Alan Bryden and Vincenza Scherrer (eds) Disarmament, Demobilization and Reintegration and Security Sector Reform Insights from UN Experience in Afghanistan, Burundi, the Central African Republic and the Democratic Republic of the Congo Geneva Centre for the Democratic Control of Armed Forces (DCAF) LIT Alan Bryden and Vincenza Scherrer (eds) Disarmament, Demobilization and Reintegration and Security Sector Reform LIT (Bibliographic information here) Contents Foreword vii Preface ix Abbreviations xi Part I: Introduction 1 The DDR-SSR Nexus: Concepts and Policies 3 Alan Bryden and Vincenza Scherrer Part II: Case Studies 2 Afghanistan 31 Mark Sedra 3 Burundi 71 Serge Rumin 4 The Central African Republic 115 Boubacar N’Diaye 5 The Democratic Republic of the Congo 143 Vincenza Scherrer Part III: Conclusion 6 The DDR-SSR Nexus: Turning Practical Experience into 181 Good Practice Alan Bryden and Vincenza Scherrer Annex 205 Contributors 211 About DCAF 212 Foreword The United Nations is increasingly called upon to support post-conflict societies in their efforts to end conflict, stabilise, consolidate peace and commence recovery. Disarmament, demobilization and reintegration (DDR) and security sector reform (SSR) processes are critical elements of such efforts. As the authors of this publication observe, the conceptual linkages between DDR and SSR are already recognised widely by Member States, practitioners and other actors. Yet the implementation of mutually supportive DDR and SSR initiatives has often been elusive. DDR is a discrete conceptual and operational process that has been undertaken by the United Nations over the last twenty years in direct support of national partners, while SSR, as recently noted by the Security Council, is a much broader and newer concept. In the words of Secretary-General Ban Ki-moon, ‘We have come a long way from simply being ceasefire monitors. Today we are expected to keep, enforce and build peace.’ Both approaches are evolving in a very dynamic manner, and there is a need to establish close inter-linkages between DDR and SSR. To some extent, this reflects the operational nature of DDR – a time-bound and quantifiable process – while SSR aims at transforming institutions of government and even concepts of security. The book is a product of a close working relationship between the UN Department of Peacekeeping Operations and the Geneva Centre for the Democratic Control of Armed Forces, and it provides a timely and much-needed contribution to enhance our understanding about the topic. I hope it will stimulate further research in this very important emerging area. In a time of global economic challenges, efficiency, adaptability, innovation and vision are needed in all areas of post-conflict management. Unity of purpose and coherence are also vital. Actors must think beyond organisational boundaries and play to different strengths of peace operations, special political missions or UN agencies, funds and programmes. Synergy and coherence, together with delivering as one, are essential. Viewed from this perspective, DDR and SSR offer opportunities for designing mutually reinforcing early peacebuilding interventions that increase our capacity to achieve more with less. The book provides an impressive panorama of different contexts in which DDR and SSR intersect. The case studies on Afghanistan, Burundi, Central African Republic and the Democratic Republic of the Congo viii highlight the politically charged and inter-linked nature of DDR and SSR. While it should also be noted that the new concept of SSR will continue to evolve, these examples provide useful historical and practical references. We believe that the lessons offered in this publication will prove valuable for the many tasks lying ahead for the international community. They also remind us that no two conflicts are the same. It is therefore safe to say that the success of the international community’s engagement in conflict-torn countries will continue to rest on the ability to contextualise, adapt and re- evaluate current approaches. Dmitry Titov Assistant Secretary-General for Rule of Law and Security Institutions Department of Peacekeeping Operations United Nations Preface The UN has a long track record in the field of disarmament, demobilization and reintegration (DDR). Although also involved in supporting security sector reform (SSR) in member states over a number of years, translating these efforts into a common UN approach to SSR policy and practice is a more recent endeavour. The distinct trajectories of UN engagement in DDR and SSR underline that the activities often involve different objectives, timelines and stakeholders. Yet at the same time, both share a common goal of helping states emerging from conflict move towards recovery and longer term development. As a result, the need to exploit positive synergies but also to ‘do no harm’ in designing and implementing UN support for DDR and SSR has become increasingly evident. In order to understand the nexus between DDR and SSR and its implications for UN policy and practice, a requirement was identified by the UN Inter-Agency Working Group on DDR (IAWG-DDR) for additional guidance on DDR and SSR. Under the leadership of the United Nations Development Programme (UNDP) and the Department for Peacekeeping Operations (DPKO), DCAF was engaged to develop a new module for the UN Integrated Disarmament, Demobilization and Reintegration Standards (IDDRS) on this topic. The resulting IDDRS Module 6.10 on Disarmament, Demobilization and Reintegration and Security Sector Reform was officially launched at an IAWG-DDR Principals meeting on 14 December 2009.1 This volume reflects the key insights developed through this project and, in particular, showcases the country case studies developed as part of this work. We hope that this volume provides a useful point of reference for academics, policy makers and practitioners involved in the challenging fields of DDR and SSR. It is important to acknowledge that the four cases studies on Afghanistan, Burundi, the Central African Republic and the Democratic Republic of the Congo reflect the prevailing political and security situation at their time of writing. Much has certainly evolved since the field research was undertaken between September 2008 and January 2009. What has not changed is the need for international engagements in DDR, SSR and related fields to be contextually-grounded. Programmes must be responsive to the needs and interests of different national actors. Without understanding the dynamic political processes that shape the origins, parameters and outcomes 1 The module is available at: www.unddr.org x of both processes, DDR and SSR may address security deficits, but will be unfit to support sustainable transitions towards national recovery and development. The successful completion of the DDR-SSR project would not have been possible without the engagement of a number of people. The initial concept for the IDDRS module was developed by Kelvin Ong, now with the UN Department for Political Affairs. The process was guided on the UN side by Ayaka Suzuki and Simon Yazgi from the DPKO DDR Unit as well as Sophie da Camara, Luc Lafrenière and Dean Piedmont from UNDP’s Bureau for Crisis Prevention and Recovery. Valuable input was received from members of the IAWG-DDR and the Inter-Agency SSR Task Force as well as from many representatives of UN field missions and country offices. Conceptualization and drafting was supported by an advisory board of independent experts which included Jeremy Brickhill, Michael Brzoska, Mark Downes, Mark Knight, Robert Muggah and Edward Rees. Finally, the case study authors Boubacar N’Diaye, Serge Rumin, Vincenza Scherrer and Mark Sedra gave unsparingly of their time and knowledge to deliver against a complex and demanding set of requirements. The editors would like to thank sincerely all those who contributed to this process. The views expressed in this volume are those of the authors and do not in any way reflect the views of either the institutions or their representatives involved in this process. The Editors Geneva, March 2012 Abbreviations AMF Afghan Military Force AMIB African Union Mission in Burundi ANA Afghan National Army ANBP Afghan New Beginnings Programme ANP Afghan National Police APPM Armed Political Parties and Movements AU African Union BINUB Bureau Intégré des Nations Unies au Burundi, UN Integrated Office in Burundi BONUCA Bureau politique d’observation des Nations Unies en Centrafrique, United Nations Peace-building Office in the Central African Republic CAR Central African Republic CC Cellule de concertation, consultation unit CEMAC Communauté Économique et Monétaire de l'Afrique Centrale, Economic and Monetary Community of Central Africa CFA franc African Financial Community franc CivPol Civilian police CONADER Commission Nationale de la Démobilization et Réinsertion, National Commision for Demobilization and Reintegration, DRC CNDD/FDD Conseil National pour la Défense et la Démocratie/Forces pour la Défense de la Démocratie, National Council for Defence and Democracy / Forces for the Defence of Democracy, Burundi CNDDR Commission Nationale de Désarmement, Démobilization, et Réinsertion, National Commission for Disarmamant, Demobilization and Reintegration, CAR CNDP Congrès national pour la défense du peuple, National Congress for the Defence of the People, DRC CSTC-A Combined Security Transition Command Afghanistan DAC Development Assistance Committee (of the OECD) DCR Disarmament and community