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Legitimacy and Peace Processes from Coercion to Consent ISSUE 25 Accord 25 ISSUE an International Review of Peace Initiatives

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Accord Logo using multiply on 25 layers 2014 Accord ISSUE Logo drawn as Editors seperate elements with overlaps an international review of peace initiatives coloured seperately Alexander Ramsbotham and Achim Wennmann 2014 Legitimacy and peace processes From coercion to consent Legitimacy and peace processes From coercion to consent ISSUE 25 25 Accord ISSUE an international review of peace initiatives Legitimacy and peace processes From coercion to consent April 2014 // Editors Alexander Ramsbotham and Achim Wennmann Accord // ISSUE 25 // www.c-r.org Published by Conciliation Resources, to inform and strengthen peace processes worldwide by documenting and analysing the lessons of peacebuilding Published by Acknowledgements Conciliation Resources Accord’s strength and value relies on the Burghley Yard, 106 Burghley Road expertise, experience and perspectives of the London, NW5 1AL range people who contribute to Accord projects www.c-r.org in a variety of ways. We would like to give special thanks to: Aden Telephone +44 (0)207 359 7728 Abdi, Ali Chahine, Catherine Barnes, Ciaran Fax +44 (0)207 359 4081 O’Toole, Ed Garcia, Elizabeth Picard, Judith Email [email protected] Large, Lisa Schirch, Nerea Bilbatua and Teresa Whitfield. UK charity registration number 1055436 In addition to all our authors, we also extend grateful thanks to the many other expert Editors contributors to this Accord publication: Alexander Ramsbotham and Achim Wennmann Abdulrazag Elaradi, Andrew Tomlinson, Antonia Executive Director Does, Asanga Welikala, Babu Rahman, Catherine Andy Carl Woollard, Catriona Vine, Cecile Mazzacurati, Claire Sneed, Elizabeth Drew, Emma Leslie, Director, Policy, Practice and Communications Freddie Carver, Katia Papagianni, Jeremy Lester, David Newton Joanna Harvey, Joost van der Zwan, Lukas Accord Series Editor Probst Lopez, Margo Picken, Marie-Joelle Zahar, Alexander Ramsbotham Mark Bradbury, Mette Nielsen, Mohammed Seid, Nicolas Tillon, Peter Salisbury, Peter Head of Policy and Learning Wallensteen, Sally Healy, Sara Pantuliano, Simon Teresa Dumasy Arthy, Sue Unsworth, Sumit Bisarya, Sverre Peacebuilding Analyst and Editor Johan Kvale, Tarig Hilal, Tim Othieno, Vanessa Zahbia Yousuf Wyeth and Yannick Hingorani. Policy Analyst Opinions expressed by authors are their own. Sanne Tielemans Conciliation Resources is very grateful to the Programme Officer Norwegian Ministry of Foreign Affairs for its Felix Colchester financial support for this Accord project and publication. The contents of this publication are Communications Manager the sole responsibility of Conciliation Resources Sarah Bradford and do not necessarily reflect the position of the Media and Communications Officer Norwegian Ministry of Foreign Affairs. Tamanna Kalhar Copyedited by Aaron Griffiths www.aaron-editorial.com Designed and typeset by Soapbox www.soapbox.co.uk Conciliation Resources would also like to © Conciliation Resources 2014 thank the UK Department for International Permission is granted for reproduction and Development, the Swiss Federal Department use of the materials for educational purposes. of Foreign Affairs and the Swedish International Please acknowledge your source when using the Development Cooperation Agency for their materials and notify Conciliation Resources. support. Cover photo: Demonstrators carrying the national flag of Nepal participate in a mass gathering demanding peace, social harmony and the punctual implementation of a new constitution, in Kathmandu, 23 May 2012. © Reuters/Navesh Chitrakar ISSN 1365–0742 ISBN 978-1-905805-20-4 Contents Acronyms 4 Foreword 5 Introduction 6 Section 1: Legitimacy and peace processes 12 What is legitimacy and why does it matter for peace? 13 Violence and peacemaking in the political marketplace 17 Legitimacy and peace processes: International norms and local realities 21 Inclusivity, women and Colombia 26 Inclusivity, women and Mindanao 28 Inclusivity and civil society 30 Elections in the wake of war 31 Section 2: National Dialogue 35 National dialogue and legitimate change 36 Basque Country 40 Burma 44 Yemen 50 Section 3: Constitutional review 55 Constitutional review in peace processes 56 Somalia 60 Fiji 65 Nepal 69 Section 4: Local governance 73 Local governance and peacebuilding 74 Syria 78 Afghanistan 82 Brazil 86 Section 5: Transformation of coercive actors 90 Transformation of coercive actors 91 El Salvador 95 Lebanon 100 Indonesia 105 Measuring peacebuilding performance 109 Somaliland 113 Conclusion 115 Key texts, Further reading, Key websites 121 The Accord series 128 Legitimacy and peace processes: from coercion to consent // 3 Acronyms ABRI – Republic of Indonesia Armed Forces JMP – Joint Meeting Parties [Yemen] APRP – Afghanistan Peace and Reintegration Programme LAF – Lebanese Armed Forces ARMM – Autonomous Region in Muslim Mindanao LCC – Local coordination committee [Syria] ARS – Alliance for the Re-Liberation of Somalia MDGs – Millennium Development Goals AUPD – Africa Union High-Level Panel for Darfur MILF – Moro Islamic Liberation Front CA – Constituent Assembly [Nepal] MNLF – Moro National Liberation Front CDC – Community Development Council [Afghanistan] MPC – Myanmar Peace Centre CoE – Committee of Experts [Somalia] NC – Nepali Congress CPA – Comprehensive Peace Agreement [Sudan] NCA – National Constituent Assembly [Somalia] CPA – Comprehensive Peace Accord [Nepal] NDC – National Dialogue Conference [Yemen] CPN-M – Communist Party of Nepal (Maoist) NGO – Non-governmental organisation CPN-UML – Communist Party of Nepal (Unified Marxist-Leninist) NLD – National League for Democracy [Burma] CPP-NDF – Communist Party of the Philippines-National Democratic NSP – National Solidarity Program [Afghanistan] Front NUP – National Unity Party CSO – Civil society organisation OAS – Organisation of American States CTC – Technical Coordinating Committee for the Reduction of Crime OPAPP – Office of the Presidential Adviser on the Peace Process and Violence in El Salvador [Philippines] DHS – Demographic and Health Survey PDRY – People’s Democratic Republic of Yemen DRC – Democratic Republic of the Congo POLRI – Indonesian National Police ETA – Euskadi Ta Askatasuna PSGs – Peacebuilding and Statebuilding Goals FAB – Framework Agreement on the Bangsamoro TC – Transition Commission [Philippines] FARC – Fuerzas Armadas Revolucionarias de Colombia TFC – Transitional Federal Charter [TFC] FSA – Free Syrian Army TFG – Transitional Federal Government [Somalia] FWRM – Fiji Women’s Rights Movement TNI – Indonesian National Defence Forces GAM – Free Aceh Movement UPC – Union Peacemaking Committee [Burma] GCC – Gulf Cooperation Council UCDP – Uppsala Conflict Data Program HPC – High Peace Council [Afghanistan] USDP – Union Solidarity and Development Party [Burma] ICRC – International Committee of the Red Cross UNAMID – African Union–United Nations Mission in Darfur ICU – Islamic Courts Union [Somalia] UNSCR – United Nations Security Council Resolution IDPS – International Dialogue on Peacebuilding and Statebuilding UNSRSG – UN Special Representative of the Secretary-General IFCC – Independent Federal Constitution Commission [Somalia] WEACT 1325 – Women Engaged in Action on 1325 IRGC – Islamic Revolutionary Guard Corps [Iran] WGEC – Working Group for Ethnic Coordination [Burma] ISAF – International Security Assistance Force [Afghanistan] YAR – Yemen Arab Republic ISIL – Islamic State in Iraq and the Levant 4 // Accord // ISSUE 25 Foreword 2014 is a year of milestones for Conciliation Resources. As my colleague Laurence Broers once said about us, Twenty years ago we set out to join the then small we are an organisation “led by enquiry”. Our approach community of organisations offering international support in the Accord series is not just to document and publish, to people working on the frontlines for the transformation but to listen and ask. This is has been at the heart of our of armed conflict. I am very proud to see how far we have methodology for Joint Analysis Workshops – key activities come and what our partners and staff have achieved and in Accord and other Conciliation Resources projects. The the creative and respected work we continue to do. idea is simple: bring together around one table people who are wrestling with real and immediate issues in their This is also the 25th edition in our Accord series. I can own conflict context, people who have met and overcome remember in the mid-1990s when we first set out to publish obstacles, and people who bring historical and theoretical an online series on how violent conflicts are brought to an perspectives and a talent for new thinking. end and the initiatives people have taken to “make peace” – we faced a great deal of scepticism. The web was still quite We are in an interesting and significant moment for the new and we were advised that an electronic publication field of peacebuilding where we are seeing really innovative freely available was a daft business model. At the time there efforts to find “new ways to end old wars”. Conciliation was very little material available for those who wanted to Resources has had the privilege to play supporting know how others did their peacebuilding – which was not roles in a number of processes in recent years, from the yet synonymous with the multifaceted work of our field. constitution-making process in Fiji to the Social Forum in Yet we knew then what we still know now – that there is an the Basque country, or the peace processes in Colombia enormous need and appetite to learn from the experiences and the Philippines.
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