Alan Bryden, Boubacar N’Diaye and ‘Funmi Olonisakin (Eds.) Challenges of Security Sector Governance in West Africa Geneva Centre for the Democratic Control of Armed Forces (DCAF) LIT Alan Bryden, Boubacar N’Diaye and ‘Funmi Olonisakin (Eds.) Challenges of Security Sector Governance in West Africa LIT Contents Foreword ix Preface xi Map of West Africa xiii Abbreviations xv Part I: Introduction 1 Understanding the Challenges of Security Sector 3 Governance in West Africa Alan Bryden, Boubacar N’Diaye and ‘Funmi Olonisakin Part II: Case Studies 2 Benin 27 Sadikou Ayo Alao and Theodore Loko 3 Burkina Faso 45 Larba Yarga and Halidou Ouedraogo 4 Cape Verde 61 Adelino Handem 5 Côte d’Ivoire 75 Raphaël Outtara 6 The Gambia 93 Abdoulaye Saine 7 Ghana 111 Eboe Hutchful 8 Guinea 133 Boubacar N’Diaye 9 Guinea-Bissau 151 Adelino Handem 10 Liberia 169 Thomas Jaye 11 Mali 185 Nouhoum Sangaré 12 Mauritania 205 Anonymous with Boubacar N’Diaye 13 Niger 223 Boubacar Issa Abdourhamane 14 Nigeria 243 J. Kayode Fayemi and ‘Funmi Olonisakin 15 Senegal 269 Saidou Nourou Tall 16 Sierra Leone 283 Al-Hassan Kondeh 17 Togo 303 Comi M. Toulabor Part III: Conclusion 18 Addressing the Challenges of Security Sector Governance 325 in West Africa Alan Bryden, Boubacar N’Diaye and ‘Funmi Olonisakin Annex A ECOWAS Instruments i. Excerpts from the Protocol Relating to the Mechanism 345 for Conflict Prevention, Management, Resolution, Peacekeeping and Security (1999) ii. Excerpts from the Protocol on Democracy and 359 Good Governance (2001) iii. Draft Code of Conduct for Armed and Security Forces 367 in Africa (2006) iv. Excerpts from the ECOWAS Conflict Prevention 377 Framework (2008) Annex B Classification of States According to Signposts for SSR 399 List of Contributors 409 About DCAF 413 Foreword As West Africa gradually recovers from the consequences of more than a decade of civil conflicts in Liberia, Sierra Leone and Côte d’Ivoire, ECOWAS has continued to place emphasis on peace consolidation and the prevention of conflict. In this regard, we have been repositioning ourselves to manage this dispensation more effectively by improving our early warning and mediation capabilities. To this end, we are closely examining the relationships between the internal factors that provoke violence and ECOWAS response mechanisms. The ECOWAS Conflict Prevention Framework (ECPF), which was adopted in January 2008, is a systematic response to this new regional environment. The overall aim of the ECPF is to strengthen the human security architecture of West Africa. Its immediate purpose is to create space within the ECOWAS system and in Member-States for interaction and collaboration within the sub-region and with external partners to push conflict prevention and peacebuilding up the political agenda of Member- States. That way, we hope to generate multi-actor and multidimensional action to defuse or eliminate potential and real threats to human security in a predictable and institutional manner. Within this context, I find Challenges of Security Sector Governance in West Africa, edited by Alan Bryden, Boubacar N’Diaye and 'Funmi Olonisakin, timely and relevant indeed. The focus of this book on the state of security sector governance in each ECOWAS Member-State provides a useful background and analytical framework that can support the implementation of the ECPF, which has security as one of its key components. The elements of security in the ECPF take into account security sector governance in its broadest sense including, security sector reform, disarmament, demobilisation and reintegration and targeted interventions to protect the vulnerable. Like the ECPF, Challenges of Security Sector Governance in West Africa begins from the premise that guaranteeing the security of the people is a prerequisite for sustainable human development. Challenges of Security Sector Governance in West Africa provides a useful mapping of the achievements and areas of improvement in security governance processes in the sub-region, and also provides entry points for nationally driven security sector reform processes. The book's comprehensive coverage of the varied contexts within which security sector governance occurs, whether in post conflict environments or other x transitional settings, and its examination of the degree of the reforms taking place, are a very important starting point for our collective efforts to consolidate peace and strengthen conflict prevention mechanisms in West Africa. The book is a major contribution to our regional integration efforts and I strongly recommend it to both researchers and practitioners engaged in peace and security. Dr. Mohamed Ibn Chambas President ECOWAS Commission Preface This study is the first comprehensive, in-depth analysis looking at security sector governance in and across all the states of West Africa. It presents an overall picture of the dynamic, complex, and multifaceted evolution of the security sector architecture in the sub-region. The various case studies reflect the diversity, the steps forward as well as back and the frequent convulsions each of these states has – uniquely – experienced when it comes to the intersection of security sector governance with domestic political developments and emerging regional and international norms. Our aim is to help move an emerging discourse on security sector reform (SSR) and governance in Africa from the level of principles to effective implementation. The various contributors examine in practice how the security sector is governed in 16 West African states. In so doing, they assess the extent to which the principles of security sector governance that emerged over the last few years have been applied in reality in a regional setting, where historically many states and regime-centred security organizations have been unable to provide a secure environment in which development can occur. By conducting a study of each national context, deeper insight is provided on the degree and substance of reform across state institutions and in the security sector in particular. Emphasis is placed on how the security sector is configured, assessing issues of operational efficiency, civil management and oversight of this most sensitive area of public policy. The democratic governance focus is critical. In African states, as in other contexts where attempts are being made to reform or transform the security sector, it is evident that more efficient, well-managed security forces will not prove a positive force for sustainable peace and development unless embedded within a framework of democratic oversight and control. Although the focus of this volume is largely on analyses of specific national contexts, local, national and regional processes are mutually reinforcing. The volume therefore considers the overall state of security and governance in West Africa, identifying catalysts and entry points for change at all levels of governance. It then addresses the degree of capacity building that must take place in order to enhance professionalism, infrastructure and expertise. It underlines that the process of ensuring democratic control of security institutions requires a broadening of the constituency of actors in the xii process of SSR and governance, to include non-statutory security forces and a range of civil society actors. It would not have been possible to successfully complete this volume, particularly in light of the scope of the work and the challenges of drawing good analysis from some of the more obscure parts of the West African sub- region, without the invaluable support of a number of people. In particular, we would like to thank Karen Löhner, Jonas Hagmann and Fairlie Jensen for research assistance at various stages of a lengthy editing process. Jason Powers and Aviva Proville lent excellent technical and copyediting support while Sroda Bedarida-Gaveh and Alain Faupin proved adept at translation from French to English and vice versa. Adedeji Ebo, Heiner Hänggi, Robin Luckham and Robin Edward Poulton gave generously of their time and unparalleled expertise in providing incisive comments and inputs on earlier drafts of the manuscript. Veit D. Hopf of LIT Verlag again guided us through the publication process with much patience and encouragement. But our thanks go in particular to the country study contributors through whom we have learned a huge amount. It has been a privilege to work with people so committed to telling the often difficult and sensitive stories of the security sector and its governance in West Africa. The views expressed in this volume are those of the authors alone and do not in any way represent the views of the institutions or their representatives involved in this project. The Editors Geneva, June 2008 Map of West Africa Cape Verde is an island nation located approximately 600km off the coast of Senegal in the Atlantic Ocean. In geopolitical terms West Africa comprises the sixteen states pictured above that make up the westernmost region of Africa. Fifteen of these states are members of the Economic Community of West African States (ECOWAS). The exception is Mauritania which although a founding member of ECOWAS elected to withdraw from the regional body in 2000. The region is composed of francophone, anglophone and lusophone states. List of Abbreviations AFC Armed Forces Council, Ghana AFL Armed Forces of Liberia, Liberia AFRC Armed Forces Revolutionary Council, Sierra Leone ANP Assembleia Nacional Popular, People’s National Assembly, Guinea-Bissau APC All People’s Congress, Sierra