2004 Exchanging Guns for Tools.Pdf

BONN INTERNATIONAL CENTER FOR CONVERSION B I C C

BONN INTERNATIONAL CENTER FOR CONVERSION • INTERNATIONALES KONVERSIONSZENTRUM BONN

brief 29 Exchanging Guns for Tools The TAE Approach to Practical Disarmament–—An Assessment of the TAE Project in Mozambique Contents The authors

Sami Faltas is a program director in charge of the Training Acknowledgements 4 and Education on Small Arms (TRESA) project at BICC. Preface 5 Wolf-Christian Paes is a project Introduction 7 leader at BICC. His fields of History 8 research include small arms control and in particular weapons Assessing the Scope of the Problem 10 collection, as well as the role of economic actors in armed Aims and Objectives of the TAE Project 14 conflict. Output and Impact 16 Weapons Collection and destruction 16 Provision of Tools and Other Incentives 17 Figure: Collection Results of TAE Project from 20 October 1995 until 14 October 2003 18 Civic Education 19 Guns into Art 21 Resources Available to the Project 22 Mode of Operation 25 Information Retrieval 25 Provision of Incentives 26 Storage and Destruction 28 Government and Civil Society 30 Costs and Benefits 31 Lessons Learned and Replication 33 Motivation of Gun-Holders 33 Program Goals 34 Cover photo: Government Relations 34 WORLD VISION Germany Provision of Incentives 35 Translation: Bibliography 37 Jamil Chade BONN INTERNATIONAL CENTER FOR CONVERSION B I C C

BONN INTERNATIONAL CENTER FOR CONVERSION • INTERNATIONALES KONVERSIONSZENTRUM BONN

brief 29 Exchanging Guns for Tools The TAE Approach to Practical Disarmament–—An Assessment of the TAE Project in Mozambique

Sami Faltas and Wolf-Christian Paes brief 29

Acknowledgements

his study was commissioned authors. Noel Stott at the Institute main findings of this report were Tby WORLD VISION Germany for Security Studies (ISS) in discussed during a stakeholders’ and carried out by the Bonn Pretoria provided valuable insights workshop in June 2003 in Maputo, International Center for into Operation Rachel and Mozambique and the authors Conversion (BICC) in close authored the box on that subject would like to thank all participants cooperation with the TAE project in this report, while Christian Brun for their time and input. While in Maputo, Mozambique. The contributed the box on “Arts in many people have contributed to authors would like to thank all the Crossfire”. Frank Tester of the this report, the responsibility for current and former staff of TAE for University of British Columbia the content lies entirely with the their willingness to provide shared some of the results of his authors. insights into their work, simultaneous evaluation on behalf particularly TAE project manager of CUSO. Scott Lewis, research Bonn, April 2004 Albino Forquilha, as well as CUSO associate at BICC, assisted with the Bonn International Center for volunteers Kayo Takenoshita and editing of this report. The authors Conversion Christian Brun, who have by now are grateful to WORLD VISION left the project. Kayo was Germany and feel particularly Sami Faltas and instrumental in organizing the field indebted to Ekkehard Forberg for Wolf-Christian Paes research undertaken by the making this research possible. The

4 B·I·C·C preface

Preface

eapons are hazardous. Not usually cumbersome and the very first time, civil society is Wjust in the hands of robbers protracted. That leads to taking responsibility for the and rebels, but in and of disappointments and to an population’s disarmament at a themselves: The more of them increase of crime and armed self- national level, thereby making an exist and the easier they can be protection: a vicious circle of essential contribution towards accessed, the more probable their violence threatens to plunge such peace and reconciliation. During lethal use. Hence, the a post-war society into chaos once Mozambique’s civil war, millions disarmament of post-conflict again. That’s why there is no of automatic weapons were societies constitutes one of the reasonable alternative to a distributed all over the country vital challenges that need to be systematic disarmament of and amongst the people. Now the addressed, once combat has combatants and armed civilians. Christian Council of Mozambique ended. is collecting at least part of those The ‘Tools for Arms’ approach in weapons and destroying them on In post-war societies, weapons can Mozambique is a case in point the spot. Some weapons parts are fulfil a multiplicity of functions: and a spearheading example: For then modeled into works of art,

■ Although kept for defense, weapons promise only a false kind of security. All too often, accidents occur at home because weapons or ammunition are not properly stored. ■ As long as a country’s infrastructure and economy lie in ruins, a weapon can offer the basis for a family’s survival. The owner of a gun can secure an income if recruited by a private security service or a new army or if hired to protect a drove of cattle. ■ A weapon constitutes an object of value and a nest egg for times of want. Besides their material value, weapons also have their ideological appeal and their ‘aura of power’. Former combatants are known to only reluctantly relinquish their ‘companion’ of many years.

For people who have lost everything during a war and who have been uprooted from their kin and native villages, a weapon sometimes offers the only prospect for securing a modest income, be it legal or illegal. At the same time, people’s hopes and expectations for a rapid reconstruction and economic renewal of their country are often thwarted, for these processes take time and are Pieces of art made from destroyed weapons

B·I·C·C 5 brief 29

demonstrating to the people that Mozambique, people who hand in In post-war societies, civil actors such killing devices are no longer their guns during the project and non-governmental needed. period need not fear prosecution. organizations (NGO) can indeed It cannot be overlooked that this No doubt, the project has been fulfil a vital role in conflict civil disarmament must be able to learn from the experiences resolution and peace building. In attributed to the courageous of previous—often failed— Mozambique, Church leaders and commitment of individual civil disarmament projects. So-called NGOs are living up to the leaders. One of them is Bishop ‘buy back’ programs in which challenge. However, there is yet Sengulane, who has been a major weapons were bought back at another area in which NGOs can player in Mozambique’s peace their actual market value have in make a contribution: security. In process and also initiated this the past actually boosted the arms this area, though, they still have to project. Mr. Sengulane could build trade of a whole region. In gather and document their on the excellent reputation and Mozambique, useful household experiences. trust which the Christian Council tools are offered instead as of Mozambique had earned incentives for people to hand in This present Report investigates through its role in a successful their weapons, thereby offering the ‘Tools for Arms’ approach in conflict resolution. them new civil income Mozambique and looks into the opportunities. Those consumer general preconditions that lead to His involvement demonstrates why goods given in exchange for arms the project’s success. It also tries civil actors must play their role in —mostly sewing machines and to identify weak areas so other the peace process: They are bicycles—are symbols of a new actors can learn from this neutral with respect to the beginning. The Mozambique experience and apply it to other conflicting parties and the disarmament process is contexts. WORLD VISION and government structures; and they accompanied by training and BICC jointly hope that this have a proximity and easy access awareness programs to prepare documentation will help to the people. Civil actors can also society for a period of peace and encourage other post-war societies find innovative interim solutions to teach people how to resolve to commit themselves more fully without losing their credibility. For future conflicts in a non-violent to the disarmament of their instance, although it is now strictly way. population and to raise awareness prohibited to own a weapon in about the immense risks of small arms.

Ekkehard Forberg Coordinator for Conflict Resolution WORLD VISION Germany

Weapons being destroyed in a public ceremony in Sofala Province

6 B·I·C·C introduction

Introduction

he Republic of Mozambique’s dangerous legacies of the literature review and interviews Tcoat of arms has at its center liberation struggle and the civil with experts on SALW proliferation an AK-471 Kalashnikov assault rifle war, namely millions of weapons both inside Mozambique and as a symbol of the people’s and huge amounts of ammunition abroad. The main findings of this struggle against colonial rule, and explosives in the hands of the report were discussed during a which ultimately led to the population. This unusual church- stakeholders’ workshop in country’s independence in 1975. based effort, which will this report cooperation with TAE in June The 1970s and 1980s saw many will discuss, does not actually 2003. violent conflicts in which the convert arms into agricultural Kalashnikov, designed in the USSR implements, though that was the in the 1940s, helped to bring original idea, and Dom Dinis still down colonial rulers and regimes hopes to achieve that one day supported by the West in Angola, (Sengulane Interview). Rather, it Mozambique, Guinea-Bissau, collects weapons, ammunition and Namibia, South Africa, Zimbabwe, explosives from the population, Nicaragua, Cambodia and destroys the ordnance, and offers Vietnam. A popular culture of tools and other useful implements revolution evolved around slogans in exchange. like “a luta continua”, the image of Ernesto ‘Che’ Guevara and the gun TAE is unusual for being a with the distinctively curved disarmament project entirely run ammunition magazine. A South by civil society, for turning the African anti-apartheid music group metal of scrapped guns into works even called itself AK-47. of art, and for its longevity. In this report, we will discuss how TAE Today, the Kalashnikov is still works, what it has achieved, the widely used for a variety of difficulties it faces, how it might purposes, but it is not glorified as be made more effective, and to before. In fact, to many it what extent its approach could be symbolizes the disastrous usefully applied elsewhere. Our proliferation of small arms that aim is not so much to evaluate the fuels political conflicts and project, but rather to describe and promotes the rise of violent crime assess its approach. When we in many parts of the world. provide details, we do this to Bishop Dinis Sengulane of the illustrate a general point rather Anglican diocese of Lebombo than to explore the nuts and bolts (Mozambique) finds it painful to of the project. see the gun on the Mozambican flag. He tells his compatriots that This study is based on two field “to sleep with a gun in your trips to Mozambique, one bedroom is like sleeping with a undertaken by Sami Faltas to snake” (Sengulane Interview). In southern Mozambique in March the 1980s and early 1990s, Mr. 2003 and one made by Wolf- Sengulane helped to launch the Christian Paes to the central peace process that ended the civil provinces of Mozambique in May war. In 1995, he founded a project 2003, as well as on an extensive called ‘Transformation of Arms into Ploughshares’, abbreviated 1 2 AK-47 is the original version of the TAE. TAE is a project of the famously durable gun, admitted for use in Protestant-dominated Christian the Red Army in 1947. Many types Council of Mozambique (CCM), followed, with different names. In and particularly important to Mozambique, the Kalashnikov is referred Bishop Sengulane, who has been to as the AKM, a later version. 2 Its Portuguese name actually means the president of CCM since 1975. ‘Transformation of Arms into Hoes.’ The It aims to tackle one of the acronym TAE rhymes with ‘fly’.

B·I·C·C 7 brief 29

History

erhaps the most remarkable damaged. Agricultural fields and possible by foreign aid, but none Pthing about Mozambique is country roads had been hardened of it would have happened if the how well it has overcome the anti- by drought and were strewn with Mozambicans had not established a colonial war (1964-1974) followed landmines. Mozambique had sustainable peace. by an even bloodier civil war become the poorest country in the (1976-1992). By 1992, Jim Wurst world (The World Bank, 1997). Around 1990, the FRELIMO reports, at least one million people Today, the country still faces severe (‘Mozambican Liberation Front’) had been killed, while an problems. However, it is at peace, government and the RENA-MO additional 1.7 million had fled the the wounds torn by the war are (‘Mozambican National Resistance’) country (Wurst, 1994). The World slowly healing, the infrastructure is rebels came to the conclusion that Bank estimates that when the war being gradually repaired, and they had nothing to gain from was over, nearly a third of the landmines and other ordnance are continuing the war. Probably most population, 5.7 million people, had being removed. What is more, the of their followers had grown sick been uprooted. Railway tracks, economy is growing at one of the of the conflict much earlier, not to roads and bridges throughout the fasted rates in Sub-Saharan Africa, mention the rest of the population. country were in destroyed. Half the largely fueled by South African It is generally assumed that a schools and a third of all health investment, and democracy is strong and general desire among clinics were destroyed or severely maturing. Much of this is made Mozambicans for peace is the main reason why despite many problems the peace accords signed in 1992 have held.

Probably a lack of resources contributed to the end of the war. Many observers have noted the contrast between the success of the Mozambican peace process and the quest for peace in Angola, which took 10 years longer and suffered many setbacks. Like Mozambique, Angola is a Lusophone Southern African country that underwent Portuguese colonialism, a war of independence, and a civil war stoked by foreign powers. Most analysts believe that peace was more difficult to achieve in Angola because of the country’s exploitable resources. MPLA and UNITA fought amongst other things about access to rich sources of oil and diamonds, while in Mozambique the assets available to FRELIMO (prawns) and RENAMO (hardwoods) were less lucrative (Collier, 2001).

While Kenyans, Tanzanians, Italians, the United Nations and other outsiders played a big part in bringing the warring Mozambican factions together in the early 1990s, the earliest initiatives came from the Mozambican clergy. The Christian Council of Mozambique, Pieces of art made from destroyed weapons the Anglican Church and the

8 B·I·C·C history

Roman Catholic Church province stemming from uncontrolled without the interventions of their convinced FRELIMO and RENA-MO ordnance also affects social and governments.” that dialogue was the only way to political life. While illegally held end the war and save the country. guns sometimes allow people to We can confirm this. Furthermore, Then, when the fighting stopped, protect their family and property, TAE claims in its Programme of the churches played a key role in they also give rise to suspicions Action that Mozambique’s decision the struggle to build a peaceful and fears that are not helpful when to leave the disarmament of the society. They continue to do so, it comes to peaceful and population to civil society was the using their influence both behind democratic development. Finally, reason why a Mozambican the scenes and in public. TAE is they fuel the rise of violent crime diplomat, Carlos dos Santos, was probably their best-known project and cause many serious accidents. chosen to chair the preparatory in this regard. committee for the UN Conference In the early stage of the peace on the Illicit Trade in Small Arms of The UN peacekeeping operation in process, these problems, and the 2001 (Transforming Arms Into Mozambique (ONUMOZ), launched desirability of disarming the Ploughshares, 2001a). in 1992, counts as one of the most population, were clear and successful of its kind. It undisputed. But who was to tackle So the minority churches of demobilized nearly 100,000 them? ONUMOZ tried and failed. Mozambique, united in CCM, took combatants and led the country to The government, according to on the task of removing and its first elections. All in all, at the many accounts, was unable to do destroying a million guns or more end of the peace process, about the job. One reason was a lack of and immense quantities of 214,000 weapons had been resources, but a more fundamental explosives held illegally. Later in collected, very few of which were one was a lack of trust. The this report, we will discuss the destroyed. Mostly, they were divisions caused by the civil war consequences and implications handed over to the government made people reluctant to give up (good and bad) of delegating such (Berman, 1996, pp. 74 and 88; their weapons, and perceptions of a task to non-governmental Chachiua, 1999a, p. 26). Many govern-ment corruption and organizations. However, civil Mozambicans regarded the ineptitude further undermined their society is not alone in dealing with ordnance they held as a necessary confidence in the State and its illegally held ordnance in precaution in case the fighting officials. That, at least, is what the Mozambique. The government resumed. As a result, when observers we consulted believe. authorities and the South African ONUMOZ left in 1995, one expert police have a co-operative venture estimated the number of weapons Enter the Council of Christian called Operation Rachel (see box, remaining in the country at one to Churches (CCM). In its National p. 20) that seeks out and destroys six million (Chachiua, 1999a, p. Programme of Action for 2002- caches of illegal ordnance, and TAE 27). 2004, CCM’s TAE project says that occasionally enlists the help of the Rachel experts. That estimate was probably too “Mozambique is the first Country in high, as we will argue. However the world with a government who CCM launched TAE on 20 October there can be no doubt that the accepted in 1995 to give the civil 1995 in the presence of religious, legacy of weapons stands in the society, (Christian Council of governmental and diplomatic way of Mozambique’s development Mozambique) completely the representatives, as well as various toward peace, prosperity and responsibility for collection, massive national and international NGOs. A democracy. Economically, it destruction of small arms and light broad publicity campaign informed drained the country’s resources. weapons as well as all security the population about the goals of According to TAE, 70 percent of process of these complex and the project and the means it the Mozambican debt was due to political very sensible issue.” planned to use to achieve them the import of weapons (Trans- (Transforming Arms Into forming Arms Into Ploughshares, Ploughshares, 2001). 2001a, section 2). Besides, the It goes on to stress how unusual prevalence of weapons, this step was, explaining that while ammunition, mines and non-governmental organizations unexploded ordnance of other often play a prominent role in kinds is an obstacle to commerce, small arms action in other agriculture, health care, education countries, and the improvement of the “…the civil society by main country’s physical infrastructure. governments is never allowed to Furthermore, the insecurity manage (collection and destruction) completely of firearms

B·I·C·C 9 brief 29

Assessing the Scope of the Problem

hile Mozambique has been a function both of equip both its colonial army and Wsuccessful at keeping the underdevelopment and of the the white settler population.3 peace between FRELIMO and comparatively superficial control of FRELIMO, in line with its doctrine RENAMO, it has been much less the Portuguese colonial masters of a popular revolution, followed a successful in achieving sustainable over the neglected hinterland. This similar strategy of arming civilians economic development and is supported by interviews in the areas under their control effective governance. While undertaken during our research both for self-defense and to assist nominally the economic gains have which confirm that weapons were in an armed uprising of the been impressive since the end of not part of the traditional lifestyle. population. This deliberate strategy the civil war, much of the Some respondents even claimed assisted the spread of weapons development is focused on the that Mozambican society was throughout the country (Chabal, coastal areas and the ‘development inherently more peaceful, partially 1996, p. 8). corridor’ linking Maputo’s as the result of the ‘benign’ colonial hinterland to the South African rule, than the more violent societies No organized attempt was made to border. Despite a noticeable in neighboring South Africa and collect these weapons during the ‘trickle-down’ effect, economic Zimbabwe. While it seems brief spell of peace following the opportunities remain scarce for questionable that the colonial Lusaka Peace Accord in September many people in the provinces, regime was indeed more benign in 1974 and the outbreak of civil war leading to substantial migration Mozambique, there is little doubt between the newly established both to the capital and abroad. that the country “was not to FRELIMO government and Agriculture, the predominant means witness a massive influx of arms RENAMO insurgents in 1976. There of economic reproduction in rural before the national liberation is very little reliable information on areas, has also suffered greatly struggle of the early 1960s” the number of weapons which from the floods in 2000 and 2001, (Chachiua, 1999a, p. 16). poured into the country between followed by a severe drought in 1976 and the end of the conflict in 2002. Observers have estimated that there 1994, however most experts agree had been about 45,000 military that the number must have been The combination of poverty, deep firearms in Mozambique in 1971, very substantial. The Maputo divisions in the population and based on the existence of 35,000 government during the 1980s spent weak governance has proved a Portuguese soldiers and 10,000 40 to 50 percent of the state budget fertile ground for the rise of crime, armed FRELIMO insurgents (ibid., on defense (Berman, 1996, p. 43) though Mozambique is still more p. 16). This number seems to be and this figure did not include peaceful than many of its extremely conservative and makes weapons delivered by the Soviet neighbors. Due also to its no allowance for the fact that Union on credit (Chachiua, 1999a, geography, Mozambique has regular armed forces usually p. 19). Quickly developing into a allegedly also become a major maintain more than one weapon ‘Cold War’ proxy, FRELIMO transit point for the trafficking of per soldier. Furthermore this received substantial military drugs and other contraband. Guns number excludes police weapons assistance from socialist ‘brother’ are also trafficked, for instance to as well as privately owned countries, much of it in the form of the cities of South Africa. It is firearms. Despite these limitations it small arms and light weapons. extremely difficult to assess the seems clear that the number of According to Western intelligence scope of the problem of SALW guns was comparatively low by the reports, some 6,000 tons of military proliferation in Mozambique, as early 1970s, despite the fact that by equipment were shipped to Nacala reliable statistics on illegal arms the beginning of the decade the Port in February 1977 alone (Africa possession as well as on arms- liberation struggle had been related crimes are scarce. underway for six years. FRELIMO 3 AK-47 is the original version of the received arms from China, the famously durable gun, admitted for use in the Red Army in 1947. Many types It is widely assumed that during Soviet Union and other Eastern followed, with different names. In most of the colonial period, European nations, while Portugal Mozambique, the Kalashnikov is referred firearms were rare in Mozambique, poured arms into the country to to as the AKM, a later version.

10 B·I·C·C the scope of the problem

Contemporary Record, 1978-1979, civil war ended up in the hands of by the government to civilians p. C331). While these numbers are civilians, or were hidden by according to the same source. In a almost certainly inflated, there is combatants as a ‘life insurance country of some 16 million people little doubt that imports of military policy’ for the post-conflict period. and with only about 150,000 equipment during this period were Meanwhile, FRELIMO continued its regular combatants at the time of substantial. practice of handing out weapons, the peace agreement, these including automatic rifles both to numbers seem to be extremely Meanwhile RENAMO initially paramilitary groups (such as party exaggerated. However, while this received arms from Ian Smith’s formations and factory brigades) inflated number still forms the basis minority regime in Rhodesia and to the general population. for much of the needs analysis for (present-day Zimbabwe) and later According to one former FRELIMO small arms action, there can be no on from the Apartheid government officer, the motivation for this doubt that the problem of in South Africa. In line with distribution was purely political: uncontrolled SALW proliferation by RENAMO’s guerilla strategy, much the mid-1990s was very substantial. of this took the form of small arms “The military was not even and light weapons, including consulted and, of course, it did not Matters were not helped by the significant quantities of Soviet-made have in mind the need for arms fact that despite the impressive AK-47s seized by South African control. From a military point of results of the ONUMOZ forces during operations in Angola view the distribution of weapons to demobilization program, many ex- and Namibia. Further assistance [the] civilian population was combatants preferred to retain was provided by other western nonsense. Even to militia groups it some of their weapons by hiding states and private groups espousing should have been more cautious. them before reporting to the anti-Communist and pro-Christian Because, those weapons could— ONUMOZ assembly areas. With agendas (Chachiua, 1999a, p. 20), and most of the time did—end up regard to RENAMO units, a while some weapons were reinforcing the enemy. But the number of former fighters acquired commercially on the black political leadership deemed it interviewed in the context of this market, in exchange for ivory and correct” (ibid., p. 21). project confirmed the existence of timber. Another important source a deliberate strategy to hide of military equipment for RENAMO There is no reliable information on substantial amounts of arms and was the capture of weapons from the total number of weapons in ammunition as a precaution in government troops. circulation at the end of civil war. case the peace process failed. According to a much-quoted These caches are believed to be The situation was further estimate (Smith, 1996, p. 6) in 1995 most numerous in former complicated by the fact that both six million AK-47s were believed to RENAMO strongholds. This leaves FRELIMO and RENAMO had a bad have been circulating in us with three different categories record for stock-keeping and Mozambique in 1995. It is not quite of uncollected illegal weapons at storage procedures. It is widely clear whether this number is the end of the peace process believed that many weapons ‘lost’ supposed to include the 1.5 million (Chachiua, 1999a, p. 27): during the almost two decades of assault rifles that were handed out

Assault rifles cut into pieces during public ceremony in Sofala Province

B·I·C·C 11 brief 29

■ Caches retained by the warring onwards to conduct joint weapons and growing income disparities as parties, in particular by collection and destruction the result of the government RENAMO, mostly located in operations with their Mozambican market-oriented economic policies, inaccessible areas near their counterparts. Dubbed ‘Operation one would assume that the former areas of operation; Rachel’ (see box, p. 20), this rare widespread availability of ■ Caches retained by individual example of cross-border police weapons in Mozambique would soldiers and militia members, cooperation is still on-going at the lead to a sharp increase in armed usually located in or near time of research and has succeeded violence. Indeed, reports from the private residences. in destroying more than 30,000 late 1990s cite anecdotal evidence firearms plus several tons of for a rise in crime, particularly in ■ Individual weapons retained by ammunition, explosives and other the greater Maputo area civilians, either stemming from military equipment (see detailed (Chachiua, 1999a, pp. 34-35; government distribution or statistics for Operations Rachel 1-9 Oosthuysen, 1996, p. 47). The few purchased individually, also in the box, p. 20). available statistics record a jump in usually located in or near reported crime of about a third private homes. In the decade following the almost between 1994 and 1996, even simultaneous end of white minority though the share of arms-related While the Lusaka peace agreement rule in South Africa and the end of crimes remained constant at about marked the end of the civil war in Mozambique, 4.2 percent. Unfortunately no politicallymotivated violence in initiatives such as ‘Operation more recent statistics were Mozambique, the strong demand Rachel’ have contributed to a available until the time of writing. for automatic firearms by criminal reduction in cross-border arms groups in neighboring South Africa smuggling. Improved border Therefore the authors have during the second part of the 1990s management procedures and attempted to investigate the meant that cross-border gun- intelligence-sharing, as well as a number of arms-related crimes by running became an important reduction in demand for illegal conducting interviews with local problem. Former combatants from weapons in South Africa (which police chiefs in Maputo, Beira, both parties, justifiably worried probably peaked in 1996/97) had Quelimane and Mopeia. The about their peacetime prospects, an impact on the illegal trade as results of this informal survey utilized the market opportunities well. Another factor could be that painted a very different picture created by the high demand in while South Africa’s black market compared with the earlier reports.4 South Africa and sold both their reached the saturation point, All police officers interviewed for personal weapons and the content leading to a reduction in market this report confirmed that the of caches across the porous border. prices, the number of arms caches number of arms-related crimes Alex Vines (1996, p. 7) quotes a within easy reach of the South was actually very low and that this former FRELIMO soldier saying “we African border is shrinking. number has been stable in the knew that guns make good Interviews with former RENAMO period from 1998-2003, and much business. So we kept the best for soldiers in the context of this lower than in 1992-1995 (Interview ourselves. I have sold some to research confirm that potential Ministry of the Interior, May 2003). dealers from Joni [Johannesburg] beneficiaries need to go deeper Unsurprisingly, the majority of and I kept others for the future. and deeper into the bush to access cases were reported in the Maputo […] FRELIMO was never going to remaining caches of weapons, area and usually involved the use pay us for the years we were made which must lead to higher costs on of guns in armed assaults and car- to fight. We have to look after the black market, making the cross- theft. The latter has also been a ourselves.” This view was shared border trade less lucrative. There cause of concern along the by the head of the RENAMO are even some indications that National Highway Number One, Parliamentary Group who automatic weapons are now where truckers and individual remarked that “the soldiers have smuggled into Mozambique (UN, motorists had been targeted by not got any money and there is lots 2002, p. 8), indicating that weapons of military equipment in the bush” 4 from local caches can not longer The authors are aware of the limitation of (Oosthuysen, 1996, p. 49). satisfy the demand of the this information-gathering approach. Unfortunately, limited resources prevented indigenous criminal groups, even us from undertaking a more though this demand is fairly low by In the absence of reliable statistics comprehensive survey, which would be international standards. needed to assess the real impact of small it is impossible to quantify these arms on the security situation in cross-border transfers, but the Given an impoverished and Mozambique. We should add however South African government was that the general view on arms-related traumatized population, scores of sufficiently worried to dispatch crime expressed by the police was former fighters with dim prospects corroborated by members of civil society. specialized police teams from 1995

12 B·I·C·C the scope of the problem

armed bandits (Interview Ministry caches of weapons still exist in the coming from elsewhere. of the Interior and Police Chief province, mostly deep in the Furthermore, while many observers Beira, May 2003). inaccessible bush, and while major (Oosthuysen, 1996, p. 47) had stocks of arms are recovered by predicted that former fighters This view was confirmed during the police, usually as the result of would turn to crime in order to interviews with police officials accidental finds by farmers, the survive, the police confirmed that (May 2003) in Mozambique’s chief was mostly concerned about in 2003 the vast majority of crimes second largest city, Beira. It is the their potential for accidents rather were com-mitted by disgruntled capital of Sofala province and an than their use in crime. young people between 20 and 35, important port city at the end of often coming from an urban setting the Tete corridor between the coast All in all, we believe that the (Ministry of the Interior, May 2003). and landlocked Malawi and problem of small arms proliferation Zimbabwe. Beira saw some heavy and misuse in Mozambique has The problems posed by the fighting during the civil war. been exaggerated by many proliferation of small arms and light Nevertheless, the police confirmed observers. Whereas Maputo and weapons continue to be that there were very few incidents the comparatively prosperous substantial. However, the authors of arms-related crime, on average capital region suffer from of this report believe that the size one case per month. While the city substantial (mostly property- and the impact of the problem sees substantially more crime than related) criminal activity, they have have been grossly overstated. Arms the hinterland, much of it is been spared the soaring crime caches continue to be found in the peaceful. The police representatives levels common in many other large countryside and pose a very real mentioned the continual presence cities in Africa, including risk of accidental firing or of armed bandits along National neighboring South Africa. explosion. The persons uncovering High-way Number One, but they Provincial capitals and secondary the weapons are the first to face claim that the number of assaults, cities in Mozambique are much these hazards. Similarly, individual which peaked at 7–8 cases per more peaceful than the Maputo weapons retained from the war week in the mid-1990s, is now region, while rural areas see could be a source of accidents or— much lower, partially because a virtually no violent crimes less likely—end up in the hands of special unit of the rapid reaction committed with firearms. This criminals. Given the inaccessibility police has been deployed in the suggests that either the actual of many caches and the low black province. While the police officer number of weapons in circulation market demand, their recovery by we spoke to acknowledged the is much lower than the published criminal groups currently makes existence of a black market for estimates we cited above, or that little economic sense. These factors guns in the city, he claimed that the majority of the weapons provide a benign environment for most of them were coming from retained after the civil war were voluntary collection programs like ‘leaks’ at the large military base in exported or well hidden. This is the one operated by the TAE town, where underpaid soldiers are supported by an analysis of the project. willing to sell or rent out (at a weapons recovered by TAE during price of about US $20) their our visits to Mozambique. Most of When it comes to gun control, the firearms to criminals. the operational weapons (the ones government in Maputo is said to be most likely to be attractive to very strict, but its possibilities are Police officers in Quelimane (May criminals) were recovered from limited not only by a lack of 2003), the capital of Zambezia caches in remote locations, money, equipment and qualified province, paint an even more whereas the weapons submitted in personnel. Its laws and institutions peaceful picture. According to the or near urban areas were less are also less than adequate. It has police chief, no black market for numerous, and often not in developed a National Action Plan firearms exists in the province, working order. to implement the UN Programme even though the area witnessed of Action on Small Arms of 2001, very heavy fighting during the civil Even provinces with reportedly but needs resources to properly war and, like neighboring Sofala high numbers of remaining implement it. It is also drafting a province, contained several RENAMO caches, such as Sofala new law on firearms to replace the important RENAMO bases. While and Zambezia, show extremely low outdated 1973 law introduced by some isolated incidents of armed crime rates. In contrast, the colonial power, Portugal. This robberies were reported, the police comparatively few caches are law does not include certain types claimed that there had been only believed to exist near Maputo, yet of weapons, nor does it impose two cases in the period from the capital shows the highest adequate penalties on offenders January to May 2003. The police incidence of arms-related crimes, (United Nations, 2002, p. 9). acknowledges that substantial indicating that the weapons are

B·I·C·C 13 brief 29

Aims and Objectives of the TAE Project

n very broad terms, it seems fairly 1. Collection of weapons6 Background Information also Iclear what TAE does and what it 2. Exchange of weapons for tools specifies that TAE’s target group comprises “illegal arms holders, hopes to achieve. However, it is 3. Destruction of weapons hard to discuss the objectives and former combatants, and all others aspirations of the project 4. Civic education of the willing to share information 7 systematically because TAE beneficiaries and surrounding concerning existing arms caches or describes them differently in various community individually kept weapons of any project documents. This even 5. Transformation of the destroyed type” (Transforming Arms Into happens within a single document weapons into pieces of art and Ploughshares, 2000). like the basic TAE text Background presenting them to the general Information, which is updated from public (Transforming Arms Into It goes to list as “expected results time to time, but does not bear a Ploughshares, 2000). and tangible past benefits” date.5 ■ A TAE report issued in 2001 adds Reducing the number of arms two further components: circulating in the country According to this text, the ■ Diminishing accidents due to fundamental aim of TAE is to 6. “To share the TAE experience arms caches “establish a culture of peace” in a by…promoting Peace and ■ country ravaged by war and natural Reconciliation during various Diminishing acts of criminality disasters (Transforming Arms Into national and international and violence Ploughshares, 2000). To do so, it events/activities” and ■ Social reintegration of the target seeks to “strengthen democracy and 7. “To improve the TAE project group members by involving civil society by encouraging the through the constant proposal of them into productive activities population to participate in active new practical ideas ■ Better acceptance of the peacekeeping activities, by (Transforming Arms Into principles of a culture of peace promoting reconciliation and by Ploughshares, 2001). amongst the population through facilitating the initiation of participatory acts of productive activities for the TAE’s Background Information reconciliation (Transforming population. The project also document goes on to distinguish in Arms Into Ploughshares, 2000). encourages the social integration of greater detail the target group” (Transforming i) General Objectives Furthermore, the document goes on Arms Into Ploughshares, 2000), that ■ to help build a culture of peace to describe the wide press coverage is to say, ex-combatantas and that TAE enjoys, especially in ■ others illegally holding weapons to support and maintain a Mozambique, but also in foreign and explosives. peaceful post-war transition in media (Transforming Arms Into Mozambique Ploughshares, 2000). It provides According to the basic TAE project ■ to offer an alternative lifestyle to examples of the impact of tools and document, Background arms holders other useful items provided by TAE Information, the five major to people reporting or surrendering ii) Specific Objectives components of the project are: ordnance: ■ to collect and destroy all 5 The project also gives varying renditions available weapons ■ A local woman has been able to of its English name, sometimes calling it ■ to transform arms into start a business by using her the ‘Tools for Arms Project’ and in other incentive received in exchange instances the ‘Transforming Arms into “plowshares”, i.e. offering useful Ploughshares Project’. Occasionally, ‘A tools for delivering weapons for weapons (a sewing machine). She is now looking to Culture of Peace’ is added to the name ■ to reduce violence and educate 6 When TAE speaks of ‘weapons’, it often expand her business. means to include ammunition and civil society about its results ■ A young man whose home was explosives. ■ to transform destroyed arms into 7 destroyed by the latest floods was TAE uses this term to denote the sculptures and other forms of art recipients of goods offered in exchange able to begin the process of home (Transforming Arms Into for ordnance. reconstruction with the help of Ploughshares, 2000).

14 B·I·C·C aims and objectives

cement bags exchanged with We will now attempt to provide our Mozambique. That is its ultimate TAE. own interpretation of TAE’s goals. aim. How, in TAE’s opinion, will ■ A former Child-soldier, captured By doing this simply and clearly, weapons reduction lead to greater by one of the fighting factions we will be better able to estimate security and a more durable peace? during the civil war in TAE’s success. Naturally, we will try After all, removing weapons does Mozambique, received various to avoid misrepresenting the not automatically produce peace. materials in exchange for project’s intentions. With some justification, TAE be- information leading to the lieves that disarmament will discovery of two arm cachets The impression we obtained during contribute to peace in three ways. buries by himself after the war. our visits in 2003, and reading documents written throughout the First, by making it more difficult for ■ A young university student was seven years of the project, is that it political activists and criminals to able to receive an Oxford English in practice, TAE particularly wants obtain guns and bullets. This will Dictionary in exchange for his to remove as much weaponry and be the case if the tools of violence weapon. ammunition from Mozambican are in smaller supply or if people ■ The many bicycles that have society as possible. That is by far its hide them more carefully. Second, been exchanged are now being most important objective. Nearly all by demonstrating that it is both used to alleviate the stress of its other activities serve to support possible and advantageous for bringing family essentials daily this main function. In our view, the civilians to get rid of arms and such as water, firewood or handing out of useful products in explosives that they hold illegally. bringing produce to the market exchange for guns, the staging of Here civil education and the for its sale (Transforming Arms civil education campaigns, the offering of incentives are useful. Into Ploughshares, 2000). production and exhibition of guns Third, by widening the movement ■ A civic education programme turned into art, and drawing to remove illegal guns from initiated by the Anglican church attention to the TAE project at Mozambican society, both by in Maputo has succeeded in home and abroad in practice all expanding the TAE project and by having some children bring in serve to reinforce TAE’s principal promoting efforts by others. Here their toy plastic guns to the TAE function, the removal and disposal fund-raising and public relations are project office for destruction, in of ordnance, even if TAE suggests essential. return for another new toy. that they are equally important. ■ Through the donation of a small Now let us see what TAE has land tractor by a Japanese But beyond weapons reduction lies achieved, and how its achievements partner, two groups of people in a bigger goal. By targeting illegally measure up to its aims and the Manhiça region and the held arms and explosives, TAE objectives. Chibuto region competed for the wants to contribute to peace in tractor. The second group successfully raised 500 weapons and thus the tractor was delivered to them (Transforming Arms Into Ploughshares, 2000).

Turning to the creation of sculptures from destroyed guns, the document reports:

■ The creation of hundreds of works of art made from arms fragments by the Nucleo de Arte Association of artists in Maputo, has provided the symbols for peace: for example, artists have created with the destroyed weapons: motorcycle, various types of birds and animals, traditional African statues, a jazz-player, a table and chair etc (Transforming Arms Into Ploughshares, 2000). Collected pistols in storage at TAE Headquarter in Quelimane, Zambézia

B·I·C·C 15 brief 29

Output and Impact

n its reports to the Canadian total of 270,351 items ranging from weaponry and accessories” IInternational Development bullets to machine guns (Trans- (Transforming Arms Into Agency (CIDA), TAE relates its forming Arms Into Ploughshares, Ploughshares, 2000). ‘objectives’ to ‘outputs’, ‘outcome’ 2003). and ‘actual result’, (Transforming These statements sound as if TAE Arms Into Ploughshares, 2001). We have no way to judge the collected over 221,000 arms, This provides a useful framework accuracy of these numbers, but instead of several thousand arms for our discussion. we have no evidence to suggest and over 200,000 bullets and other they are incorrect. By contrast, pieces of military equipment. we find some of the texts that Unfortunately, this confusion Weapons Collection and TAE puts out about its results in seems to be deliberate. On other Destruction weapons collection confusing and occasions, TAE has literally misleading. In its sixth-month claimed to have collected 200,000 The most recent data available report to CIDA, TAE claims that it weapons. (October 1995–October 2003) passed the milestone of “200,000 In April 2002, TAE’s national indicate that TAE collected 7,850 pieces of weaponry collected” in coordinator Albino Forquilha told weapons, 5,964 pieces of September 2001 (Transforming a Portuguese news agency “that unexploded ordnance (like mines Arms Into Ploughshares, 2001), ever since the creation of TAE, this and grenades of various types), and in its Background CCM project has resulted in the 256,537 rounds of ammunition, Information and other documents, collection and destruction of about and various other pieces of TAE claims to have collected 200,000 weapons…” He also noted military equipment, adding up to a “over 221,000 different pieces of that “the CCM needs about 19 million dollars…to make viable its program of Exchanging Weapons for Hoes (TAE) for the next three years. It plans to collect a total of 100,000 weapons per annum” (Lusa News Agency, 10 April 2002). A few months later, Mr. Forquilha made a similar statement to South African reporters (South African Press Association, 2002).

Clearly, TAE has on several occasions exaggerated the results of weapons collection by using word like ‘arms’ and ‘weapons’ for a wide variety of military items, 90 percent of which are bullets.

TAE’s tables of collection statistics seem more consistent and precise than its texts. These tables indicate that since 1995, TAE has collected about 1,000 weapons a year, plus respectable quantities of unexploded ordnance, ammunition and other military gear. In terms of disarming the Mozambican population, this crop is very small. Nor have we seen any statistical evidence that supports TAE’s claim that the removal of weapons and ammunition has led to a decline in weapons-related crime and Improvised storage site for collected arms and ammunition in Mopeia, Sofala accidents. At any rate, it is almost

16 B·I·C·C output and impact

impossible to obtain reliable program has had a big impact The exchange of ordnance for statistics on these matters in within the country. The art scene productive goods has been the Mozambique. of Maputo is very far removed object of much thought at TAE. from the life of most The project has carried out needs The 7,850 arms collected by TAE Mozambicans. However, stories, assessments in order to select the since 1995 are less than the photos and exhibits of art made most appropriate rewards, though approximately 30,000 weapons from scrapped guns have hugely Christian Brun, previously recovered and destroyed by the contributed to TAE’s public assigned to TAE as a CUSO nine Operations Rachel that took relations outside the country, volunteer, believes they now need place in about the same period probably making it much easier to to be re-examined (Brun (see box on Operation Rachel, p. raise funds for the program. So Interview, March 2003). The 20). indirectly, the art project may have criteria that TAE uses to determine had a strong impact on TAE’s how large a reward a ‘source’ To be sure, Operation Rachel is a activities throughout Mozambique. should receive are not crystal project of the South African and This effect may now be wearing clear, but most current and former Mozambican governments, while off, as many potential donors staff members agree that some of TAE is entirely run by civil society. know the story of turning guns the most important are: Besides some of the weapons into art, and the artists show a collected by TAE are included in greater interest in furthering their 1. The volume of the ordnance the figures for Operation Rachel artistic and commercial careers offered, which can vary greatly. due to the fact that the rather than promoting the TAE 2. Its condition, which staff government program destroys project. members claim is usually very weapons collected by TAE. All good. things considered, for a church- As we will see in the section on 3. The type of ordnance offered. run project to run a weapons civic education, TAE is planning a Dangerous items rate higher. collection program for seven years gender activity. So far, it has and collect thousands of guns and shown little inclination to consider 4. The characteristics of the large quantities of ammunition and the various ways in which men source. According to the staff, explosives is no mean and women experience the spread deserving recipients get more. achievement. For them to do this and the recovery of weapons. The 5. ‘Social value’, that is to say the with very limited government way it rewards influential ex- likely impact of the reward. support is remarkable. combatants may not be encouraging to women suffering How has the collection and from insecurity and gun violence. destruction of the guns and On the other hand, we could explosives recovered by TAE imagine that women are in a affected Mozambique? We do not general sense sympathetic to TAE’s believe it has made it more attempt to get guns out of society. difficult for political activists, Unfortunately, we can only criminals or anyone else to arm speculate about these important themselves. However, it has questions. proven and demonstrated that weapons reduction is possible in Provision of Tools and Mozambique. Without Operation Rachel and TAE, there would be Other Incentives no one seriously challenging the In the six years between the normality of weapons being launching of the program in 1995 widely available in the country. until September 2001, TAE handed 5 Thanks to these two programs, the The project also gives varying renditions out nearly 7,000 kilograms of population are finding out that of its English name, sometimes calling it commodities and a negligible the ‘Tools for Arms Project’ and in other there are benefits to getting rid of amount of cash. The items instances the ‘Transforming Arms into illegally-held armaments. Ploughshares Project’. Occasionally, ‘A included bicycles, sewing Culture of Peace’ is added to the name machines, sheets of zinc for roof 6 This message is reinforced and When TAE speaks of ‘weapons’, it often construction, agricultural tools, means to include ammunition and amplified by TAE’s civic education building materials and a wide explosives activities, and its success in 7 range of other items (Transforming TAE uses this term to denote the reaching the Mozambican media. recipients of goods offered in exchange Arms Into Ploughshares, 2002). We do not believe that TAE’s art for ordnance

B·I·C·C 17 brief 29 1188 AE ‘satellite’ to two T 9 d Zamb. (Zambezia) refer d Zamb. (Zambezia) refer 2 72 1 21 9 4 0 18152 0 7 0 0 0 3 32 4 6 0 18 11 53 3 10 710 5 1 6010 0002 3 0 0 002 6 5 0 1 87 2 0 0 2 0 0 0 2 2 0 0571 0241 3 0 1 60130 10 0 0 4 0 0 7 0 0 0 10 0 221 0 14 0 0 42 4 32 1 41 1 80 77 0 0 52 116 29 72 1 0 0 186 229 0 0 520 0 109 32 76 279 120 718 193 604 102 355 639 3 1582 4671 3682 5517 79 27 14 85 2812 5 20 1719 23 5318 84 29 10 4 12 32 194 13 145 3 2 0 33 6 13 9 0 13 0 91 69 15 0 2 0 5 120 975 239 19 1 0 31 12 754 4 0 0 5 1 1 0 15 561 0 4 0 150 1 0 0 197 0 34 0 283 34 263 0 0 50 0 3 0 2 120 147 128 371 187 26 112 160 46 3 0 8 1172 844 57 103 33 240 355 85 1856 34 1185 5964 1995 1996 1997 1998 1999 2000 2001 2002 2003 C. Del. Zamb. Total 10489 9943 2881 33307 10226 19227 40059 22669 200507 3494 102907 455709 This figure is based on data provided by TAE. The weapons categories were defined by TAE. The columns C. Del. (Cabo Delgado) an defined by TAE. The weapons categories were by TAE. is based on data provided This figure offices, which are operating semi-independent from the headquarters in Maputo. which are operating semi-independent from offices, 9 Type AKM Pistols (various) MG PPX Bazooka Mortars (various) Machine Guns PK Machine Guns Pieces Mauser G3 Semi-automatics Launchers Grenade Rifles FBP M20 ZG1 collectedWeapons Other items collected Explosives Ammunition 280Cartridges etc. 543Other equipment Bayonets 465 867 348 777 590 571 970 7 2432 7850 Grand total 12168 11469 3776 34465 10635 20394 41165 23374 203345 3535 106535 470861 Figure 1: Collection Results of TAE Project from 20 October 1995 until 14 2003 from Project 1: Collection Results of TAE Figure

18 B·I·C·C output and impact

Whom does TAE reward? It is more, and much more frequently. seamstress, then perhaps a job will important to note that it offers The incentives provided by TAE be created. The same applies if a incentives to the people who rarely benefit the poorest members farmer receives a set of tools, provide information leading to the of local communities directly. enabling him to gainfully employ recovery of ordnance, or who However, the poor may profit another person on his land. hand over such ordnance. These indirectly. The women working However, we suspect that in most are called ‘sources’ or the sewing machines in the tailor’s cases, the impact of the small ‘beneficiaries’. They may not be shop in Boane may be a case in rewards provided by TAE is the same people who actually point. insufficient to create sustainable held the ordnance. The sources jobs. may take TAE’s operational staff to TAE refers to the beneficiaries as caches of arms belonging to ‘sources’, and for good reason. Civic Education themselves, their families, their These people are suppliers of neighbors, their rivals, or anyone information, not necessarily of This TAE activity was launched in else. Alternatively, they may have guns and bullets. TAE offers 2000. By 2001, about 500 people obtained the ordnance from other rewards to people who provide had participated in what TAE people by purchase, barter, theft information leading to the removal describes as civic education events or extortion. Of course, they may of illegal weaponry. The guns and (Transforming Arms Into also have had the items in their bullets may be in the possession Ploughshares, 2001). From reports own possession. of the source himself, but it is also and interviews with the staff, we common for the source to offer conclude that this work mainly During our mission, we spoke to a TAE guns and explosives that he consists of encouraging the beneficiary in Boane, near obtained from others in order to population to hand in weapons. It Maputo, who had paid friends and trade them in. In this case, he will is in this context that the dangers acquaintances to give him arms give the actual suppliers of living with arms and explosives and explosives to surrender to something in exchange for the are described, as well as the TAE in exchange for sewing weaponry. In other cases, the advantages of trading them for machines. These machines source will not provide weaponry bicycles, sewing machines and the enabled him to expand and at all, but lead the project staff to like. So civic education is modernize his tailor’s shop in the the place where it can be found, instrumental to enhancing the central market. He seemed pleased for example in a cache. success of disarmament with the arrangement and eager to (collection, destruction and continue it. In this case, it was the How this mode of operation exchange of ordnance). tailor, his workers and family, as affects local communities is not well as the people who had clear to us. Unfortunately, the TAE encourages people to hand in supplied the ordnance, who impressions we gained in our ordnance, gives them something benefited from the swap. fieldwork are haphazard and useful in return, and destroys the Probably, there were indirect superficial. We suspect that the ordnance, turning some of the benefits for other people as well. provision of benefits to ‘sources’ scrap into art. It is more successful We did not detect any adverse makes people think that giving up than most similar campaigns effects, but when we come to guns and ammunition can make around the world in drawing discuss TAE’s method of operation, good business sense. We also public attention to these activities, we will discuss unintended effects. believe that to most potential and this publicity serves to beneficiaries, this financial highlight the possibility and It is difficult to assess the impact incentive is a more powerful desirability of getting rid of of providing bicycles, tools and motive than the desire to promote weapons and explosives. building materials to people who peace and security. However, TAE help TAE recover illegal steadfastly denies the commercial weaponry. Definitely, the nature of exchanging guns for recipients benefit. Who are they? tools. Generally speaking, they are not women hoping to start a business, We are uncertain about the effects or struggling young students, as of the goods handed out on the examples put forward by TAE income generation amongst the suggest. Male ex-combatants in weaker members of local their forties who are men of communities. If by adding a influence and accustomed to sewing machine to his shop, a doing business benefit much tailor can employ another

B·I·C·C 19 brief 29

Operation Rachel where they are used to perpetrate that there was an increasing crimes and acts of violence. availability of firearms which Operation Rachel started in 1995 Second, to remove and destroy posed a threat to security, peace and it has become a leading unstable explosive devices and and social stability. After example of a weapons collection material from these caches thereby identifying hidden arms caches as and destruction program that has preventing injury to innocent the main source of these weapons, sought to stem the movement of civilians who reside in the vicinity and in order to reduce the illegal firearms and other small of these caches. potential of violence, the arms and light weapons across government of Mozambique national boundaries, in particular From a South African Government defined as a priority the location across the borders of Mozambique perspective then, the collection and ultimate destruction of the and South Africa. and destruction of small arms and weapons. light weapons in Mozambique is Both the democratically elected not [only] an issue related to South Africa and Mozambique governments of Mozambique and disarmament and arms control, but have thus been acutely aware of South Africa have since their an issue of crime prevention. “The the “cross-border” nature of crime transitions, been faced with destruction of arms caches in and therefore the need to combat increasing levels of violent crime Mozambique is viewed as a it at both a national and regional exacerbated by the widespread natural extension of fighting crime level. As such Operation Rachel proliferation of small arms and in the cities and towns of South prevents the weapons from light weapons. In 1995, South Africa.” As the National causing further destruction in the Africa and Mozambique signed an Commissioner of the South African region generally and, in particular, agreement to jointly combat crime. Police Service, Mr. J.S. Selebi has from being used in violent crime The aim of Operation Rachel is to stated, “the destruction of these in both South Africa and destroy arms caches still buried in arms caches in Mozambique with Mozambique. Mozambique following that the assistance of the South African country's civil war and transition Police Service is part of our Between 1995 and 2002, eight to democratic rule and relates to mandate in maintaining law and operations consisting of some 19 disarmament, arms control and order within [our emphasis] South missions have been undertaken crime prevention. Africa.” (the data below include figures on the ninth as well). In total 611 Its objectives are twofold. First, to For Mozambique, Operation weapon caches have been located prevent weaponry in these Rachel is an important means of and destroyed. All of the uncontrolled caches from falling demilitarizing its society. When the operations are carried out into the hands of United Nations Peacekeeping collaboratively with members of smugglers/traffickers who direct Mission in Mozambique the South African Police Service them to lucrative underground (UNOMOZ) was phased out of (SAPS) teaming up with police markets, mainly South African, Mozambique, it was soon realized officials nominated by the National Department of Operations of the Operation Rachel Weapons Collection Results, police of the Republic of 1995-2003 Mozambique (PRM). In a unique development with respect to Type 1995 1996 1997 1998 1999 disarmament matters Operation Handguns 8 13 79 353 453 Rachel has received support from Submachine Guns 91 68 980 735 1874 both the international donor Rifles 981 355 4345 3183 8864 community and from the private Light/Heavy MG 47 52 279 467 845 sector in South Africa. Mortars 15 44 35 21 115 Ammunition 23,153 136,639 3,000,000 155,314 3,315,106 Operation Rachel’s success is attributable, in part, to consistently Type 2000 2001 2002 2003 Total well-planned and executed Handguns 18 372 101 45 1442 operations as well as a high Submachine Guns 126 467 346 235 4922 degree of cooperation between Rifles 2205 2943 2072 1302 26250 the relevant states. Light/Heavy MG 66 148 47 1 1952 Mortars 70 32 5 0 337 Most areas or provinces of Ammunition 83,276 486,000 2,004,018 2,200,000 11,403,506 Mozambique have been covered by one or more of the various

20 B·I·C·C output and impact

operations, including: Cabo In other words, what TAE does in commercial success has been the Delgado, Gaza, Inhambane, the way of civic education is downfall of TAE’s art project, with Massingir, Maputo, Manica, mostly marketing. Successful many artists breaking away from Nampula, Niassa, Sofala, Ponto marketing, in our opinion. Public the project in order to profit from d’Ouro and Zambezia. awareness campaigns are an the moneymaking potential of auxiliary, not a principal activity at their work. The Maputo art center The types of weapons and TAE. The gender project that TAE Nucleo d’arte that used to work weapon parts and accessories plans to launch may be its first with TAE now presents its ‘art collected and destroyed have major step toward pursuing public from arms’ on an Internet site included: Anti-personnel mines, education as a main focus, rather (www.africaserver.nl/nucleo) that anti-vehicle mines, boosters, than as a means of maximizing only mentions TAE in passing. cannons, demolition weapons collection. However, one Now TAE plans to stop supplying mines/charges, detonators, rifle could imagine other public gun scrap to these artists, and grenades, hand grenades, awareness efforts. Assuming that intends to employ others to handguns, heavy machine guns, only a very small part of the produce art from guns for the initiators, fuses, launchers, light population will be prepared to benefit of the project, as was machine guns, magazines, mortar trade ordnance for bicycles and originally intended (Interviews bombs, mortars, projectiles, rifles, sewing machines, and therefore a with staff and former staff). rocket motors, rockets, small arms lot of guns and explosives will ammunition and submachine guns. escape recovery, TAE could have We have already pointed out that chosen to teach people to in our opinion the art project has Commonly found items include: minimize the risks of holding and been very important to AK47 series assault rifles, Uzi handling weapons and explosives international public relations and submachine guns, Browning, in order to minimize accidents and fund-raising for the TAE project, Makarov and Tokarev pistols, PG-7 misuse. However, it has not. Of but not so important within the rockets and RPG-7 launchers, course, TAE cannot do everything. country. In fact, the pieces of art 82mm mortars, 75mm recoilless As its resources are limited, its produced by the Nucleo artists are cannon ammunition and 122mm choice may have been a wise one. rarely, if ever, used during civic rockets. What is not wise is the unsafe and education campaigns in the insecure way in which TAE countryside. During a visit to the Noel Stott, Institute of Security handles weapons and explosives town of Mopeia (Zambezia Studies, Pretoria itself. province) the authors were able to witness the destruction of some Guns into Art previously collected weapons by a TAE field team. This was done TAE did not intend turning gun during a brief ceremony, including metal into sculptures to be a speeches by the local dignitaries commercial venture, nor was it in front of the assembled primarily motivated by the desire population. Although the TAE field for artistic innovation. Here again, team actually had some pieces of the motive was publicity and art with them, these were not on marketing, and in this sense, the display, nor was any reference art project has been successful made to the idea of turning guns within Mozambique and perhaps into art. When questioned, the even more so abroad (see box on members of the field team “Arts in the Crossfire”). Amid a lot explained that the people would of international media coverage, not understand the ideas of the the sculptures have gone on tour artist, and that displaying the in the United States, Britain, Italy pieces could even have a negative and France, and other shows are impact, as superstitious villagers to follow (Transforming Arms Into might mistake them for magic Ploughshares, 2001). charms (Interviews with team members, May 2003). TAE says this “may lead to the sale of some art pieces to support the project’s activities” (Transforming Arms Into Ploughshares, 2001), and indeed it has. In fact,

B·I·C·C 21 brief 29

Resources Available to the Project

he national project office of the provinces of Gaza, Zambezia, team in Zambezia province visited TTAE is currently located in one Inhambane and Niassa, usually by one of the authors in May 2003 of the rougher quarters of Maputo, consisting of an official TAE maintained that it was plagued by violent crime. Here representative working out of the independently funded and run by TAE plans to build a depot for provincial CCM office.11 In Sofala, the local CCM office. The same collected ordnance and a studio Cabo Delgado, Manica, Tete and allegedly applies to the smaller for hired artists turning gun scrap Nampula the project maintains no TAE operation in Niassa province. into art objects. Currently, its permanent staff of their own, but storage space consists of an IFA uses CCM offices and staff All current members of staff are truck that was donated to TAE by members as their informal men. A female CUSO volunteer a German charity three years ago as a mobile collection and destruction platform, but which broke down in January 2000, soon after its arrival in Mozambique, and has not been repaired yet.10 This vehicle is parked under a tree on the compound of the Christian Council of Mozambique (CCM) in the center of town.

The project team consists of a National Coordinator, Mr. Albino Forquilha, who is also the coordinator for the southern part of the country, where the capital Maputo is located. There are seven project officers, a driver, at least one security guard and a consultant (formerly two) from the Canadian volunteer organization CUSO. Villagers assembled to observe the public destruction of weapons in Sofala

The project office in Maputo is ‘representatives’ (Interview with who, amongst other things, responsible for the development Kayo Takenoshita, May 2003). designed a gender activity for TAE of national strategies, the main- left the project in June 2003. tenance of international contacts, Despite our best efforts, we have the training of TAE staff members not been able to fully grasp the Two of the operational officers, a and also for the weapons relationship between the TAE lieutenant trained as a military collection in the provinces of headquarters in Maputo and its engineer and a private, are Maputo and Sofala. As of June ‘satellites’ in the provinces. seconded by the Mozambican 2003, satellite ‘teams’ existed in Weapons collected in the military, and one is seconded by provinces are included in the the police. In addition to their low 10 We are told that the spare parts have collection statistics published by government wages, they receive a arrived, and the truck will soon be TAE in separate columns and in salary from TAE. A third staff operational again most cases the head office is member used to work in 11 The exception is the TAE representative providing funds for salaries and counterintelligence and was a for Inhambane, who works out of the TAE office in Maputo and de facto fulfills for the purchase of incentives, as soldier for many years before that. the role of a second weapons collection well as expertise in collection and He was trained by the South officer. destruction. However, the TAE African-Mozambican Operation

22 B·I·C·C resources

Rachel and supplied to TAE in materials and money, besides According to the 2001 figures, the 1998 by the Ministry of the Interior helping to raise funds abroad. TAE latest available to us, the operating (Interview Guerra, March 2003). also receives help from the budget of TAE is about US Yet another worked for the Association of Demobilized $304,000 (Transforming Arms Into government’s ‘political security’ Soldiers (AMODEG) and the peace Ploughshares, 2001). Of this, about agency SINASP during the last group PROPAZ, which have 10 percent is spent on preparation, years of the civil war and joined provided personnel and expertise 34 percent on implementation, 26 TAE in 2000. on weapons safety. Leaders of percent on administration, 10 both the government party percent on the CUSO consultant, 5 TAE is at pains to conceal this FRELIMO and the opposition party percent on the CCM management involvement of serving and former RENAMO have endorsed and fee, and the rest on monitoring, security service officials, because it commended the work of TAE, evaluation, equipment and believes, probably correctly, that a providing political backing. The unforeseen items (Transforming large part of the population does government ministries of Home Arms Into Ploughshares, 2001). not trust the government and will Affairs and National Defense This budget does not include be reluctant to hand over illegal provide practical support, while donations made by other ordnance if they suspect that state the ministry of Finance and organizations in cash or in kind. officials are involved. This applies Planning has exempted cargo most particularly in areas where destined for TAE from customs there is strong support for the duties. Finally, TAE receives RENAMO. When we spoke to the assistance from the Mozambican- seconded officers, we got the South Africa weapons recovery impression that their contact with and destruction project called their commanders consists mainly Operation Rachel (Transforming of sending them short reports with Arms Into Ploughshares, 2000). statistics of ordnance collected and destroyed. They seem to consider Overseas donors have been Press themselves TAE staff rather than Alternative and the Mozambique soldiers and policemen. Development Corporation Japan Committee, both from Japan, Other forms of government ‘Arche Nova’ from Germany, support include giving the project CUSO and the Canadian official approval, allowing it to International Development Agency handle illegal ordnance without (CIDA) from Canada, plus risk of prosecution, and sometimes organizations from the providing explosives for the Netherlands, South Africa, Sweden destruction of collected ordnance. and the USA (Transforming Arms All in all, the government is not Into Ploughshares, 2000). deeply or intimately involved in TAE’s work and its organization. TAE has been quite successful in TAE currently has two vehicles in attracting a significant level of Maputo, one of which used by the funding and support, both locally national coordinator, and the and overseas. In these efforts, the broken down IFA truck. art project has been very Additionally, two Land Rovers are important, as we have seen. TAE on their way from the UK. has especially benefited from Canadian support over several The Mozambican organizations years. However, it has suffered that support TAE are the CCM, and continues to suffer from gaps chaired by Bishop Dinis and shortfalls in funding which Sengulane, and Ms. Graça limit its ability to carry out its Machel’s Foundation for current plans, let alone launch the Community Development (FDC), extremely ambitious expansion which are both involved in the devised in its National Plan of running of the project. Bishop Action (Transforming Arms Into Sengulane and Ms. Machel are Ploughshares, 2001a). TAE’s patrons. Their organizations provide personnel as well as

B·I·C·C 23 brief 29

Arts in the Crossfire Humberto, a huge fellow with the only observed in Mozambique, but bulging eyes of Savimbi, telling also in my own country, in “During the four (4) years I was me how his creations are Canada. The previously mentioned with the TAE project fundamentally based on the artist, Gonçalo and myself were on (Transformação de Armas em peaceful flowering of ideas and a seven (7) City Tour of Canada Enxadas or Tools for Arms) how Gonçalo’s first weapons with the TAE artwork. Many working as a Development artwork, The traveler, was remarkable comments appeared as Adviser, hardly a week passed constructed with separate pieces we visited the twenty-two (22) without spending a few hours at each of which represented the schools and over two thousand the Nucleo de Arte, the workshop soul of those that were killed in (2000) students of all ages. A ten- where weapons are transformed war-torn years. Those comments year girl in Winnipeg asked me into works of art. I also spent the caught my attention and from why people would bother to start occasional Saturday sipping on a there on I was to discover the a war and use guns if nobody beer and exchanging views with minds of not just a group of artists liked them. I tried, but I couldn’t artists that rapidly became friends. jammed together working with answer. I recall the teenager in To say the least, the environment similar materials, but of a Saskatoon that reminded us all, a was relaxing… and inviting. Just distinguishable artistic movement group of 100 fellow students and to set the mood, the Nucleo challenging each other and myself, of the fact that weapons consists of a couple of picnic learning together in a very isolated must be readily available in tables, some banged up chairs (a environment. Canada if a teenager in a nearby few made of cut up weapons by city was able to use one the week the way), a small bar, a workshop But apart from the art, what can before to take her own life. As and an exhibition room. But, that’s these pieces of metal really mean Gonçalo did, I learned a lot about not really important. and what do they truly symbolize? my own country during our trip. I was not aware of their awesome What is important is that every power until I joined a filming The anecdotes concerning my single set of foreign or local eyes crew and Gonçalo on a trip to work at TAE, both positive and visiting the Nucleo workshop for Marracuene, a small town forty negative, abound. But too many the first time, without any (40) km from Maputo. At the time, anecdotes tarnish the message one exception I can recall, was the whole neighborhood was wants to submit. And that message immediately captivated by these celebrating a national holiday is rather simple: what is more weird, something scary but mostly linked to the lengthy war that symbolically beautiful and real just beautiful rusted weapon occurred in Mozambique. It was than turning a killing machine into pieces of artistic creativity, and when Gonçalo took his saxophone an instrument of language and even more so, by their creators. out of the car that one elderly creativity. Curiosity was the result of looking man pointed at him and muttered at these odd shapes. words in the local language. He On a personal note, I say with looked at me and said, “He sees relative certainty that my work If not during discussions on an blood and snakes (mambas)”. I with TAE was equally the most individual basis with the artists, it saw a saxophone. As a volunteer satisfying I will ever experience was by providing translations for in a weapons destruction program, and the most frustrating I will ever the international media that I was I also saw chopped up AK-47 endure. That is why I loved it. The mostly able to understand the pieces and the canon of a better part of it, and this is what depth and thoughts behind the bazooka launcher. This man saw kept me wanting more, is the fact metal shaped into a chair, the blood and snakes (mambas). The that I could on any given day, bazooka canon into a saxophone, more I traveled and met people in observe a young Mozambican the butt of an AK-47 into a lady’s the presence of the artwork, the friend pick up a piece of a cut up body, bullet shells for a crocodile’s more I was astonished by their PPX and watch it slowly become a back or a G3 mechanism for a reactions. Following Gonçalo’s leg or a face. This symbolic rose. I often smiled at the explanation of the transformation transformation of contrast and interviews—the artists continually of weapons into art, one lady extreme made it all fall into place, surprised me—all sharing the danced a while and fell to her made it all worth while. It was my same guiding principle, but knees, a joyful dance, and own proof that a change of separately having created their screamed in harmony with others attitude can beat a powerful path. own artistic methodology and that joined in to seemingly close a It was my own proof that art does philosophy for creation. As I think difficult chapter. indeed wear a bulletproof vest.” back, my memory stumbles like always, but I clearly remember These powerful reactions were not Christian Brun

24 B·I·C·C mode of operation

Mode of Operation

or most of its history, TAE’s Considering that in the TAE would seem to make Sofala the Factivities have been centralized approach it is the source that is natural choice for a TAE satellite in Maputo and have been focused rewarded, it seems likely that office, the project maintains no on the southern and central parts senior serving and demobilized permanent presence in the of Mozambique, even though officers are the main beneficiaries province but relies on the good activities in other parts of the of the bicycles, sewing machines offices of the local CCM country are growing. The national and other rewards distributed by representative in Beira to act as an coordinator personally approves TAE. Outside of Maputo, the TAE intermediary. When the CCM all decisions involving policy, ‘satellites’ play a similar role in office receives credible public relations and expenses, information gathering, which expressions of interest from down to the payment of per diem combines serving as a contact potential beneficiaries, it calls the allowances for each member of point for potential ‘beneficiaries’ headquarter in Maputo which then the operational staff embarking on with pro-actively pursuing leads in dispatches one of the collection any trip outside his base. We areas where substantial weapons officers, usually Mr. Guerra, who observed on various occasions the holdings are suspected. Outside of hails from the province. Due to paralysis that sets in when a the capital region, the local CCM the cost of traveling from Maputo decision needs to be made that offices usually serve as a contact to Beira, these trips only take requires the national coordinator’s point for people interested in place every couple of months, and approval, but he cannot be exchanging weapons (or only when the amount of reached. This problem will information leading to weapons) weapons offered is substantial. become much more serious as the for goods. When questioned how project extends to other parts of potential ‘beneficiaries’ find out Two beneficiaries agreed to be the country.12 about TAE, CCM officials pointed interviewed for this study in Beira, to media coverage and the here are their stories: Let us look at how the weapons information dissemination through activities at TAE are organized. existing CCM structures. In the Mr. Z. (name withhold on his drought-stricken areas, these request), seems to be in his 40s or Information Retrieval structures often extend to the 50s, served with RENA-MO for nine village level (Interviews with CCM years during the civil war, mostly The first stage is information officials in Beira and Quelimane, fighting in Zambezia province. retrieval. TAE’s operations officers May 2003). During his military time he was in have an extensive network of charge of the arms and friends, former colleagues, During the visit to Sofala province ammunition storage in his unit. informers, beneficiaries who are in May 2003, one of the authors Prior to demobilization, acting on interested in new exchanges and was able to observe the modus orders from RENAMO others potentially capable of operandi of TAE outside of the headquarters, his unit buried providing information that leads to capital area and to talk to two about half of its weapons before a collection and exchange mission. beneficiaries. Sofala province in reporting to the assembly areas. However, the chief information the center of Mozambique saw Now a self-employed car mechanic, officer told us that all his contacts heavy fighting during the civil war Mr. Z. lives upcountry and finds it went through serving or and continues to be a RENAMO very difficult to feed his four demobilized soldiers, either from stronghold. All people interviewed children, a fate he says he shares the government forces or from for this study agreed that with many of his former comrades- RENAMO, especially high-ranking substantial caches, mostly hidden in-arms. He heard about TAE officers whom he called ‘generals’ by RENAMO prior to through someone in the police, (Guerra Interview, March 2003). demobilization, continue to exist who told him that people handing This was confirmed by the second in the province, particularly in the in weapons to TAE would be operations officer in Maputo (Luís inaccessible hinterland. rewarded. In 2002, he first made Interview, March 2003). Furthermore, Sofala is home to contact with Mr. Guerra and Mozambique’s second largest city, arranged for the exchange of 200 12 This seems to be less of a problem with Beira, and hosts the transportation weapons for 200 zinc sheets. While the largely autonomous and corridor to Malawi and Zimbabwe, he used some of the sheets to repair independently financed TAE operation in as well as the notorious National his roof, he sold most of them for Zambezia province, but certainly applies to the other ‘satellite’ operations across Highway No. One, which used to US $6 per piece. This money he the country which operate without be infamous for armed highway shared with six other people who budgets of their own robberies. While these factors had known about the cache. Ever

B·I·C·C 25 brief 29

since this first contact, Mr. Z. has felt that the cache did not belong to TAE staff members, which talked to former comrades and has him. Mr. B. thinks that he could repeatedly visit remote locations tried to locate further weapons. lead TAE to many more caches, if where weapon caches are When he is successful, he calls Mr. Mr. Guerra could come up with the suspected. During their initial visit, Guerra and arranges for necessary incentives more quickly. the team members contact the exchanges to take place. This time He believes that many more local authorities, asking for he has assembled some 80 weapons weapons are out there, but the permission to conduct weapons from various caches and has work has become more difficult collection and explaining the TAE already transported them from the recently, as informers expect to be approach. Local authorities, countryside to the vicinity of Beira, paid in advance. particularly the local hiding them under agricultural administrators, and in some cases produce to avoid seizure at police Interviews with Mr. Guerra (May also the local churches, inform the road-blocks. He expects ‘payment’ 2003) confirm that the project population about the project. They again in the form of zinc sheets, relies on a network of informers also act as intermediaries between which he has to share with five and middlemen in Sofala province, the weapons holders and TAE, other men. who search for information on informing the project about leads. caches on their own and pool During subsequent visits, weapons The second beneficiary told a weapons from various sources for are then collected by the mobile similar story: one exchange with TAE. Very teams. These field visits usually often these informers were last about a week and can only Mr. B. was born in Sofala province RENAMO fighters during the take place if TAE has sufficient in 1956. He joined RENAMO in conflict, and many of them have resources to pay for vehicle rental, 1985 and was posted to RENAMO’s participated in more than one fuel and per diems of the team operational zone in the northern exchange, indicating that they act members, which means that very part of the province. He was in as de-facto agents of the project. often there is a time gap between charge of arms and ammunition This practice, which stands in the initial contact, the collection of for his battalion of 500 soldiers. marked contrast to the way TAE the weapons and the provision of Most of their weapons were portrays its operations in public, is the incentives. These are usually delivered by ship from South the result of specific conditions in delivered during a third visit. Africa. Prior to cantonment, his Sofala. As TAE has no permanent unit hid a substantial part of its presence in the province and Mr. Provision of Incentives weapons in the countryside. The Guerra’s visits to more remote location of these caches was only destinations are limited by the Once TAE’s information officers known to him and a few difficulty of obtaining transport, have what they consider a good comrades. After demobilization he the project relies on individuals to lead, they discuss the terms of the has received payment from the do much of the actual weapons exchange. For instance, an AK-47 government for 18 months, but he collection and also to move the Kalashnikov assault rifle in good has received nothing since. For arms to the vicinity of Beira for condition is often exchanged for a survival he farms and keeps pick-up by TAE. These individuals second hand bicycle worth around animals. He heard about TAE on are rewarded for their work and US $50. We tried to find out what the radio and went with two share the goods received with the the black market price for such an comrades to the CCM office in original ‘owners’ of the weapons. AK-47 is, but received conflicting Beira to find out more about the Sources also claim that Mr. Guerra, information. While the junior project. In 2001, he led TAE to a who plays a key role in these information officer cited 50 million cache consisting of 300 weapons, transactions and is the only person Meticais (about US $2,100) for the as well as ammunition. He to know the true identity of the received many zinc sheets in informers, receives ‘kick-backs’ 13 We have no way of verifying that 13 corruption of this sort exists in the TAE return, but declined to accept from the beneficiaries. project. However, a number of sources sewing machines, as he does not close to CCM in Maputo and Beira have know how to operate them and The modus operandi observed in made this claim, some even arguing that finds that the re-sale value of zinc Beira is different from the Mr. Guerra had already been reprimanded by TAE headquarters, but sheets is higher. He shared the approach witnessed by the authors continues this practice nevertheless. We profit from this trade with three in the Maputo area and in were surprised to note that Mr. Guerra other men. In 2002, he led TAE to Zambezia province. In Zambezia, collected an ‘information fee’ of US $25 another cache, consisting of 100 one of us was able to join a per interview with beneficiaries, arguing guns, after receiving a tip from a mobile TAE team on a field trip to that “information is not cheap” (Interview Guerra, May 2003). Such former comrade, this time he did the town of Mopeia. Mobile teams payments had not been previously not want a share of the profit as he usually consist of two or three agreed.

26 B·I·C·C mode of operation

rural areas (Interview Luís), his interviews, recipients have stated materials, including sacks of senior colleague gave us an that they would prefer to receive cement and zinc roofing estimate of about 3 million incentives in cash. However TAE previously, zinc sheets are Meticais (some US $128) has committed itself to exchange considered an acceptable reward (Interview Guerra). The Small weapons only for tools. by the project. Numerous Arms Survey (2002, p. 66) cites a interviews have confirmed that market price of US $15 for a used To find a way around this there seems to be a detailed AK-47 in Mozambique in 1999. problem imposed by its own rules, formula by which the price of a TAE has introduced quasi- weapon is estimated in zinc If weapons are as widely available monetary rewards in the form of sheets: in Mozambique as most reports zinc sheets. Zinc sheets are used ■ One operational weapon indicate, then the lowest figure is in Mozambique in construction, equals probably closest to the truth. At adhere to standard specifications ■ 12 non-operational weapons, any rate, it seems unlikely that and carry a fixed retail price (in equals anyone would consider trading a Beira) of about US $6. As TAE has 2,000-dollar gun for a 50-dollar been handing out building ■ 520 units of ammunition, bicycle a good deal. However, if equals selling a weapon illegally is risky, as the project staff told us, then people might want to trade a rifle worth between 15 and 150 dollars for a used bicycle, especially if they possess several guns.

As we noted in the previous section, the exchange of individual weapons for bicycles, sewing machines, tool kits and other goods donated by Western charities14 and shipped at considerable expense from their country of origin to Mozambique, is a small-scale activity. For the retrieval of smaller quantities of weapons, TAE maintains container depots with such goods at its headquarters in Maputo and at the Quelimane (Sofala province) satellite office. Problems arise if the quantity of weapons traded is either very high, or the recipient lives far away from the closest CCM office. Where larger quantities of arms are involved, the beneficiaries usually need to share the reward with several others. The same is true in the case of recipients from remote locations bringing weapons to CCM offices. They face the problem of transporting sewing machines or similar rewards back to their homes. During several

14 The main source of these goods are Dutch charities, however shipments have also been received from German and Japanese groups. Weapons stored in IFA truck at TAE Headquarter in Maputo

B·I·C·C 27 brief 29

■ 10 zinc sheets, equals Maputo area, the TAE staff have in near by as possible. However, ■ 1 used bicycle, equals the last few years been severely this requires explosives, which limited in their means of transport, are often not available. Therefore, ■ about US $60. with their only truck (equiped the team often resorts to with weapons destruction tools) transporting such items, like the According to interviews with Mr. stranded in the center of the grenades just mentioned, back to Guerra (May 2003), this formula is capital, while the other project Maputo. There they are placed in usually adhered to, even though in vehicle is reserved for the national the IFA truck on the CCM the case of very large caches, the coordinator. Once a vehicle is compound, along with all the number of zinc sheets per gun is available, a typical mission in the other weapons and explosives reduced. Unlike the bicycles and South would comprise the chief of currently in storage. And as the sewing machines, the zinc sheets operations, one of the military team rarely has more than one are locally procured in Beira and men, and the police officer, who is vehicle at its disposal, any items therefore do not need to be in charge of security. These three destined for storage are taken to transported from Maputo. The will go to the location, taking with Maputo in the same car used by procedure seems to be that Mr. them the goods to be exchanged the team. In the case of Guerra, after inspecting the for guns. unexploded ordnance, this is weapons, agrees on the number of extremely dangerous. sheets a beneficiary is to receive They travel with a letter from the and then asks the TAE office in TAE National Coordinator The junior information officer told Maputo to wire the necessary addressed to the military us he considered field missions a funds to procure the sheets. In commander of the region “risky job”. The first risk he theory, the beneficiary then takes concerned, announcing the discussed was corruption. If they receipt of the zinc sheets, intention of the project to collect wanted to deal in weapons concluding the transfer. However, ordnance in a period of a few illegally for personal profit, it some sources have indicated that months. However, they have no would not be very difficult for the recipients often do not take legal authorization to be in TAE’s field officers to do so. This possession of the sheets, but possession of illegal guns and is all the more tempting because rather sell them back to retailer, in ammunition. Their only protection they are not highly paid, even by effect exchanging them for cash. against prosecution is the Mozambican standards, and they For the beneficiaries this is easier confidence that the Mozambican receive no bonuses for good than having to transport the sheets government will not consider it results. However nothing we have upcountry, either for their own appropriate to prosecute them, as seen or heard suggests that they use or for resale. This introduces they are doing good work. This engage in arms-trafficking. monetary rewards through the has so far proved correct, but it is Another problem they face is the back door, including numerous a weak legal footing on which to slow and complicated paperwork opportunities for corruption, and work. imposed by CCM. “We never most people at TAE must be leave on time, thanks to the aware of this. Nevertheless, this At the location, they inspect the bureaucracy”, the information aspect of the TAE operation has to items to be handed in, which are officer said. Besides, there is a our knowledge never been not necessarily what they have lack of vehicles and means of reported to the international been led to expect. We communication, and money donors. To them TAE prefers to participated in a mission that had needed to bribe officials and portray individual gun owners been told to expect a few pistols, middlemen (Luís Interview). “To handing in their personal weapons but was instead handed a bag get results, I have to give two or in exchange for donated bicycles containing two highly explosive three million Meticais to the and sewing machines. Our point grenades designed to be launched generals I deal with,” his senior here is not that commercial by a mortar, bazooka or some colleague explained. “If I go to a exchanges are inherently bad, but such weapon. Several staff RENAMO area, I also have to that TAE’s mode of operation is members told us that the quality bribe the people guarding the less than transparent and of the ordnance received is usually weapons. All this comes out of susceptible to corruption. excellent (Luís, Guerra Interviews). my own pocket. CCM is aware of this, but won’t acknowledge it. Another matter of concern is the Storage and Destruction They like to pretend that I am lack of vehicles to transport given information because I weapons and incentives between The next step in TAE’s preferred represent the churches. But in the CCM offices and the method would be to destroy reality I am doing secret beneficiaries. Even in the greater dangerous items on site, or as intelligence work. Except that I

28 B·I·C·C mode of operation

don’t have any funds. CCM overnight in the office of the destruction of the collected demands results, but they are not CCM coordinator. While the office weapons with public speeches by prepared to pay for them” building had a private security TAE representatives and local (Guerra Interview, March 2003). guard, it seems questionable dignitaries. The Maputo office whether he could have prevented probably had planned to use the Then the junior information an organized ambush. A similar equipment installed in the IFA officer started talking about the situation exists in Quelimane, truck for similar field activities, safety risks. “When we go to where weapons are stored in the however as the vehicle was investigate an arms cache, we ask freight container in the CCM stationary for almost three years the source to draw us a map and compound. Again a private guard this has hardly happened so far. lead the way. Still, we sometimes provides a minimum level of Furthermore, SALW ammunition is stray into mined areas. Besides, security, but could be sometimes destroyed using the caches are sometimes overpowered easily by an burning kerosene, a highly protected by booby traps organized group. During longer dangerous practice in the view of unknown to any of us. At least if field missions, such as the one the authors. we had metal detectors, we might witnessed by one of the authors have some protection, but we in Mopeia, weapons are kept with don’t. At least, now we have the team, often being stored in a some protective equipment for tent. It seems remarkable that use when destroying ordnance, since 1995 there have been no like aprons, helmets and goggles. reported incidents of attempted Kayo bought these for us” (Luís theft given these storage Interview, March 2003).15 conditions, but this never-theless leaves a lot to be desired, The TAE team received two days particularly as (non-TAE) CCM of informal and basic training in employees in Beira expressed weapons safety in 2000, after their uneasiness about having to CUSO had complained about work in the same building that is unexploded ordnance stored in used as temporary storage facility the TAE office (Brun Interview, for weapons, ammunition and March 2003). However, the explosives. lieutenant responsible for weapons safety told us that since The collected weapons are he joined TAE in 2001, there had usually handed to the police for been no such training either for destruction, particularly when the team or for civilians dealing TAE has retrieved large caches. with weapons in the towns and Smaller quantities of weapons are villages. He also said that he often stored at the TAE offices sometimes lacked the materials until the police can make the required for the safe and reliable necessary specialists and destruction of ordnance, because explosives available. In the past the government was unable to years, weapons collected by TAE provide them (Mussa Interview, where also destroyed during March 2003). Operation Rachel (see box, p. 20) sorties in Mozambique. According With regard to storage and to project staff, TAE would prefer destruction of the collected to exploit the destruction of weapons, the situation is similarly weapons for educational hazardous in the other provinces, purposes, therefore the media where TAE is active. In Sofala often is invited to these events province, where TAE maintains and TAE representatives are used no permanent staff, weapons to giving interviews on those have been stored in the local occasions. During field trips in CCM office, awaiting the arrival of Zambezia, guns are often 15 This is a reference to the previous CUSO TAE staff from Maputo. In one mechanically destroyed using a volunteer, Kayo Takenoshita. CUSO acted to improve safety pro-cedures after case documented by one of the generator-powered saw during an incident in 2000, when it came to authors, 80 assault rifles in good public ceremonies, which their attention that unexploded ordnance working condition were stored combine the display and the was being kept in the TAE office.

B·I·C·C 29 brief 29

Government and Civil Society

s we have seen, the TAE storage and control over their Aproject is run entirely by the firearms (United Nations, 2002, pp. churches, with some government 7-8). Nevertheless, full government support behind the scenes. This is assistance would certainly have not only unusual, it runs against made TAE’s job easier, and maybe what is considered good practice. also safer and more secure. Nearly all experts and instruction texts on weapons collection Second, TAE has been able to maintain that only fully trained avoid being seen as an accomplice experts, acting under government of the FRELIMO government, authority, should handle, move which politically made its job and destroy the ordnance easier in the areas sympathetic to (Wilkinson and Hughes; Laurance, RENAMO, and maybe in other Godwin and Faltas, etc.). regions as well.

In the Mozambican case, the Third, by avoiding any visible government was unable or collaboration with the government, unwilling, or both, to fully assume TAE has not helped to increase this task, and to a significant public confidence in the extent relegated it to the willingness and ability of the churches.16 This, we submit, has government to maintain public had various effects. security. In the long term, this is First, TAE has not had full access likely to be seen as a problem. to the expertise, facilities and resources of the military and We believe that TAE could be police. Of course, these are not more effective in contributing to well developed in Mozambique. In public security in the country if it late 2002, at the request of the developed a more visibly co- government in Maputo, the UN operative relationship with the Department of Disarmament sent a government. This kind of mission to assess problems related relationship could operate on two to the storage and management of tracks. On the first, it would military equipment and explosives. mobilize support for attempts by This was triggered by an the police to enforce weapons explosion caused by a stroke of laws and maintain law and order. lighting at a military depot in Beira In doing so, it would also seek the in November of that year. The help of the police in moving, mission concluded that the armed destroying and storing weapons forces and police of Mozambique safely and securely. However, on are unable to ensure proper the second track, the churches stockpile management, safe would critically monitor the actions of the police and the 16 At a workshop organized by BICC and military to make sure that they TAE in Maputo on 24 June 2003, a abide by the law and protect the representative of the Ministry of the rights and liberties of the Interior said that his country’s two population. contributions to the implementation of the UN Programme of Action to Combat and Prevent the Illicit Trade in Small Arms and Light Weapons were the TAE project and Operation Rachel.

30 B·I·C·C costs and benefits

Costs and Benefits

ccording to our incomplete guns and ammunition does not A few paragraphs back, we Ainformation, the TAE project directly and visibly contribute to submitted that collecting and costs something in the range of US the development of peaceful destroying illegal ordnance is not $350,000 a year, not counting some livelihoods like farming. very meaningful on its own. TAE of the work and material provided does more than that. It engages in without payment by the people In other words, the basic reasoning civic education, though that is and organizations involved. It behind TAE’s choice to ask people mostly geared to encouraging collects something like 1,000 to hand in illegal ordnance and, in people to hand in guns and weapons, 700 pieces of a separate activity, provide them explosives. It also does a lot of unexploded ordnance and 40,000 with materials and tools that will media work, highlighting the rounds of ammunition a year. So help them build a peaceful project and the idea if in terms of collecting and existence, seems sound. When the peacebuilding in Mozambique. destroying weapons, this is rewards mostly consisted of And it says that the number of obviously not a cheap project, as farming implements, some critics guns and explosives collected is several members of staff confirmed said that this was not very less important than the impact on to us. attractive to city-dwellers (Meek, people’s mentality and the effect 1998) but now that TAE uses a on public security. But what do we If the churches were simply to buy wider range of rewards, including know about such impacts? Very illegal ordnance for cash, they bicycles, this no longer applies. little. When it comes to assessing would probably be able to get a the success of the program, there larger crop for US $350,000 dollars. Does this mean that the US is a general tendency to take the Would that be a better alternative? $350,000 allocated to TAE is number of items collected and Would it produce more benefits in money well spent? Maybe. destroyed as the most important terms of the money spent? Compared with many other peace indicator of TAE’s performance. We Probably not. and development projects, this find this regrettable. seems a worthy and successful First, collecting and destroying effort. However, some questions Perhaps the TAE project would illegal weapons is not very and doubts remain. have a greater impact if it focused meaningful unless it is part of a wider effort to improve security and maintain peace. In the case of TAE, it is an attempt to promote a culture of peace, advocate a life without guns, help ex-combatants to gain a peaceful livelihood and reduce the suspicion between former enemies. Much of this costs money, which is why a program like TAE cannot be as cheap as a straightforward gun buy-back program.

Second, giving people cash for illegal ordnance is risky. The money can easily be used for purposes that are hostile to peace, security and public order. It can even be used to finance the purchase of other guns, criminal operations or political violence. Besides, more than the provision of tools, it emphasizes the financial value of illegal ordnance. Large sums of money can have an inflationary effect. Finally, cash for TAE team member demonstrating that a pistol is in working condition

B·I·C·C 31 brief 29

more on educating people about ‘sources’ and ‘beneficiaries’ are Mozambique needs to move the dangers of firearms and men. However, women are also toward strict and effective explosives, not only to persuade affected by the violence, weapons control by the them to hand over these items, insecurity, degradation and government. but also to convince them to be poverty associated with the more careful in storing, handling proliferation and misuse of guns In response to these comments, and moving the ordnance. After and explosives. They may be TAE will tell us they can hardly be all, no one believes that TAE will affected more or less drastically expected to make additional ever be able to collect all illegal than men, but the main point here efforts, as they already find it ordnance. Much would be gained is that they are affected differently. difficult to fund their current if the people who are not ready to They have different concerns, activities. Perhaps the solution to disarm become more careful in perceptions, interests and hopes. this dilemma is to shift the the way they handle the ordnance, TAE needs to get them on board. program’s priorities from weapons and less inclined to use it. collection and destruction to Naturally, TAE should lead the If additionally, TAE could public education and cooperation way by providing a good example encourage and help the with the government. Whether for the safe and secure handling government to do a more effective TAE collects 1,000, 2,000 or 3,000 of ordnance. So far, it has failed to job of controlling the possession, weapons a year does not make a do so. movement and use of firearms and big difference in a country like explosives, that would also be Mozambique. There will always be In the same vein, TAE urgently significant. At present, it goes to plenty of arms left over. But if the needs to look at the different ways great lengths to avoid being project could help change public in which its efforts affect, and are associated with the government opinion and government policy perceived by, men and women. and its agencies, for reasons that with respect to illegal weaponry, Nearly all the policy-makers and make sense in the short term. the impact might be significant staff members, and most of the However, in the long term, and lasting. And after all, churches are better prepared for a job like changing people’s minds than for recovering and destroying military equipment.

Container used to store weapons at TAE Headquarter in Quelimane, Zambézia

32 B·I·C·C lessons learned

Lessons Learned and Replication

hen it comes to the reconciliation, and may indeed without modifying it. Modification Wquestion whether the TAE be doing so, it is also deeply will in any case necessary approach can and should be involved in the commercial because conditions vary from applied in other countries, there business of buying guns and place to place. are two opposite positions one explosives. In this business, its can adopt. Both are legitimate, use of funds and other resources Points to consider when but neither is entirely convincing is not transparent. Therefore, considering the replication of the and satisfactory in our opinion. despite its remarkable TAE approach to disarmament achievements, it is not a good include the following: If one accentuates the positive, example to follow. Looking at the one can applaud the shadowy side of TAE, one can farsightedness, courage and hardly avoid arriving at this Motivation of Gun- tenacity of the CCM in setting up conclusion. Holders and pursuing this project despite considerable difficulties. One can The authors believe there is merit The success of voluntary go on to admire the way TAE has in both views. In our opinion, weapons collection programs put the issue of illegal guns on civil society in other countries depends on various factors. The the map in Mozambique, widely will find the TAE story inspiring single most important is how promoted the idea of replacing in many ways and can learn well the program understands them by something peaceful and much from the strengths as well why people want to be armed. In useful, and actually carried out as the weaknesses of this any country that has experienced thousands of such exchanges. approach. However, we do not a civil war in recent history, Besides, one can point out that think it would be a good idea to people who are in possession of this is a unique example of civil emulate the TAE approach illegal ordnance essentially fall society taking the job of weapons reduction into its own hands, even if in reality the government provides more support to TAE than meets the eye. Surely, one might argue, this is a shining example for other poor countries with weak governments to follow. Any deficiencies in the project must, according to this line of thinking, pale in comparison with its strengths.

However, with equal justification, one can focus on the weaknesses of the TAE approach. TAE’s handling of weapons and ammunition is often extremely unsafe and insecure, it frequently operates without explicit legal authorization, it publishes misleading data, and the public picture it presents of its operations is quite different from reality. While it claims to be spreading peace and Weapons being destroyed in a public ceremony in Sofala Province

B·I·C·C 33 brief 29

into three distinct groups. In this particularly explosives around the This seems to be the case in regard, it makes no difference family home in order to be Mozambique where virtually whether they are ex-combatants successful. Offering material everybody interviewed in the or not. incentives of the kind provided course of this research agreed by TAE can also help to convince that TAE’s activities had made an The first category consists of people to surrender at least some important contribution in terms people who feel uneasy about of their personal stocks. In rural of improving public security, the political process and fear a areas, where policing is spotty although the number of weapons return to war. Especially during and a real risk of animal attacks collected is comparatively small the initial stages of a peace exists, collection programs could in relation to the size of the process, this group is likely to be specifically target heavier remaining stocks. Program sizeable. As we have seen, in weapons and explosives, or even planners need to be conscious Mozambique military units often offer to assist in the replacement that few voluntary programs will undertake deliberate measures to of military firearms with rifles succeed in making a substantial prevent their weaponry from more suitable for hunting. dent in those stocks. being seized during the peace Unfortunately, because changes process. Retaining some The third distinct group of gun- in public security (and the weaponry is considered a ‘life holders consists of people, who perception thereof) are difficult insurance policy’ in case political held onto their weapons because to measure, program officers reconciliation fails. This group of they plan to use them for often use the number of guns gun-holders can only be reached criminal acts or in order to traffic collected as the yardstick by by a voluntary disarmament them to other areas. Obviously, which to measure the success or program if political conditions are this group can not be reached by failure of a program. As we have favorable. As we have witnessed voluntary collection efforts and seen in the case of TAE, this in Mozambique, the loyalty to program planners need to be means that instead of focusing on their former military formations conscious that there will always the creation of trust and erodes over time, and concern be people unwilling to surrender promoting non-violent methods about political repercussions are their arms. of conflict resolution, the replaced by socio-economic program concentrates on worries. In this context, a well- Program Goals collecting as many weapons as targeted voluntary collection possible, maybe even inflating program offering some form of During the description of the TAE the numbers of arms recovered in material incentive can be program we noted that it aims to their desire to advertise their extremely effective in ‘mopping- improve security in Mozambique success. up’ military weapons that were and ultimately contribute to a not collected during ‘culture of peace.’ This is Government Relations peacekeeping operations. common to most post-conflict voluntary weapons collection The relationship between the The second group of gun-holders programs. The mere act of authorities and any voluntary consists of individual civilians surrendering and destroying collection program is of crucial who retain personal weapons weapons can, if well publicized, importance. While there can be acquired during the conflict in contribute enormously to a peace very good reasons for the order to defend themselves, their process by increasing trust government to leave these families and property against among the population. This is programs to representatives of criminals (and/or in a more rural particularly true when programs civil society, particularly in post- setting against wild animals). make a deliberate effort not to conflict societies where many Here the key to success is target a specific group or people may view the government convincing them that their geographical area, but encompass and its agents as representatives weapons pose a greater risk to participants from all sides and of the former enemy, the support life and limb than attacks by therefore take a non-partisan of state authorities is still criminals or wild animals. The stand. In the context of a necessary. There are three capacity of the police and other successful peace process and in components to this. security providers to provide the absence of widespread reliable services is another ordinary crime, voluntary First, the government needs to important yardstick. Voluntary disarmament can be an extremely create the legal conditions to weapons collection programs effective tool in stabilizing a post- allow any civilian program to need to highlight the risks of conflict society. operate, i.e. program staff need having military weapons and to be allowed to collect,

34 B·I·C·C lessons learned

transport, store and destroy illegal firearms without risking prosecution. This also needs to include people coming forward to surrender their weapons. As we have seen, this is a challenge in Mozambique—although TAE operates with the support of the government, gun-holders fear detection by the police and essentially rely on covert tactics to get their weapons to TAE. This issue could be addressed effectively by local amnesties during the collection periods. Second, the authorities could provide crucial assistance in providing safety and security during collection operations, i.e. policemen could secure temporary storage sites and military engineers could assist in the destruction of firearms and explosives, while civilians would supervise the process and undertake the sensitive exchanges. This cooperation has already partially implemented by TAE and seems to be very successful.

Third, the government could assist collection efforts by outlining clear and uncompromising penalties against Used typewriter donated to TAE as an exchange good holders of illicit weapons after the end of the amnesty period. might well be the only valuable accessible and large caches had International experience suggests possession of demobilized already been trafficked across the that the ‘carrot-and-stick’ soldiers. The effectiveness of South African border in the approach, which combines the offering non-cash incentives for 1990s, leaving behind stocks provision of incentives for the firearms depends to a large whose location deep in the bush surrender of illegally held extent on the existence and made their recovery ordnance during the amnesty dynamic of a local black market uneconomical, especially in view with the credible threat of for military weapons. Where such of diminishing foreign demand punishment for the illegal a market is in existence and and improved border controls. possession of ordnance after the accessible, gun-holders are much end of the amnesty period, can less likely to exchange their Whereas individual gun holders be very successful. weapons for a used bicycle, as can sometimes be convinced to long a strong demand for exchange their weapons for items Provision of Incentives firearms keeps the market price such as sewing machines, comparatively high. In bicycles and tool kits, this As mentioned before, the Mozambique the success of TAE’s approach is less effective when provision of material incentives is approach can to a large extent be one is dealing with larger caches. a key component to convince explained by the absence of a As TAE found out in Sofala people to surrender their functioning black market outside province, the people controlling weapons. This is particularly the of the Maputo area, and a caches of military ordnance, often case in impoverished post- seemingly low local demand for former officers of high rank, conflict societies where firearms firearms. In addition, easily demand payment in cash rather

B·I·C·C 35 brief 29

Used sewing machine donated to TAE as an exchange good than in kind. This is partially major burden. Besides, the because they may be more aware project staff rarely knows in of the black-market value of their advance what kinds of good will stocks, but also because they arrive and when to expect them, usually need to pay off several which makes operational people, which is easier if the planning difficult. This suggest reward is in cash. TAE has that it would make more sense addressed this problem by for a program like TAE to introducing zinc roof sheets as an procure tools and other exchange artificial currency, thereby goods locally, or in neigboring. circumventing the issue of cash rewards. Nevertheless, program planners need to take this experience into account when planning exchanges.

On a more technical note, the sourcing-in of incentives needs to discussed. Here, the approach used by TAE seems unpractical. While the idea of collecting donated second-hand sewing machines and bicycles in Europe and Japan and shipping them to Mozambique may hold appeal in solidarity circles, in practical terms it is hardly the most economic way of utilizing scarce resources. The high cost of 17 We are told that these days the shipping plus the considerable Government often waives customs duties customs and handling fees17 are a on these imports

36 B·I·C·C bibliography

Bibliography

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Collier, Paul (2001). ‘Economic Causes of Civil Conflict and Their Implications for Policy’. Turbulent Peace: The Challenges of Managing International Conflict. Crocker, Chester A. (ed.). Washington, U.S. Institute of Peace, pp. 143-162. 20p.

Crawfurd, Jacob. (2003) ‘Mozambique History Timeline’. Available via http://crawfurd.dk. (accessed September 4, 2003).

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Pieces of art made from destroyed weapons

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Rupiya, Martin. (1998). ‘War and Background Information. Peace in Mozambique’ in Maputo. Accord: An International Review of Peace Initiatives. Transforming Arms into Available via http://www.c- Ploughshares (2001). Six- r.org. (accessed September 1, Month Project Report (April 1, 2003). 2001 to September 31, 2001). Maputo. South African Press Association (2002). ‘Operation Rachel Transforming Arms into Could Be Replicated in Angola, Ploughshares (2001a). National DRC’. Available via Plan of Action 2002-2004. www.allAfrica.com. Maputo.

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Small Arms Survey. (2002). Small Wurst, Jim. (1994). ‘Mozambique Arms Survey 2002. Oxford disarms’. Bulletin of the Atomic University Press: Oxford. Scientists, Vol. 50, No.5, pp. 36-39. 4p. Smith, Christopher. (1996). ‘Light Weapons and the International World Bank. (1997). World Arms Trade’ in Small Arms Development Report 1997: The Management and Peacekeeping state in a changing world. in Southern Africa. Geneva: Oxford University Press: UNIDIR. pp.1-60. Oxford.

Transforming Arms into Ploughshares (2000).

38 B·I·C·C WORLD VISION Germany - who we are...

ORLD VISION is an charitable purposes. In 2003, we (WHO) and with the United Winternational network of carried out 173 projects in 45 Nations International Children's Christian humanitarian agencies countries. Whereas our Emergency Fund (UNICEF). working in nearly 100 countries development projects are funded Furthermore, we cooperate with spanning five continents. Our by contributions from sponsors and the World Food Program (WFP), 18.000 staff, predominantly from donors through child sponsorship, the United Nations Development the southern part of the world, our emergency relief programs are Program (UNDP), and with the work in emergency relief and long- financed mostly through United Nations High Commissioner term development projects to help government funding such as the for Refugees (UNHCR). WORLD achieve self-reliance for the German Foreign Office in Berlin VISION Germany is a member of populations we work with. All our and the European Community "Aktion Deutschland Hilft", an programs are focused especially on Humanitarian Office in Brussels. alliance of several German the needs of children. Health care, Apart from project-implementation, humanitarian agencies seeking to agricultural production, water conflict resolution and advocacy combine efforts in emergency projects, education, micro- have also become important relief. enterprise development, advocacy aspects of our work. The issues we and other programs are carried out call attention to include child by the community with the support soldiers and small arms, prevention WORLD VISION Deutschland e.V. of WORLD VISION. of child prostitution, legal rights of Am Houiller Platz 4 girls and women as well as 61381 Friedrichsdorf WORLD VISION Germany, children affected by HIV/AIDS. Tel. 06172 / 763-0 founded in 1979, is a recognised Fax. 06172 / 763-270 non-profit organisation, and the WORLD VISION International funds intrusted to us are utilized maintains official working relations E-Mail: [email protected] directly and exclusively for with the World Health Organisation www.worldvision.de

B·I·C·C 39 BICC at a Glance Research, Consultancy and Training

ICC is an independent, Conflict: BICC is broadening its Bnonprofit organization scope in the field of conflict dedicated to promoting peace and management and conflict development through the efficient prevention, including tensions and effective transformation of caused by disputes over marketable military-related structures, assets, resources and transboundary issues functions and processes. Having such as water. expanded its span of activities beyond the classical areas of These three main areas of analysis conversion that focus on the reuse are complemented by additional of military resources (such as the crosscutting aspects, for example, reallocation of military gender, pandemics, or expenditures, restructuring of the environmental protection. defense industry, closure of military bases, and demobilization), BICC is Along with conducting research, now organizing ist work around running conferences and publishing three main topics: arms, their findings, BICC’s international peacebuilding and conflict. In staff are also involved in doing this, BICC recognizes that the consultancy, providing policy narrow concept of national security, recommendations, training, and embodied above all in the armed practical project work. By making forces, has been surpassed by that information and advice available to of global security and, moreover, governments, NGOs, and other that global security cannot be public or private sector achieved without seriously reducing organizations, and especially poverty, improving health care and through exhibitions aimed at the extending good governance general public, they are working throughout the world, in short: towards raising awareness for without human security in the BICC’s key issues. broader sense. While disarmament frees up re- Arms: To this end, BICC is sources that can be employed in intensifying ist previous efforts in the fight against poverty, the fields of weaponry and conversion maximizes outcomes disarmament, not only through its through the careful management of very special work on small arms such transformation of resources. It but also by increasing its expertise is in this sense that they together in further topics of current concern contribute to increasing human such as the non-proliferation of security. weapons of mass destruction, arms embargoes and new military technologies. Published by Peacebuilding: BICC is extending © BICC, Bonn 2004 its work in the area of Bonn International Center for Conversion Director: Peter J. Croll peacebuilding. In addition to Publishing Management: Katharina Moraht & examining post-conflict Svenja Bends demobilization and reintegration of An der Elisabethkirche 25 combatants and weapon-collection D-53113 Bonn programs, the Center aims to Phone: +49-228-911960 Fax: +49-228-241215 contribute, among other things, to E-Mail: [email protected] the development of concepts of Internet: www.bicc.de security sector reform with an emphasis on civilmilitary ISSN 09479-7322 cooperation, increased civilian Layout: Brandt GmbH, Bonn control of the military, and the Printed in Germany analysis of failed states. All rights reserved