Conflicts, Pandemics and Peacebuilding
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CONFLICTS, PANDEMICS AND PEACEBUILDING PANDEMICS CONFLICTS, Tizio Caio Pio, uterfecen te, nero acrum, cuppliumus cestore ssolturem is et; inatum idius. Gra, Patimilii con res bone co videati sulica CONFLICTS, PANDEMICS nos, con supplicessi peri, voc, quo consil ut atam, sa ta Founded in 1934, ISPI is pos habita auc o caut es nonsultustra senicae licapereo, AND PEACEBUILDING: finatum iamena, simante nitura patque tercesi gnatqua an independent think tank committed to the study of etem nox misquam quemor utere tem publis viverrissena New Perspectives on Security international political and rebeferectam prorid faudam hac rem tem es opostrende Sector Reform in the MENA Region economic dynamics. occiis orsus et, potius? Ximpravo, uteribustra nenate, cultum It is the only Italian Institute comnestus conequo ndiisque cla Seniu in Etra ad Catast edited by Andrea Cellino and Annalisa Perteghella – and one of the very few in abuspiem, urniam perorte rficipte veresse facret? in talibusus introduction by Thomas Guerber and Paolo Magri Europe – to combine research inatius, conocae tem nimorunc fur ur perferorum ia re activities with a significant intrae fac re clate con Itam pultoraric ium imus. Bit, ere con commitment to training, hore cauctemum mium quonsul tiliurox sultiaeti is oressu events, and global risk analysis iniaeluder audelatisque aucibul estaris essid adetia apere es for companies and institutions. intuspectum, qui sciorum que con acchuid furortu idervite ISPI favours an interdisciplinary vilique quam furei senihiliis Maris, que que cum deme and policy-oriented approach made possible by a research confirm ihicaves faci publicam ac occibunte, dem pula re, team of over 50 analysts and us, vivitua vignox muro vid dientenimil con din sed desciva an international network of 70 tortui ipterisum eriverm ilicesi moerferei cotiam molin Etrum, universities, think tanks, and nostra nocrio pria qua Sp. Nu is, ducitis firteli patemun tiaes! research centres. In the ranking issued by the University of Pennsylvania, ISPI placed first worldwide as the “Think Tank to Watch in 2020”. euro 12,00 Conflicts, Pandemics and Peacebuilding New Perspectives on Security Sector Reform in the MENA Region edited by Andrea Cellino and Annalisa Perteghella Peer Reviewers: Emadeddin Badi, Senior Analyst, Global Initiative Against Transnational Organized Crime, and Advisor for Libya, DCAF; Hans Born, Assistant Director and Head of the Policy and Research Division, DCAF; Virginie Collombier, Research Coordinator, Middle East Directions Programme, European University Institute (EUI); A. Heather Coyne, Senior Security Sector Reform Officer, Office of the Special Envoy of the Secretary General for Yemen, United Nations; Maria Fantappie, Special Adviser for MENA, Centre for Humanitarian Dialogue, Switzerland; Mary Fitzgerald, Associate Fellow, International Centre for the Study of Radicalisation (ICSR), King’s College London; Ahmed Nagi, Nonresident Scholar, Malcom H. Kerr Carnegie Middle East Center, Lebanon; Inna Rudolf, Research Fellow, International Centre for the Study of Radicalization, King’s College London; Yezid Sayigh, Senior Fellow, Malcolm H. Kerr Carnegie Middle East Center, Lebanon; Randa Slim, Director of the Conflict Resolution and Track II Dialogues Program, Middle East Institute, USA. The editors would like to thank Federico Borsari, Research Assistant ISPI, and Roberta Maggi, Project Assistant DCAF, for their valuable work and assistance with this publication. © 2020 Ledizioni LediPublishing Via Antonio Boselli, 10 – 20136 Milan – Italy www.ledizioni.it [email protected] Conflicts, Pandemics and Peacebuilding: New Perspectives on Security Sector Reform in the MENA Region Edited by Andrea Cellino and Annalisa Perteghella First edition: November 2020 The opinions expressed in this publication are those of the authors alone and do not necessarily reflect the position of the institutions referred to or represented within this publication. Print ISBN 9788855263924 ePub ISBN 9788855263931 Pdf ISBN 9788855263948 DOI 10.14672/55263924 ISPI. Via Clerici, 5 20121, Milan www.ispionline.it Catalogue and reprints information: www.ledizioni.it The Geneva Centre for Security Sector Governance - DCAF is an international foundation whose mission is to assist the international community in pursuing good governance and reform of the security sector. DCAF develops and promotes norms and standards, conducts tailored policy research, identifies good practices and recommendations to promote democratic security sector governance, and provides in-country advisory support and practical assistance programmes. Table of Contents Introduction Thomas Guerber, Paolo Magri................................................... 8 1. Building Security in Transitioning Societies Ranj Alaaldin.................................................................................. 13 2. The Challenge of Hybrid Actors on Security Governance Structures in MENA Jérôme Drevon............................................................................. 29 3. Security Sector Reform in Libya: Avoiding the Risks of Politicisation Jalel Harchaoui............................................................................ 44 4. SSR in Iraq Before and After the Covid-19 Pandemic Irene Costantini............................................................................ 65 5. A Network Approach to Yemen’s SSR: From Army-Centric to Community-Oriented Eleonora Ardemagni................................................................ 83 Conclusions and Policy Recommendations Andrea Cellino, Annalisa Perteghella................................... 103 About the Authors........................................................................... 110 Introduction In the last decade, the Middle East and North Africa (MENA) region has been shaken by a number of violent conflicts, including bloody civil wars in Syria, Yemen and Libya, which continue to this day and have to a great extent triggered a process of security fragmentation and deterioration. At the same time, such dynamics have caused and been compounded by two major and closely related factors: first, the weakening and partial delegitimisation of state institutions and control in a number of countries in the region, and second, the ascent of armed and powerful non-state or para-state actors, ranging from semi-official state-sponsored militias to violent terrorist groups. As governments across the region fail to deliver effective governance – and security – to their citizens, the institutional vacuum has been filled by multiple actors that often pursue competing agendas and reflect the interests – social, political and economic – of specific constituencies. These developments have a lot of negative or detrimental effects on the affected communities, or even for the state itself, and this process of security fragmentation away from the state’s authority poses both urgent questions on, and formidable challenges to the sustainability of centralised models of security governance in the region. Adding to this, the Covid-19 outbreak is exerting extreme pressure on governments and states’ healthcare systems, exposing governance deficiencies and exacerbating socio- economic grievances. The pandemic is not only a health crisis. Introduction 9 It also poses wider risks that may have long-lasting repercussions on human and state security in the region. More specifically, the health and economic crisis adds to the existing security challenges and puts additional burden on the security actors as well as those in charge of exercising effective democratic oversight on the sector. As public health is catapulted in the realm of “national security”. Security actors, including non- state militias, take on major roles in managing the pandemic in a context of limited or absent democratic scrutiny, the risks of unaccountability, ethno-religious discrimination as well as human rights and gender-equality violations grows hand in hand with that of vertical and horizontal exclusion. Against this backdrop, the question arises on which Security Sector Reform (SSR) strategies and programmes international organisations and stakeholders should adapt under these circumstances. Indeed, traditional approaches to SSR find themselves at a crossroads in conflict and post-conflict environments across the region: as governance crises remain pervasive on a regional scale, weak and fragile state institutions are struggling to cope with the complex reality in which they operate, thus failing to meet expectations of efficient Security Sector Governance (SSG) and properly address the needs of their citizens. After decades of attempted operationalisation, traditional top-down and institution-centric SSR approaches are thus increasingly considered ineffective, and progressively traded for more decentralised and tailor-made approaches that favour informal civilian forms of oversight. With these elements in mind, this report aims at shedding light on existing, envisaged, and deployed SSR doctrines across the MENA region, providing a thorough evaluation of security structures and security provisions in light of the prominent role of hybrid and non-state actors and the impact of Covid-19. Even more ambitiously, this publication seeks to enrich the debate on SSR and disarmament, demobilisation and reintegration (DDR) strategies in the Middle East and North Africa by delving into three key, and most debated, case studies 10 Conflicts, Pandemics and Peacebuilding and identifying the main obstacles