posts, plus is an internationally recognized alternate representative in the the expiring seats of Betty F. disability rights leader specializing United Nations Security Council. Bumpers, founder and president in employment, asset building, In 1993, he was appointed of Peace Links (Washington, independent living, international assistant secretary of state for D.C.); Mora McLean, president development, diversity, and gender African Affairs, a position he of the Africa-America Institute issues. Currently, Kathleen occupied until 1997. From 1998 (New York); and Barbara W. oversees Proyecto Visión, WID’s to 2001, he was U.S. permanent Snelling, former Vermont state National Technical Assistance See New Board, page 12 USIP’s Iraq Grants: Different Paths toward Same Goal

become essential reading for the distinguished graduates previously university community. left unrecognized and giving Subsequently, the organization students access to a computer came into conflict with the lab—after the disclosure that the campus followers of Shite leader facility had been kept secret from Moqtada Al-Sadr over the students for staff use only. publication of an article that argued that because his great- Women’s Radio Station uncle, Muhammad Baqr In another example of sup- Al-Sadr, inspired Arab democrats, porting media development in his ideology was essentially Iraq, the Institute funded an democratic. The Sadrist students organization that supported the were enraged, claiming that establishment of Al-Mahaba FM, article mislabeled the thinker a the country’s only independent democrat and, implicitly, “a tool women’s station. The station at- Newspapers ince 2003, the Institute has of America.” To the shock of tracted listeners from a variety of add buoyancy been working broadly in the Sadrist students, the society socioeconomic backgrounds and to Iraqi civil Iraq, with a focus on then invited them to submit their all of Iraq’s major ethnic groups. society. S training, mediation, and own response, ultimately forcing Listeners have often commented grantmaking. According to USIP the Sadrists to reconsider their that the station’s programming, Grants Program Officer Ali inherent association of democracy which some label “a milestone Amar, the various grants are, with the U.S. Indeed, many in Iraqi history,” is particularly “Different paths toward the same Sadrist students have become relevant to their lives. Several gov- goal—peacemaking in Iraq.” regular contributors to the ernment officials and key social Many projects have had a direct newsletter, and some ultimately figures have contacted the station and personal effect on the ground left the Islamic Student Union to with positive feedback and asked in that country. Two of these join the newsletter society. to appear as guests. initiatives, with an emphasis on Moreover, the “Student In addition, the project has the media, are discussed below. Affairs” section of the newsletter provided the opportunity for has become the major outlet significant capacity development for student advocacy for on- of radio staff, building members’ campus reforms. The newsletter skills in proposal writing, budget Many projects have had a direct and personal committee expanded the development, and financial and effect on the ground in that country. “Opinions” section of the narrative reporting. The project paper from five to eight pages, has paved the way for follow-on Student Newsletter Society and received more than 200 initiatives, including broadcasting In an example of successfully submissions for a recent issue. programming related to the Iraqi building organizational capacity, The administration has requested constitution, producing a weekly the Institute supplied a grant to a regular column to respond to program to explore rural illiteracy, a student newsletter society that student complaints. In publishing and launching a media campaign encourages democratic practices their grievances, students have to empower Iraqi women to par- at the University of Baghdad. The already achieved a number of ticipate actively in the country’s group dispelled initial suspicions reforms, including honoring rebuilding process. from students and staff through a policy of inclusion, providing a forum for all viewpoints without Listeners have often commented that the station’s programming, favoritism or censorship. The so- which some label “a milestone in Iraqi history,” is particularly ciety eventually drew more than 300 members and the newsletter relevant to their lives.

Guide for Participants in Peace, Stability, and Relief Operations

October 2007 440 pp. n 7 x 10 $35.00 (paper) ISBN-13: 978-1-929223-66-4 SIP recently published a Stability Operations Institute and a $65.00 (cloth) member of the steering committee new Guide for Participants ISBN-13: 978-1-929223-65-7 Uin Peace, Stability, and for the book, commenting on Relief Operations, edited by Robert various stakeholders, said, “What M. Perito, senior program officer in needs to be done is to bring these USIP’s Center for Post-Conflict different groups together to work Peace and Stability Operations. The effectively…We look forward to Guide is a backpack-sized, who’s- getting critiques back on how who reference directory listing that we can improve the book.” Roy describes actors and organizations Williams, of the Center for commonly found on the ground Humanitarian Cooperation and after an international emergency. steering committee member, Perito convened a steering commit- praised the Institute’s role in tee of experienced representatives facilitating the effort, saying, “The Robert M. Perito from the U.S. Army Peacekeeping support of the USIP staff made and Stability Operations Institute; what would have been an onerous The directory of organizations the Department of State; the UN chore much less so.” begins with an overview of Information Center; the Center for In addition to specific international groups, including “What needs Humanitarian Cooperation; and the information on organizations and a detailed description of the UN to be done is U.S. Naval postgraduate school. their missions, the Guide highlights system and related organizations. The book is based on experiences in USIP’s Framework for Success for Overall, the UN is the most heavily to bring these Afghanistan, Iraq, and the 2004 Fragile States and Societies Emerging involved in peacekeeping, with more different tsunami relief effort. from Conflict. The Framework is than 100,000 personnel deployed groups Commenting on the project, organized around five components in 18 peacekeeping operations. Perito noted, “Every civil affairs and lists tasks that can help attain This section includes discussions of together specialist, aid worker, government those objectives. the African Union, the League of to work official, and international agency After introducing the Framework Arab States, and the International effectively…” representative should receive a for Success, the Guide posits Committee of the Red Cross, copy of the Guide while they are in three hypothetical scenarios that among others. —Col. John F. training to take to the field. The demonstrate the interplay among Next, the Guide introduces the ex- Agoglia Guide will help civilian and military international, U.S. government, tremely varied and occasionally con- personnel to understand their and military organizations in such tradictory world of private voluntary environment, adapt better, and work operations. The first is a major organizations, with discussions of smarter. For headquarters staff, natural disaster in an Asian country. their structure and organization, journalists, and educators, the Guide The second is heavy U.S. military the roles of such organizations in is a valuable reference and unique intervention and the aftermath conflict, and challenges of coordina- textbook for the study of peace, of bringing about domestic order. tion. Overall, 51 such organizations stability, and relief operations.” The third is the creation of an involved in humanitarian relief and Col. John F. Agoglia, of the international peacekeeping force operations, civil society and democ- U.S. Army Peacekeeping and after a conflict in Africa. See Perito, page 12

“The support of the USIP staff made what would have been an onerous chore much less so.” —Roy Williams COLLEGES, UNIVERSITIES, AND PEACEBUILDING METHODOLOGY

established relationships with the USIP Hosts Second College and Institute.” Bishai was also pleased by the diversity of participants’ experience. The fact that University Faculty Seminar participants could bring such diverse perspectives as theatre, law, Buddhist rom July 10 to 15, USIP Moreover, selected faculty were philosophy, and psychology to hosted its second College and prioritized by how their personal ex- their comments and interaction FUniversity Faculty Seminar periences would enhance their edu- contributions greatly enriched the (CUFS), entitled “Global Peace and cational intuitions and the potential overall program. Participants viewed Security from Multiple Perspec- of younger faculty to benefit from the program favorably. One noted tives.” The purpose of the event was the program. that, “My expectations were far to enhance teaching and research on exceeded. The speakers/presenters global peace and security issues for were very well chosen.” undergraduate faculty. Of particular value for the educa- CUFS focused on five key areas: tors was the panel “Building Interest the new and challenging interna- in Peace and Security: The Student tional security environment; ap- Viewpoint,” which highlighted the proaches to conflict management, experiences of relatively new USIP prevention, and peacebuilding; employees who were recent students. innovative methods of teaching The USIP panelists in this presenta- global peace and security at the CUFS participants in breakout group. tion were Christina Parajon, pro- undergraduate level; contributions gram assistant, USIP Post-Conflict the Institute’s resources can make The seminar involved examinations Peace and Stability Operations; to their efforts as educators; and of major themes in conflict and peace- Victoria McColm, program special- prospects to establish long-term making, such as resource scarcity and ist, USIP Rule of Law; Sarah Dye, productive relationships between the the role of the military, in addition to research assistant, USIP Education; Senior Program Institute and faculty. specific examples such as Sudan and Aaron Teeter, program assistant, Officer Linda The participants were selected Iraq. Participants were given sup- USIP Training; and Jeff Helsing, Bishai (left) and through a process that included sub- portive materials including readings, deputy director, Education. Partici- CUFS mitting a list of related courses that bibliographies, and case studies. pants felt that this panel motivated participants take they teach, a statement of purpose In total, the program included them to increase involvement with a break from the as to how they would benefit from 18 participants from around the their students. One commented, “I seminar for a the program, and a letter of support country. Their academic interests enjoyed the way the students had DC tour. from their department chair or dean. included political science/interna- the ability to teach faculty on all lev- tional relations, communication, els at the same time. Exceptional!” theology, administration, business, Bishai observed that the student law, theatre, psychology, geography, panel “helped give faculty a sense of family and consumer science, educa- how to hook students who are smart tion, and public safety management. on these issues.” Seven of the participants taught The student viewpoint was in- at liberal arts colleges, six at state corporated into the program based universities, and five at private union remarks made by last year’s par- versities. ticipants. They also recommended Linda Bishai, senior program a field trip to another government officer at USIP, commenting on the agency. This summer’s agenda diversity of participants, mentioned included one of the most popular that, “We were delighted to events—a briefing on Capitol Hill bring in people from states like by staff members of the House Mississippi, West Virginia, and Armed Services Committee. Par- North Carolina. These are areas ticipants were uniformly impressed whose colleges don’t have well- See Colleges and Universities, page 13 COLLEGES, UNIVERSITIES, AND PEACEBUILDING METHODOLOGY

Chicago, Illinois; Sinclair Com- Second Annual Community munity College in Dayton, Ohio; Northampton Community Col- lege in Bethlehem, Pennsylvania; College Faculty and Administrators Ocean County College in Toms River, New Jersey; and Indian River Community College in Fort Seminar Meets at Institute Pierce, Florida. Smith noted that they go “beyond what is the norm in community college education,” and are serving as “agents for global peacebuilding.” Of particular note in this respect was the program of Indian River Community College. In March 2007, Indian River, working with USIP staff, participated in a humanitarian crisis simulation training exercise, called FTX ATLANTIC HOPE 07, in Ft. Pierce, Florida. This program was a precursor to a two-week CCFAS participants, along with USIP Senior Program Officer David J. Smith (right). exercise, known as SVETLINA, SIP’s education program tion in education and increas- at the Krivoak Training Center in recently convened the sec- ingly take on leadership roles in the former Yugoslav Republic of Uond annual Community areas such as web-based learning, Macedonia in May 2007. College Faculty and Administra- short-term training for police and During the event, students tors Seminar (CCFAS). Eighteen military, and responding to new put their skills to the test participants from around the coun- global realities in the post-9/11 under a variety of challenging try took part. The event was context. circumstances, addressing both designed to give participants an As a result, there is greater the human needs of a simulated opportunity to carefully examine demand from community col- disaster as well as the social and the nature of international peace lege administrations for programs political conditions that often and security and how community such as the CCFAS. According compound such tragedies. The Smith facilitates colleges can teach these issues to to Smith, community colleges overarching objective of this effort a session of their students and the communi- convey the sentiment to USIP was to promote the practical community ties they serve. that, “We need this so desper- education and training of disaster college The driving idea behind the ately. We need to know how to See Community Colleges page 13 educators. seminar, according to David J. teach to diaspora communities. Smith, USIP senior program of- USIP is the link to do that.” He ficer in the education and training also commented, “If we’re going center, was the need for U.S.-based to be serious about international community colleges to widen their conflict and peacemaking, we’re global scope. He pointed out that going to have to reach all strata of nearly 50 percent of U.S. under- society.” graduates are enrolled in com- Last year’s program has already munity colleges. These institutions borne fruit, as five community face challenges such as providing college who participants took broad-based educational oppor- part in that program have initi- tunities to America’s burgeoning ated or are developing programs immigrant population. Moreover, in peace, security, and conflict: they are at the vanguard of innova- The College of DuPage, near AN INTERVIEW WITH USIP “A Puzzling GRANTEE Phenomenon” he new USIP publication Suicide Bombers in Iraq: The AND TStrategy and Ideology of Martyrdom by Mohammed M. Hafez, visiting professor of political NOTED science at the University of Mis- souri, Kansas City, adds major new perspectives to the field. According Mohammed M. Hafez to Daniel Serwer, USIP’s vice presi- AUTHOR dent for Post-Conflict Stability Borders: Transnational Networks Operations, “This is a book that and Volunteerism in Iraq.” teaches you about something that Hafez addresses three fundamen- MOHAMMED you read about in the newspaper tal questions in the book. The first that causes incredible destruction… is how is it that Iraq, which never this is a major work on suicide experienced suicide bombings prior bombers… a real contribution to to the U.S. invasion, has become the M. HAFEZ our understanding of the lead nation impacted by this phe- phenomenon.” nomenon, with a total of 806 attacks In a recent interview with as of July 2007? “Factually, this is PeaceWatch, Hafez said that the idea really puzzling,” he noted, “zero to behind the book originated during 800 in a relatively short time.” Hafez his research for his first book written went on to point out that previous under a USIP grant, Manufacturing studies revealed that suicide attacks Human Bombs: The Making of came later in insurgent movements, Palestinian Suicide Bombers. While but in Iraq, suicide bombers were he was working on this first book, present from the outset. “The point it increasingly became clear that, is that ‘martyrdom’ has become an “the stuff that was going on in Iraq acceptable tactic… insurgents have couldn’t be ignored.” learned that this tactic is out there Hafez’ assessment is organized and that it can be easily applied,” he July 2007 along three central themes: noted. 40 pp. n 6 x 9 “Insurgents and Their Strategies,” The second question involves $17.50 (paper) which discusses Islamic nationalists, how the majority of suicide bombers ISBN:978-1-601270-04-7 ideological Baathists, and radical in Iraq, at least as of 2006, are Sunnis known as Salafists; “The non-Iraqis—“Martyrs Without Alchemy of Martyrdom: Ideology, Borders,” Hafez labeled them. He Theology, and Mythology of Suicide explained that in other situations Terrorism”; and “Martyrs without that have experienced suicide attacks, Hafez discussed a form of subtle in the videotapes of groups like al coercion and manipulation that Qaeda, which is now known as the The majority of suicide further impels would-be suicide Islamic State of Iraq, is that they bombers in Iraq, at least as of bombers. “Once they make that rarely show attacks on civilians.” journey,” he observed, “It’s really The second reason it is difficult 2006, are non-Iraqis. difficult to come back.” Transport to collect information on suicide networks take the bombers to Iraq, bombers within Iraq is that govern- the assailants, such as Tamils in in the process making them privy to ments are not willing to reveal their Sri Lanka, have been indigenous. organizational secrets. The bombers identities, because it is a source of “What explains that? That’s the are then housed in small groups embarrassment. “Oftentimes people most intriguing part,” he said. The that glorify the approaching act of just hide this,” he noted. fact that Muslims come from as far martyrdom. “When you are in safe away as Europe to carry out these houses, oftentimes you’re in there Role of Islamic Scholars attacks, he observed, is proof that with other people. It becomes really the war in Iraq has radicalized a difficult to change your mind.” An overarching consideration in new generation of Muslim youth Hafez also mentioned that videos this phenomenon is how it reflects worldwide. of suicide bombers are available on the standing of the ulema The third central question posited through the Internet. In many cases, (Islamic scholars). “Veneration of in the book is why do most suicide he noted, “they’re shown to be eager, jihad and martyrdom [as is the bombers target Iraqi police, Shiites, happy, smiling. At least we know case with fighting and dying in and civilians? “A lot of this can be there are some who don’t appear to defense of Iraq] is very difficult to explained by the ideology of the be drugged, who are doing it out of condemn. In Islam, there’s a strong suicide bombers,” he observed, true belief.” sense that when you’re attacked, pointing out that Jihadi Salafism A related area of his research is you have to defend yourself,” he (the ideology most closely associated the enigmatic nature of the origin explained. Hafez observed that with radical groups such as al of suicide bombers, especially the many of these scholars have justified Qaeda) amounts to a form of Sunni recent ones (as of January-February suicide bombings in the cases of supremacy that can be likened to the 2006, the identities of approximately Lebanon and the Israeli-Palestinian “Once they ideologies of radical racist groups in 87 percent of perpetrators of suicide conflict, thereby making it difficult make that the U.S. in the 1950s. “At the heart attackers in Iraq were unknown). to condemn them in the case of of these arguments are really racist According to Hafez, there are two Iraq. “You’re trying to hone the journey, it’s views,” which cite alleged Shiite reasons behind this trend. First, a edges, rather than have a blanket really difficult heresy and historical disagreements majority of suicide attacks are held condemnation” of the trend, he said. with Sunnis. Moreover, Hafez in low regard among the general A related theme is that a culture to come noted that the Shiites are seen as populace because they have targeted of martyrdom has been promoted back.” collaborators with coalition forces, civilians. As a result, insurgent by Saudi Arabia and Yemen, making the political dimension groups will not admit culpability. according to Hafez. Hence, it —Mohammed of attacks just as important as the “Some groups don’t want to claim is difficult in the case of Iraq to M. Hafez religious one. responsibility because they’re seen say that such volunteerism is not as atrocious,” observed Hafez. He applicable in Iraq. Origins and Selection of Suicide also pointed out that “what I notice See Hafez page 14 Bombers

When discussing recruitment patterns, Hafez emphasized that volunteerism is prominent. Such enrollment generally originates through “small groups of relatives or An Iraqi man friends who make comments” about walks through the situation in Iraq and hence the rubble from motivate erstwhile jihadists to travel a suicide truck to Iraq. “That kind of bottom-up bombing site in volunteerism suggests that it is more Iraq. (AP photo/ inspiration than indoctrination,” he Petr David said. Josek) 10 USIP EVENTS Somalia: A New Cycle of Conflict

omalia has been wracked with In order to explore this situation, conflict since 1991. A major USIP recently cosponsored, with Sepisode in this respect took place the Center for International and in December 2006, when U.S.- Strategic Studies (CSIS), a panel sponsored Ethiopian and Transitional discussion at CSIS entitled “Somalia’s USIP Vice President David Smock Federal Government (TFG) forces Crisis: Challenges to Peace.” The moderates the jointly sponsored defeated Union of Islamic Courts event detailed U.S. policy toward event. (UIC) militias. However, recent the country and the current political months have seen renewed fighting, and humanitarian situation. Committee of the Red Cross; with resurgent UIC forces launching The participants included Steve and Ken Menkhaus, of Davidson renewed attacks on the TFC and Morrison, CSIS Africa Program; College. Ethiopian forces. While the first David Smock, USIP vice president; After an introduction by Morrison, deployments of an African Union Jim Swan, deputy assistant secretary Smock coordinated the discussion. peacekeeping force have arrived, the of state for African Affairs; Leslie Reflecting later on the event, he country is once again on the verge of Lefkow, Human Rights Watch commented, “While the international breakdown. (HRW); Geoff Loane, International community has tired of paying attention to Somalia, ordinary Somalis suffer beyond normal “While the international community has tired of paying attention to Somalia, comprehension.” Swan noted that reconciliation ordinary Somalis suffer beyond normal comprehension.” —David Smock remains the common goal of the U.S. and the various parties impacted in the conflict, and that at present, the U.S. is most concerned about extremist violence perpetuated by the Al-Shabab militia, the more extremist remnants of the UIC. U.S. priorities over the long term are to encourage inclusive dialogue; deploy the African Union (AU) stabilization force; bring about a robust program of international assistance programs; assist the constitutional and electoral process; and respond to humanitarian needs. Early this year, the U.S. allocated $19.6 million for the AU force, and, in August 2007, commenced training of two battalions of Burundian soldiers to form that body. Swan emphasized U.S. support for the constitutional and reconciliation process, See Somalia, page 15

An Ethiopian soldier with gun guarding a crowd in Kismayu, Somalia. (AP Photo) USIP EVENTS areas—such as anticorruption, money 11 Examining Sources laundering, and tax evasion—for global governance. Eckert expounded on this theme, of Terror Financing pointing out that before 9/11, there was no international system to sup- The key conclusions of the group press terrorist financing. Within three were that: countering terrorism weeks after the attacks, however, UN requires a multi-pronged, global, Security Council Resolution 1373 meticulous approach; much progress mandated that all member states take has been made on regulating ter- steps to freeze terrorist funds. She rorism financing; the U.S.-based continued to discuss UN enforcement regulatory approach has been widely mechanisms against terrorist financ- adapted internationally; combating ing. She also noted that prior to 9/11 terror financing is just one aspect of there were 30 national financial intel- the larger struggle in this respect; and ligence units worldwide; at present, while much can be accomplished, there are 100. regulation will not completely shut Eckert cited four recommendations down terrorism financing. for policymakers to take into account USIP Senior Program Officer in countering terror financing. Taylor Seybolt moderated the panel, The first is to keep these issues in USIP Senior Program Officer Taylor which included editors Thomas perspective, as they are only one Seybolt moderates the event. Biersteker of the Graduate School piece of a broad framework involving for International Studies (Geneva) intelligence, law enforcement, and SIP recently held a book and Sue Eckert of the Watson In- military action. Second, stakeholders launch for the Institute- stitute for International Studies at should differentiate between various Usponsored volume, Brown University. The discussants groups involved. Third, the “war” Countering the Financing of Terrorism, were Martin Weiss of the Congres- metaphor should be dropped, as it published by Routledge. The sional Research Service and Matthew sends the wrong message to U.S. panelists, some of whom were Levitt of the Washington Institute partners. Finally, respective agencies contributors to the book, for Near East Policy and former dep- should focus on ways in which summarized their analysis of this uty assistant secretary of intelligence terrorists raise cash, such as trade- complex, widely discussed, yet poorly at the Department of Treasury. based financing and crime. understood subject. Having brought Seybolt kicked off the discussion, together leading analysts of noting that USIP awarded a grant in terrorism, international relations, 2004 to sponsor this project. “Terror- global finance, law, and criminology, ist financing has been a major issue “It’s like Whack-a-Mole. You hit one and another the volume provides a critical since 9/11, but there’s not much pub- comes up.” —Martin Weiss assessment of the international effort lic understanding, or even specialist to restrict terrorist financing. understanding, about what we can do Weiss stressed that the interna- A $50,000 USIP grant to the about it,” he said. tional community has made remark- Watson Institute for International Emphasizing that the book was able strides in countering terrorist Studies at Brown University fa- “quite deliberately multidisciplinary,” financing. Referring to U.S. govern- cilitated publication of the book. Biersteker highlighted that the ment efforts, he emphasized that “it Underscoring the importance of effort brought in contributors is critical that Treasury OIA [Office the initiative, USIP Grants Vice from fields such as criminology of Intelligence Analysis] be fully President Judy Barsalou said, “Even and law. Reflecting on the larger integrated to the intelligence com- though the problem of terrorism trend against terrorist financing, munity.” He then elaborated on six is not a new one, we have yet to Biersteker highlighted that a new policy recommendations found in the master mechanisms to limit terrorist global regime related to terrorist book to curb terror financing, includ- access to financial and other sources financing—the de facto “export ing an enhanced international process of support. This study provides fas- of the American regulatory to single out uncooperative states and cinating insights into the challenges approach”—has taken hold. This entities in this process and enhanced facing the international community system, he noted, has significant pubic diplomacy efforts. In response in this regard.” potential for expansion into other See Terror Financing, page 15 12 Individual Rights (a public she served as senior advisor for Colombia interest law firm in Washington, governance for the Coalition continued from page 2 DC). Rabkin’s recent writing Provisional Authority (CPA), methodology to similar groups has focused on the history and Baghdad, Iraq. In that capacity, in the country. continuing significance of national she conducted outreach programs Sughrue recollected that one sovereignty, as in his most recent for Iraqi women to assist them in of the participants was pleased, book, Law Without Nations participating in the democratic as this was the first time she had (Princeton University Press, 2005). development of their country. She worked in such a structure. “I His current research interests also served as CPA’s director of the don’t think many organizations include the role of international Office of Democratic Initiatives, are going to Cúcuta to work organizations and international coordinating programs ranging with a such a group,” said the NGOs in developing countries. from election administration, civic woman. Ron Silver is one of America’s education, political party building, The USIP/CEP team plans leading actors, producers, and women’s leadership training, and on a follow-up session in Co- directors, and has starred on non-governmental organization lombia in November. Broadway as well as in films and development to local government, television. He is also a committed media infrastructure building, activist whose voice has been heard and transparency in government on many issues facing the theatre and civil society. Van Rest was community and the country at appointed to the Peace Corps as large. President of Actors’ Equity associate director for management New Board Association for nine years (1991– and chief information officer continued from page 3 2000), Silver was also the founder in September 2001 and was representative to the European and president of the Creative responsible for formulating policies Office of the United Nations in Coalition. Silver won Broadway’s and implementing operation Geneva. Ambassador Moose is Tony Award and a Drama Desk plans for both domestic and adjunct professor of practice at Award for his performance in overseas Peace Corps missions. the Elliott School of International David Mamet’s Speed the Plow. In She became regional director Affairs at George Washington films, Silver gave much-acclaimed for the Europe, Mediterranean, University. In 2007, he joined performances in Paul Mazursky’s and Asia Region in May 2002, LMI Government Consulting as Enemies: A Love Story and the and managed a broad range of a senior fellow. He serves on the Academy Award-winning Reversal operational, policy, and boards of Search for Common of Fortune. Silver also appeared as procedural issues in support Ground, the Atlantic Council, the Henry Kissinger in the acclaimed of more than 1800 volunteers American Academy of Diplomacy, Kissinger and Nixon for TNT, and and several hundred staff in 21 and Elderhostel. He is also a produced and narrated Broken countries. member of the Committee of Promises: The U.N. at 60. The International Advisors of the television film The Billionaire Boys International Committee of the Club earned Silver his first Emmy Perito Red Cross in Geneva. nomination. Before becoming an continued from page 5 Jeremy A. Rabkin is a actor, Silver attended law school racy building, and conflict resolution professor at George Mason Law and received a master’s degree in are profiled. School in Arlington, Virginia, Chinese history. In addition to U.S. government agencies make specializing in international law his appointment to the board of up the next section. In recent years, and constitutional history. Rabkin the array of such entities represented received a BA from Cornell (1974) directors of the USIP, Silver is a and a PhD in political science at member of the Council on Foreign abroad has grown in response to Harvard University. He taught in Relations as well as a member of the challenges of terrorism and the department of government at the Program Committee at the insurgencies. New institutions have Cornell University from 1980 until Wilson Council, the private sector been established and old agencies the spring of 2007. He serves on advisory group of the Woodrow have taken on new functions. In this the board of Academic Advisors Wilson Center for Scholars. light, the Guide describes the impact of the American Enterprise Judy Van Rest was appointed of new presidential directives on the Institute, on the advisory board executive vice president for interagency process and the role of of the Harvard Journal of Law the International Republican U.S. civilian agencies in the field. and Public Policy and the board Institute (IRI) in August 2004. Finally, the Guide deciphers of directors of the Center for From April 2003 to July 2004, complex military acronyms, outlines the U.S. military command structure, “Diplomacy: Making and Keeping CCFAS was a balance of “con- and describes the military services, Peace in Sudan,” by Joan Mower of tent”—examining at the major 13 including military organization, the Sudan Programs group at the issues surrounding global peace structure, and culture; the challenges Department of State; “Religion and and security—and “methodol- of stability operations; and uniforms, Peacemaking: Islam and the West,” ogy”—strategies that can be weapons, and other equipment. by Qamar-ul Huda, senior program applied in teaching community officer, Religion and Peacemaking; college audiences. The sessions “Dealing with the Consequences were wide-ranging and structured Colleges and of Conflict: Comprehensive around the Institute’s conflict Approaches to Iraq,” by Paul prevention, conflict resolution and Universities Hughes, senior program officer, management, and post-conflict continued from page 6 Post-Conflict Peace and Stability peacebuilding model. by staff member Lorry Fenner’s Ops, Mishkat Al-Moumim, Futrell The seminar provided faculty presentation of the role of Congress Visiting Scholar, Environmental with insights into: content on the in oversight and support to the Law Institute, and Daniel Levine, new realities of the international military and of the complex and program officer of the Institute’s peace and security environment; complimentary relationship of the Education Program. In addition to proven, innovative teaching Armed Services Committee with the the panels, the program included techniques to address these issues; Department of Defense. a visit to a House Armed Services and programmatic models to Another new addition to the pro- Committee hearing and a tour of the deliver educational content. In gram was the presentation on using home of Former President Wilson. addition, throughout the seminar, the computer simulation “Complex Participants have stayed in faculty had the chance to learn Simulations, Running the ICONS touch through an e-mail list that from Institute and Washington Course,” presented by Alison Mc- connects them with last year’s class. experts, access Institute resources, Cartney, associate professor of po- Participants from both years have and foster long-term relationships litical science at Towson University, already come back to the Institute with USIP and each other. and Doug Woodruff, graduate stu- with queries, proposals, publications, Overall, the seminar bolstered dent at the same institution. ICONS and suggestions. Bishai highlighted the status of community colleges (International Communication and the need to connect faculty with as “learning communities” to Negotiation Simulations) is a com- direct, on the ground success explore issues of peace and puter-based simulation that places stories pertaining to the Institute’s security. One of the participants college and high school students into work: “You need to hook them commented on the panels, the roles of policymakers address- with stories of positive change and “Not only were the sessions ing complex international issues. reconciliation. Those are the things informative, but I met many other ICONS utilizes customized web- that really get them energized and faculty members with whom we based tools, such as country briefings help them to hold the interest of will share resources when we and advanced messaging, to reach their students.” return home.” both other individual participants A key aspect of the seminar and the entire simulation group. was to provide the opportunity ICONS offers a variety of scenarios, Community Colleges for participants to develop their including the U.S. Senate and re- continued from page 7 own prospective projects or syl- gional simulations focused on Africa, relief workers, reconstruction labi. Different working groups Southeast Asia, and North Korea. specialists, and humanitarian conceptualized courses focused on In a recent academic year, more than practitioners. global issues and conflict, a com- 1500 college and university students Dr. Paul Forage, assistant munity college certificate in peace used in the program. professor of emergency manage- and conflict resolution, a college- One CUFS participant called ment at Indian River, noted, “By wide initiative to increase overall the presentation on ICONS “life- inviting international participants campus awareness, and a series of changing,” while another noted that from the Republic of Macedonia peacebuilding exercises that could it “inspired me to help students to we were able to inject alternative be infused into a course. learn.” perspectives and viewpoints. We The 2007 program, coincided Other panels offered at the realized quickly that our Florida with a USIP public event, “Child seminar included: an introduction training events should be the pre- Solders: New Evidence, New to the Institute by President Dr. requisite for a follow-on training Advocacy Approaches,” that Richard Solomon and Pamela experience that is truly interna- focused on strategies for child Aall, vice president for education; tional.” See Community Colleges, page 14 14 Iraqis, not just foreigners.) In the Community Colleges beginning, the two groups were continued from page 13 entwined in a “marriage of con- “We need to look at the soldier re-integration in post- venience,” as both are opposed to refugee problem. This is conflict societies. Commenting on the Shiite-majority, U.S.-backed the event, one of the participants government. However, this situa- big!”—Mohammed M. Hafez noted that it demonstrated the tion is changing as the Iraqi “potential for USIP to bring nationalists struggle for a rebuilt On the horizon, a major issue for together a range of views and Iraq more amenable to their in- policymakers is the question of practices to provide insight and terests while the foreign-based internal and external Iraqi refugees. education on the global scope of radicals seek the total destruction “We need to look at the refugee an issue.” of the Iraqi government in order problem,” he emphasized, “This The eighteen participants to establish a “failed state” to re- is big!” According to Hafez, these included one dean and two place their bases in Afghanistan. groups are highly motivated and department chairs and hailed When asked about the degree dependent on others for their from public community colleges of general Arab and Iraqi-based survival, and, as a result, highly in California, Florida, Hawaii, recognition of this conflict, Hafez susceptible to manipulation from Illinois, Kentucky, Louisiana, noted a difference. With regard outside predators. An example Massachusetts, Michigan, to the Arab pubic writ large, he that demonstrates the potential Minnesota, Nevada, Oklahoma, pointed out a general sense of challenges that these groups may South Carolina, Texas, Virginia, incredulity. “There is a general pose is that the Taliban were once West Virginia, and Wyoming. perception that the insurgents largely refugees in Pakistan. “This is The disciplines reflected the wide constitute that one thing, resis- actually something that we can do diversity often seen in community tance to America… When some- something about. We could bring colleges: English, political science, one points out that al Qaeda is in UN support and others to make geography, history, psychology, killing more Iraqis [than invaders], sure they don’t become vulnerable anthropology, sociology, learning people say, ‘We don’t believe it’s communities susceptible to violence skills, and English for Speakers al Qaeda.’” However, among the or recruitment.” of Other Languages (ESOL). In Arab public at large, “There’s an Hafez also reflected on patterns discussing these varied academic acknowledgement that the divi- of replication of suicide bombings backgrounds, Smith said, “I’m sions are not quite clear, and only worldwide, and the overall allure always impressed…the faculty more informed readers tend to of this technique. He noted that that apply do not just represent notice the divisions. Increasingly, the symbolism and strategies of humanities and social science. The they’ve become more apparent as suicide bombings have been present applicants reflect the wide variety these groups clash.” elsewhere, such as to Afghanistan, of academic and career programs Notwithstanding, there is a Algeria, Somalia (against Ethiopian that they are supporting.” growing perception of this gap forces), Pakistan, and Bangladesh. among the Iraq public, who dif- “The tactic of martyrdom has ferentiate between two forms of become modular and diffused… Hafez resistance: muqawama shari’yya There’s an aura of heroism around continued from page 9 (“honorable resistance”) and irhab it that’s emerging,” he observed. a’shwai (“indiscriminate terror- However, it is critical to bear in Perception of Divide within the ism”). Hafez noted that the prob- mind that a trend has emerged Insurgency lem arises with “who’s responsible with suicide tactics in that they are for indiscriminate terrorism.” most effective, and accepted most A major observation in the book There is a belief that “America has publicly, in cases of foreign occupa- is that there is a divide in the Iraq introduced sectarianism in various tion such as Iraq. However, Hafez insurgency between Sunni-rooted ways… so that [Iraqi groups] de- likened it to “shooting oneself in the Iraqi nationalists and extremist flect their attention from fighting foot” when it does not involve direct groups, which until recently have American forces.” occupation, as it promotes public largely been constituted of for- scorn and erodes support. In this eigners, such as al Qaeda in Iraq. Future Trends sense, it “contains the seeds of its (Military sources acknowledge own demise.” that the ranks of al Qaeda in Iraq Hafez discussed larger regional Reflecting on another challenge are increasingly being filled with themes related to suicide bombings. facing the U.S., Hafez also calls to attention common criticisms of She summarized the main points of displaced persons throughout the 15 U.S. policy in the Islamic world. Human Rights Watch’s recent report, country. Food insecurity and malnu- Paraphrasing them, he notes: “You Shell-Shocked: Civilians Under Siege in trition are also common, with 25 per- say you are for democracy, but Mogadishu. To undertake this research, cent of children suffering from acute “I’ve been HRW interviewed more than 100 malnutrition in one region. Threats when people are elected you impose documenting sanctions on them; you say you are witnesses, many of whom were victims also abound against those viewed as for liberty, but two of your strongest of the events in question. The first area collaborators with the TFG. Those abuses HRW examined was the factions of who have the means are fleeing the supporters are two of the most in armed repressive regimes in the world; you the “insurgency,” as she labeled them: country. say you are for ending occupation, the Al-Shabab, clan-related Commenting on the military conflicts for militia groups, and other actors. In situation, Menkhuas noted that the yet there are occupations around more than a the world that you are not dealing what Lefkow called a fundamental 2006 counterinsurgency action on the with.” problem under humanitarian law, part of TFG and Ethiopian forces, decade. One these groups deployed in civilian ar- which had been portrayed as a victory, Currently, Hafez is researching thing that the phenomenon of “blowback” eas, from which they often attacked in reality simply led to a change in from Iraq—fighters who may Ethiopian and TFG forces, which insurgents’ tactics. At present, he struck me is have also committed serious violations said, insurgents are copying tactics return to their home countries just how a after fighting in Iraq to create of humanitarian law. Medical facilities used in Iraq, with a much greater use indigenous insurgencies. There were deliberately targeted in the fight- of roadside bombs against TFG and crisis of this ing, according to Lefkow, including Ethiopian forces. A related danger in is a strong parallel, he notes, magnitude between this current trend and at least three hospitals. These attacks Somalia, according to Menkhaus, is fighters who returned to their took the form of shelling, Katyusha the emergence of warlords. He noted and crimes rocket attacks, looting, and occupation that the overall situation has further home countries from fighting the of this scale Soviets in Afghanistan. “Some went by Ethiopian troops. Other civilian damaged the U.S. image in the back to their countries to create a areas have also been targeted. region, as Ethiopia and the TFG are could fall so Menkhaus, whom Smock called a viewed as U.S. stooges. revolutionary movement,” he noted. quickly in the “What is the possibility of that in “thoughtful and insightful observer of the case of Iraq, producing global events in Somalia,” discussed the con- international flict and its relationship to surround- jihadists?” Terror Financing media ing areas. “Politically,” he lamented, continued from page 11 “this is the worst situation I’ve seen to a question concerning targeting dif- and in the in Somalia in about 14 years,” adding ferent sources of terror financing, Weiss Somalia international continued from page 10 that he was “anxious and perplexed” observed that “It’s like Whack-a-Mole. adding that the U.S. is eager to find a about the situation. One of the great- You hit one and another comes up.” community.” way for Ethiopian forces to exit. He est tragedies currently taking place in In his remarks, Levitt asserted the —Leslie also expressed U.S. concern over the the country, he noted, was that a group book’s value, saying, “This makes a role of Eritrea in opposing the TFG of civil society activists, with whom he very important contribution to the lit- Lefkow and supplying arms to its opponents. communicated regularly, were “afraid erature… it is an amazing compilation Lefkow spotlighted the overall lack to talk.” Not infrequently, they have of analysis.” He recalled his experience of attention the situation in Somalia been targeted and killed. at the Department of Treasury, in has received. “I’ve been documenting He continued to explain that one which designating entities of terrorism abuses in armed conflicts for more cannot understand the current situa- was a slow, deliberative process. He than a decade,” she said, “One thing tion in Somalia without understand- stressed that there is often confluence that struck me is just how a crisis of ing two broader, interlinked conflicts among terrorist groups in their sources this magnitude and crimes of this in the Horn of Africa: the conflict of financing. Law enforcement focuses scale could fall so quickly in the in- between Ethiopia and Eritrea and on these “chokepoints,” the “Achilles ternational media and in the interna- the crisis in the Ogaden region (of heel” of these groups, said Levitt. Un- tional community.” For example, she eastern Ethiopia), where a secession- derlying all these efforts, he stressed, pointed out that while the humani- ist rebellion persists. He expressed is the importance of accurate financial tarian tragedy that befell Lebanon in his “shock at how immune we’ve intelligence. He too highlighted the the summer of 2006 paled in com- become at what’s actually happening importance of public diplomacy parison to the devastation in Somalia, in Somalia.” According to Menkhaus, efforts, noting that, “We don’t gauge events in the Levant garnered far 300,000 people have been displaced sufficiently in the battle of ideas. more attention than what is currently from Mogadishu in recent months, as This is one battle we can’t afford to at hand in the Horn of Africa. well as many thousands of internally loose.” he following Institute publications are Tavailable free of charge. They can be downloaded from our website at To order, call (800) 868-8064 www.usip.org/pubs. (U.S. only) or (703) 661-1590 http://bookstore.usip.org n Engaging Islamists and Promoting Democracy: A Preliminary from usip press Assessment, by Mona Yacoubian (Special Report 190, Sept. 2007) n New Hopes for Negotiated Solutions in Colombia, by Virginia M. Bouvier New (Working Paper, Sept. 2007) Unity and Diversity n Kosovo: Breaking the Deadlock, by Interfaith Dialogue in the Middle East Daniel Serwer (USIPeace Briefing, Sept. 2007) Mohammed Abu-Nimer, Amal I. Khoury, and Emily Welty n The Central African Republic: Worsening Crisis in a Troubled The authors introduce IFD’s central Region, by Jacqueline C. Woodfork concepts and terms, its various models, and Joel Charny (USIPeace Briefing, and the nature of IFD in a Middle Eastern Sept. 2007) context. They also discuss the intricate n relationships between interfaith activities Seven Months Into the Surge: What Does It Mean For Iraqis?, by Rend and religious identity, nationalism, Francke (Working Paper, Sept. 2007) violence, and peacemaking in four very n different settings: Israel/Palestine, Iraq: Time for a Change, by Daniel Serwer (USIPeace Briefing, Sept. Lebanon, Egypt, and Jordan. 2007) August 2007 n 336 pp. n 6 x 9 n $19.95 (paper) n ISBN 978-1-601270-13-9 U.S. Police in Peace and Stability Operations, by Robert M. Perito (Special Report 191, Aug. 2007)

Publications Publications n Political Violence and Democratic Friends Indeed? Uncertainty in Ethiopia, by Lahra The United Nations, Groups of Friends, Smith (Special Report 192, Aug. 2007) and the Resolution of Conflict n Iraq and the Gulf States: The Balance Teresa Whitfield of Fear, Jon B. Alterman (Special Report 189, Aug. 2007) Teresa Whitfield provides an overview of the types of groups and coalitions that n Guidelines for Relations Between U.S. have been actively engaged in issues of Armed Forces and Non-Governmental Humanitarian Organizations (Aug. peace and security within the UN sphere Recent 2007) and identifies five core factors for their success. Case studies include El Salvador, Guatemala, Haiti, Georgia, Western Sahara, and East Timor. For more information about these and September 2007 n 400 pp. n 6 x 9 other resources, visit the Institute’s $19.95 (paper) n ISBN 978-1-601270-05-4 website at www.usip.org $50.00 (cloth) n ISBN 978-1-601270-06-1

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