InterAfrica Group

focuson the European Union and peace-building efforts in the Horn of DECEMBER 2004

Strengthening peace initiatives in the

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OF FOCUS, the newsletter of the joint project ERITREA B n l e u d e f A o N lf i u l G of Africa Peace Forum (APFO), InterAfrica e DJIBOUTI

W Group (IAG) and Saferworld in the Horn of hi t e ETHIOPIA INDIAN

N i l OCEAN Africa. This issue has been produced in . e

UGANDA AFRI CA KENYA Lake 8 Victoria CONTENTS The efforts led by the Intergovernmental Forum, the Center for Conflict Resolution The Somali peace talks: 2 Authority on Development to restore peace and Saferworld have been working on a challenges and in Somalia/land have progressed over the project promoting conflict sensitivity opportunities past month with the constitution of a new among development practitioners in the Somali transitional parliament and the Horn of Africa to ensure that they Creating a non-state actors’ 3 forum in Somalia election of a transitional president. contribute to peace. This edition presents Although this provides new hope for peace the new phase of the project aimed at the Conflict-sensitive approaches 4 and stability in the country, the transitional practical implementation of conflict to development in the Horn authorities face many challenges after sensitivity. For instance, Kenyan civil of Africa refused to recognise its servants working in conflict-prone districts Update from the EU 6 authority and the precarious security in the Rift Valley and North East Provinces Understanding pastoral 7 situation in Somalia. of Kenya have recently been trained by the conflicts in Ethiopia This edition of Focus features an article joint project to ensure that their interven- Strengthening dialogue 7 with Ambassador Kiplagat, Kenya’s special tions do not exacerbate local conflicts. between civil society, envoy to the Somali peace talks, in which he In Ethiopia, Africa Peace Forum, the Ethiopian Government presents the challenges to peace as well as InterAfrica Group and Saferworld have and the EU the opportunities for reconciliation. The supported civil society initiatives to enhance latest developments also offer a timely dialogue with the EU and the government. Enhancing the role of 7 opportunity to promote the role of Somali The extension of the membership of the Sudanese civil society in the civil society in establishing a sustainable Cotonou task force to a broader range of peace process peace. This is the objective of Saferworld’s NSAs will strengthen its engagement with Publications and contacts 8 new project in Somalia/land, which the EC Delegation and the government. supports the creation of a non-state actors’ The research carried out by Ethiopian civil (NSA) forum for dialogue between society organisations on pastoral conflicts Somalia’s NSAs, local authorities, regional and traditional conflict resolution Focus was compiled and edited by organisations and the European Union mechanisms in Ethiopia is also a welcome Marie Duboc, Hesta Groenewald and Alex (EU) on issues relating to development, development. These reports provide a Nyago with assistance from Aisha Ahmad. peace and security, within the framework useful opportunity to understand the causes Focus has been funded by the Ministry of of the Cotonou Agreement. of pastoral conflicts in Ethiopia and inform Foreign Affairs, Netherlands; the Swedish Initiatives ensuring that development the government, civil society organisations International Development Agency (SIDA); and the Civil Society Challenge Fund of the programmes take into account the impact and international agencies, including the Department for International Development they have on conflict dynamics are much EU, on their role to address such conflicts. (DFID), UK. needed in the Horn of Africa. Africa Peace The Somali peace talks: challenges and opportunities

Aisha Ahmad, Researcher, Africa Peace Forum

SINCE THE COLLAPSE OF THE GOVERNMENT IN 1991, Somalia has experienced The transitional authority is supposed to ongoing civil war, political anarchy, and subsequent humanitarian disaster. For over 13 years govern for a five-year term, while prepara- tions are made for free and fair elections. Somalia has operated without an effective government, while an evolving culture of ‘warlordism’ How realistic, given Somalia’s violent and militia rule, based on clan and sub-clan affiliations, has become entrenched. The immense history, is it to assume that five years is human suffering caused by ongoing factional fighting has been exacerbated by the recent drought sufficient to move the country towards democratic self-governance? in East Africa, leaving hundreds of thousands of Somalis in desperate need of food aid, and without It is more than sufficient. I wish it were even a proper government to provide them with vital assistance. shorter: two years, three years. The best way to consolidate the government is through free and fair elections. Elections will give Ambassador Bethuel Kiplagat, Special important role to play in the new govern- the government legitimacy, not like the Envoy and Chair of the Somalia Peace ment. The assumption is therefore that you transitional authority, which is handpicked. Process, has made significant progress in cannot undermine your own government But countrywide elections will give the bringing clan and sub-clan factions to the with your militias. people of Somalia a government by the bargaining table. Members of parliament people for the people, which is representa- have recently elected Abdullahi Yusef tive of their interests. The assumption is therefore that Ahmed as the new President of Somalia, a How can the countryside be secured to position which was contested by leaders of “ you cannot undermine your own guarantee that elections can be conducted numerous competing factions. Though government with your militias. fairly? marred by recent violence in Kismayo, the I think the countryside is already secure. But election could indicate Somalia’s entry into ” we must use every resource we have at our a new period of post-conflict reconciliation The process of selection of members of disposal to ensure security for the elections. allowing the country to move into the much parliament was done with the support and The towns, in particular Mogadishu, will be needed phase of disarmament, demobilisa- full participation of the clans and sub-clan difficult to secure. But the countryside, that tion, and reintegration. The newly formed traditional leaders. All these people have a will be easy. Somali transitional authority, which is to role to play in the recruitment and control rule for a five-year period while the country of militias. Another important category of Some of General Morgan’s rivals have prepares for democracy, is the first govern- stakeholders is the business community. We challenged whether Morgan should be ment that Somalia has had in over a decade. have held a series of meetings with members allowed to participate in the parliament at Kiplagat has managed to include all parties of the business community in Nairobi and all, and others have referred to his recent in the peace talks except for Somaliland, they have committed themselves to the military activities as the ‘kicks of a dying which has refused participation in the new peace process. Businessmen have also had horse’. Is General Morgan’s co-operation government. an important role to play in the recruitment and participation in the parliament and maintenance of the militias. They will Ambassador Kiplagat met with Africa essential to the success of the peace talks therefore be prepared to assist with the in the long run? Peace Forum before the election to discuss demobilisation and reintegration of the evolution of the peace process, the militias. Not really, I wouldn’t give him so much challenges to peace, and the opportunities Finally, the members of the Intergovern- weight – or any other militias. The process for reconciliation, which could shape the mental Authority on Development (IGAD) has now reached a state in which every future of Somalia’s political landscape. play an important role in the stability of member of a militia force can be excluded. They realise now that they can be excluded After 10 October, Somalia is expected to Somalia because of their own interests related to security. The Somalia peace and would rather participate than be have fully formed its first government, excluded. They understand that it is better albeit transitional, in 13 years. How process is led by IGAD, and the ownership is very much in the hands of the governments to be a party to the peace process than to be effective will the new transitional left out of it. Morgan, if he continues engag- authority be in controlling the countryside? of the region. They have an interest in ensuring that the government that they have ing in violent activities, may be an irritant, On 10 October members of parliament will been involved in establishing will be stable but he certainly does not have the capacity elect the new president of the transitional and will be in control of the whole country. to undermine the process. authority. The new transitional government How will you implement a disarmament, has been installed and the members have The funds from the international been sworn in. One can only envision the demobilisation, and reintegration future, and whether or not the new govern- initiative after the presidential election? “donor community are not sufficient ment will be able to control the countryside. First, we will ask each member of parlia- to assist the process. There are a number or key points to ment to sign a ceasefire and security agree- ” consider. ment. And if they have a militia force, they First, the parliament consists of all the must disband that force. Of course, we will Has international donor funding been major clans and sub-clans, which means integrate former militias into a legitimate sufficient in supporting the peace process that each area of Somalia is represented. All police force and a national army. There is a and the democratic reform? the warlords are being involved in the peace need for international funding to support The funds from the international donor process and, except for one, they are all this initiative, so that there can be compen- community are not sufficient to assist the members of the cabinet, and will have an sation for those that are demobilised. process. There are a lot of bills and a lot of

2 FOCUS · DECEMBER 2004 debt. The Parliament has not been paid. What to do with the past is something that allow the country to heal. We are sure of The Somali people are tired. The reason for the Somali people have to deal with them- that and we want that. [the deficiency in donor support] is that selves. Six commissions have been devel- there is scepticism among the donor oped, including one on peace and But peace-building requires countries. Now people are waking up to reconciliation. Reconciliation is important the process, and starting to see it as viable. between the victims and the perpetrators of “that people are allowed to speak. violence. Will there be a truth and reconcili- Having brokered a ceasefire between rival People must be given the warlords that grants them legitimate ation committee? Who knows? But peace- political status, how can the new building requires that people are allowed to opportunity to tell their stories. transitional authority reconcile with speak. People must be given the opportuni- ” Somalis who have been victimised by ty to tell their stories. Peace-building must warlord violence? allow for a reconciliation process in order to

Creating a non-state actors’ forum in Somalia

Faisa Loyaan, Project Co-ordinator for Somalia/land, Saferworld

SAFERWORLD HAS LAUNCHED A NEW PROJECT in Somalia/land to support the creation The purpose of the forum project is to of a non-state actors’ (NSA) forum, and to build the forum’s capacity to engage the European enable NSAs, EC and local authorities in Somalia to initiate and support local aware- Commission (EC) in formulating its development assistance strategy in a conflict-sensitive way. ness-raising, capacity-building and policy The overall aim of the project is to create mechanisms and structures for dialogue between dialogue processes, thus enabling NSAs to Somalia’s NSAs, local authorities, regional organisations and the European Union (EU) on issues be more involved in promoting peace and development issues within the Cotonou relating to development, peace and security, within the framework of the Cotonou Agreement. Agreement. Saferworld will undertake this work in collaboration with the War-torn Societies Project (WSP), The project will be aimed in particular at and its partners the Centre for Research and Dialogue, the Academy for Peace and Development utilising and building the existing capacities and the Puntland Development Research Centre. of these organisations to create an institu- tional environment that promotes peace, equality and co-operation. Also as part of this project, a training The Cotonou Agreement contains specific Cotonou Agreement and its implications workshop on implementing conflict- provisions to engage civil society and makes for Somali civil society as well as to initiate a sensitive approaches to development and explicit reference to conflict prevention. process of dialogue within the framework of humanitarian assistance will be organised. The challenge for the EU and civil society is the EC’s Strategy for the Implementation of The training will draw on Saferworld’s work to turn these principles into concrete action. Special Assistance to Somalia (2002–07). on conflict sensitivity already underway in Saferworld has substantive input into EU One of the outcomes of the workshop was the Horn Africa region, in partnership with policy, and has been seeking to provide a that all participants signed a declaration APFO and the Center for Conflict channel to enable views from the region to (the Hargeisa Declaration) for the develop- Resolution (CECORE), and will include a be conveyed. Throughout the year ment of a broad-based Somali Cotonou component on conflict analysis, which will Saferworld and local partners Africa Peace working group. allow for discussion of the causes and Forum (APFO) and InterAfrica Group aggravating factors of conflict in Somalia. (IAG) have organised a series of seminars This will be informed by the Conflict The purpose of the forum and consultations in the Horn of Africa to Analysis Framework currently being bring together the EU, civil society and “project is to enable NSAs, EC and completed by the World Bank. The project governments to discuss how EU policies will also include an awareness-raising local authorities in Somalia to could be targeted at conflict prevention. workshop on the harmful effects of the In April 2002, APFO, IAG and initiate and support local aware- proliferation and misuse of small arms and Saferworld, in collaboration with the EC light weapons. The majority of the training ness-raising, capacity-building Somalia Unit, organised a workshop in workshops and meetings will be targeted at Hargeisa, Somaliland. Thirty participants and policy dialogue processes, Somali civil society and local authorities, from all over Somalia/land attended the but separate workshops will also be thus enabling NSAs to be more workshop. Participants included NGO arranged with international donors and umbrella groups, representatives of the involved in promoting peace and NGOs operating in Somalia/land. private sector, research institutes and the development issues within the media. The aim was to build awareness and disseminate information about the Cotonou Agreement.”

DECEMBER 2004 · FOCUS 3 Conflict-sensitive approaches to development in the Horn of Africa

Hesta Groenewald, Project Co-ordinator, Saferworld

DEVELOPMENT AND HUMANITARIAN ASSISTANCE can contribute to the eruption of violent conflict by impacting on the causes and the aggravating factors of conflict. Yet many governmental and non-governmental agencies working in these fields have not yet been able to build an awareness of conflict dynamics into their work. Some international donor and civil society institutions have developed tools or methodologies for conducting conflict assessments, such as the World Bank’s Conflict Analysis Framework, the UK Department for International Development’s Strategic Conflict Assessment, World Vision’s methodology on ‘Making Sense of Turbulent Contexts’, and the set of tools and strategies for conflict analysis and transformation originally introduced by Responding to Conflict and their partners. Experience has shown, however, that in many cases these tools are only used by a part of the organisation and are not systematically implemented throughout the development agenda.

Although initial work on conflict sensitivity of the profile of the country/district where a way that is more sensitive to the context. has focused on development and humani- the intervention will take place, including However, the implementation of the tarian assistance, peace-building organisa- a broad social, political and economic programme or project also needs to be con- tions equally need to apply conflict overview and the emerging issues within ducted with attention to conflict dynamics sensitivity in order to ensure that they each of these categories. This will provide and realities, both by referring back to and systematically monitor the impact of their good background information, which will updating the conflict analysis, and by using work, and readjust it in order to enhance assist in clarifying where there are potential implementation processes that are conflict- peace. or existing conflicts relating to each sensitive and participatory. At the same Following on the production of the category. Moreover, the causes of existing time, it is important to develop indicators resource pack on Conflict-sensitive or past conflicts need to be identified. These for measuring the changes in the context approaches to development, humanitarian could be structural causes (eg illegitimate and monitoring the impact that the pro- assistance and , Africa Peace government, unequal access to economic gramme is having on the conflict situation. Forum (APFO), the Center for Conflict opportunities), proximate causes (eg the If this is done successfully, the programme Resolution (CECORE) and Saferworld are proliferation of small arms that cause can be monitored and evaluated in a launching a new phase of work aimed at the existing conflicts to escalate) or triggers conflict-sensitive way. practical implementation of conflict (eg the assassination of a leader, elections). The process of implementing conflict sensitivity in Horn countries. Furthermore, it is important to identify the sensitivity can be difficult for organisations To be conflict-sensitive is to: key actors that are in a position to either because it requires more time in planning, aggravate or mitigate the existing or implementing and evaluating projects, as r Understand the context in which you potential conflicts and also to understand well as additional skills that an organisation operate what their motivations, needs and agendas may not have. Some strategies exist for r Understand the linkages between your are. Through the process of analysing such solving some of these obstacles. For intervention and this context information, it should also become clear instance, several agencies can conduct a r Act upon this understanding in order to what the dynamics and interactions are conflict analysis together, thereby pooling avoid the negative and maximise the between the profile, actors and causes of their resources and designing more positive impact of your work conflict. For instance, an increase in the complementary programmes. availability of small arms may not in itself The thinking to date on conflict sensitiv- cause conflict, but when combined with ity has mainly focused on the programme The first step of conflict ongoing tensions over resource competition and project level, whether on a national or “sensitivity is to undertake some between pastoralist groups, arms availability more local (eg district or town) level. may facilitate the outbreak of violent However, in countries like , for form of conflict analysis, in order conflict. example, donors are making use of a variety to obtain a thorough understanding When conducting a conflict analysis, it of development assistance instruments, is important to remember that conflict including budget support and sectoral of the context. situations are fluid and change constantly, assistance. To date, very little experience ” and also to try and include local exists on how these kinds of assistance can The first step of conflict sensitivity is to perspectives as much as possible. Therefore, be undertaken in a conflict-sensitive way, undertake some form of conflict analysis, in while information will need to be updated and the APFO, CECORE, Saferworld joint order to obtain a thorough understanding regularly and will never be perfect, conflict project aims to start exploring some of these of the context. This research can take analyses can still greatly contribute to more issues. different forms, depending on the size and conflict-sensitive programmes. The partners of the joint project will be resources of the organisation. Ideally, Based on the conflict analysis, a working with donor agencies, national conflict analysis should include an overview programme or project can be designed in governments and civil society in the Horn,

4 FOCUS · DECEMBER 2004 in order to raise awareness of the impor- peace-building projects. There was a general of training, as neither District Officers nor tance of conflict sensitivity, as well as offer realisation that conflict sensitivity was not District Commissioners receive any kind of support in developing conflict-sensitive just another emerging theoretical concept training relating to conflict management, approaches in their own work. This support but a challenging paradigm shift that needs conflict resolution or peace-building, yet will include targeted trainings on conflict to be incorporated into development work they are responsible for solving all the crises sensitivity. as a whole. that occur in their areas. All the participants Later on in the evening, the official expressed a strong interest in expanding launch of the resource pack was held. This these trainings to their colleagues and in The EU is one of the most event was presided over by the Assistant some form of follow-up. “important donors in the region Minister in charge of Provincial Adminis- and EU assistance therefore needs tration in the Office of the President, Hon Stephen Tarus. Also in attendance was Mr Conflict-sensitive to be conflict-sensitive in order to Maabub Maalim (then Director of the Arid development in Uganda contribute to long-term stability Lands Resource Management Program and Vickie Namugga, Assistant Programme now a Permanent Secretary in the Office of Manager, CECORE and development. the President), Hon Abdulrahman Kinana, ” Speaker of the East Africa Legislative On 6 August 2004, the Center for Conflict In addition, the work on conflict sensitiv- Assembly and Ambassador Bethuel Resolution organised in Kampala a launch ity will be complementary to the existing Kiplagat, APFO’s director. meeting to present the resource pack on joint work on the EU’s capacity to enhance conflict sensitivity to about 80 participants, conflict prevention in Horn countries. including academics, human rights activists, The EU is one of the most important donors Training the local government diplomats, representatives from the in the region and EU assistance therefore in Kenya on conflict-sensitive Government of Uganda, international needs to be conflict-sensitive in order to approaches donors, the Head of the EC Delegation in contribute to long-term stability and Uganda, as well as Ugandan and inter- Hesta Groenewald, Project Co-ordinator, development. Equally, Horn governments national non-governmental organisations. Saferworld and civil society have a crucial role to play The meeting was chaired by Hon Mike in contributing to peace in their own In October and November 2004, Mukula, Minister of State for Health. He countries. Saferworld, together with project partners stressed that the resource pack was a Africa Peace Forum and Center for Conflict practical tool that needed to be used in the Note: All the information above is available in context of post-conflict management of more details in the resource pack, which can be Resolution, conducted two two-day train- Northern Uganda. found on www.conflictsensitivity.org. ings on conflict-sensitive development for District Officers in Eldoret and Garissa, Mr Gerald Duda, GTZ’s Regional Kenya. These workshops form part of a Technical Advisor for Conflict manage- series of work with the National Steering ment, noted that for a long time develop- Promoting conflict sensitivity Committee on Peacebuilding and Conflict ment actors had not been considering peace in Kenya Management, situated within the Office of and conflict as issues, which need to be the President of Kenya. This work focuses addressed in development planning. He was Alex Nyago, Project Officer, pleased to see that more efforts were being Africa Peace Forum on strengthening the capacity of local government officials in Kenya to ensure undertaken by the development community to design development interventions in a The resource pack on Conflict-sensitive that their work is conflict-sensitive, as many way that they actively promote peace and approaches to development, humanitarian localised conflicts still occur in several address conflicts. assistance and peacebuilding was launched districts. The participants were selected During the plenary discussion, the in Kenya on 17 June 2004. from conflict-prone districts in the Rift audience also recommended that more case As part of the launch activities, Africa Valley and Northeastern areas of Kenya and studies drawing from African examples Peace Forum organised an afternoon also offered a rare opportunity for District should be used in the resource pack in order briefing for civil society organisations, Officers to share their experiences. The to suit the African context. government representatives and donors training was also attended by some District Several participants expressed their who had participated in the development of Commissioners (who manage the District intention to use the resouce pack in their the resource pack either through interviews, Officers) as well as representatives from the work. consultations or workshops. Also present Office of the President, indicating the strong during the afternoon briefing was Dr support for this work from within the Connie Freeman, the Regional Director of higher echelons of the Kenyan government. International Development Research At both workshops participants spent some Centre in Nairobi. time discussing the practical challenges to During the meeting participants received making their work more conflict-sensitive a detailed introduction to the resource pack, and exploring some possible ways of over- especially on its practical applicability to coming these. Feedback from the partici- development, humanitarian assistance and pants clearly indicated the need for this kind

DECEMBER 2004 · FOCUS 5 Update from the EU

Marie Duboc, Project Officer, Saferworld

The new European Commission persuade member states to contribute the funding to support the African Union 0.7 percent of their gross national income (AU) in developing a comprehensive peace On 1 November 2004, the newly appointed (GNI) for official development assistance. and security policy, and planning capability European Commission (EC) took up its The enlargement of the EU to 25 member within the AU Peace and Security functions for a five-year mandate under the states on 1 May 2004 will impact on its Directorate. The funding is also to support leadership of José Manuel Barroso, former foreign policy, including development aid. the AU and sub-regional potential for the Portuguese Prime Minister. The EC is the A key challenge is for new members to functional preparation of peacekeeping body with the authority to propose become donors instead of recipients of aid operations, and to enhance the capacity of legislation and implement policies. It is as their levels of overseas development aid the AU and sub-regional organisations in made up of 25 Commissioners, an increase are currently very low. By joining the EU, the financial and administrative manage- of five from the 20 Commissioners that took the ten new member states have committed ment of peacekeeping operations. office in 1999 from the 15 member states at to accept the development commitments Ammunition, arms and specific military that time. One of the main changes in the previously signed by the ten existing equipment and military training are exclud- Commission is the existence of one member states, including the Cotonou ed from receiving any financial support. Commissioner for each member state. Agreement. Therefore, the total amount of Submission of financial requests can be Since the initial nominations of the aid allocated to ACP countries should initiated by the AU, or by a sub-regional Commissioners are proposed by the proportionally increase with the arrival of organisation via the AU, must be consistent political leaders of member states, the new members that will be contributing to with United Nations principles and objec- Commission that took office in November EU development co-operation as well as tives, and requires political approval by the is drawn predominantly from political bilateral assistance. Yet, concerns are AU and endorsement by the EU. parties from the centre and centre-right. expressed that the cost of enlargement for The three key Commissioners whose the EU budget could reduce the funds responsibilities relate to foreign relations are: available for development assistance. For Action Plan for Civilian r Benita Ferrero-Waldner as instance, pressures for a greater allocation Aspects of European Security Commissioner for External Relations and of funds to regional aid within the enlarged and Defence Policy European Neighbourhood Policy. Benita EU will increase. Ferrero-Waldner succeeded Chris Patten Similar concerns are raised in relation to In June 2004 the European Council adopted and is responsible for external relations, the possible incorporation of the European the Action Plan for Civilian Aspects of the Common Foreign and Security Development Fund (EDF), the financial European Security and Defence Policy Policy, and delegations in non-member mechanism allocating aid to ACP countries, (ESDP). This document is an important countries. The Directorate General for in the EU’s budget. With the ‘budgetisation’ counterbalance to the development of the External Relations and the EuropeAid of the EDF, funds allocated to ACP EU’s military capabilities. The EU has Co-operation Office report to her. countries could be subject to greater launched various missions across the world r Peter Mandelson as Commissioner for competition for funds spent by an enlarged in recent years, including Operation Trade with responsibility for trade policy EU. Yet, others argue that with the integra- Artemis in the Democratic Republic of and the international dimension of tion of the EDF in the EU budget it would Congo and the EU Police Mission in Bosnia. competitiveness. He heads the be easier to impose on the new member The Action Plan calls for a broadening of Directorate General for Trade. states higher levels of contributions for ACP the expertise which EU crisis management countries than in a separate EDF. missions draw on, as well as increased link- r Louis Michel succeeds Poul Nielson as ages between the EU’s various instruments. Commissioner for Development and The Action Plan suggests that future EU Humanitarian Aid with responsibility Securing peace and stability civilian crisis management missions would for development aid and co-operation as for Africa benefit from civilian expertise in the field of well as humanitarian aid. He oversees the Sonia Rai, Communications Intern, Saferworld human rights, political affairs, security Directorate General for Development sector reform, mediation, border control, and the Commission’s humanitarian aid In July 2004, the European Commission disarmament, demobilisation and re- office, ECHO. published the article Securing Peace and integration, and media policy, in order to Michel will face the same difficulties as his Stability for Africa, outlining the role and better reflect the multifaceted tasks it faces predecessor in terms of division of responsi- objectives of the EU-funded Peace Support in post-conflict situations. bilities between the Development Director- Operations Facility, a €250 million instru- The plan also identifies the need for the ate General and the Directorate General for ment to finance peacekeeping operations in EU to enhance the linkages between crisis External Relations. The Development Africa until 2007. management and conflict prevention to Directorate General is only in charge of Emphasising the principles of African include: the development of monitoring relations with African, Caribbean and ownership, solidarity and development, the missions before, during, and after conflicts, Pacific (ACP) countries while relations with Peace Facility, which will be led, operated ensuring ‘continuous dialogue between other developing countries fall under the and staffed by Africans, will in a large part ESDP and EU development experts’; the responsibility of the Directorate General for finance the expenditure of soldiers’ per development of synergy between develop- External Relations. For instance, EuropeAid diem allowances, communication equip- ment assistance activities and crisis manage- is accountable to the Commissioner for ment, medical facilities, the wear and tear ment ‘in post-conflict stabilisation and External Relations Benita Ferrero-Waldner. of civilian equipment, and transport and reconstruction’; and strengthening civil- Louis Michel has set ambitious goals for logistics. military instruments, by deploying multi- his five-year term, one of which is to Capacity-building is also an element of functional civilian teams.

6 FOCUS · DECEMBER 2004 Update from the Horn

Understanding pastoral Strengthening dialogue Enhancing the role of conflicts in Ethiopia between civil society, the Sudanese civil society in the Bizuwork Ketete, Regional Co-ordinator, Ethiopian Government and peace process APFO/IAG/Saferworld the EU On 21–23 September 2004, APFO, IAG On 3 August 2004, the Ethiopian Pastoralist Timnit Abraha, Project Officer, InterAfrica and Saferworld organised a ‘Civil Society Research and Development Association Group Dialogue on Sudan’ in Addis Ababa involv- (EPARDA) and Pastoralist Concern ing civil society organisations from North APFO, IAG and Saferworld organised as Association-Ethiopia (PCAE) held a one- and , as well as the Sudan part of the Horn tripartite project a one-day day workshop in Addis Ababa to present the People’s Liberation Movement/Army and workshop on 24 August 2004 in Addis findings of their research on conflict representatives of the Government of Ababa. The workshop was attended by prevention and peace-building in Ethiopia. Sudan. The meeting was also attended by 40 civil society organisations, the private The workshop was attended by 55 a representative from the IGAD Peace sector, representatives from the Ministry of participants from civil society organisa- Secretariat in Nairobi, some Ethiopian Finance and Economic Development and tions, Government offices, the media and NGOs, a representative from the Ethiopian representatives of the EC Delegation in international donors. The research con- Ministry of Foreign Affairs, international Addis Ababa. ducted by PCAE and EPARDA is supported NGOs, the Russian embassy and the media. The meeting aimed to review the man- by the tripartite Horn of Africa project of The discussions focused on the prospects date and membership of the civil society APFO, IAG and Saferworld. for enhancing the capacity of civil society Cotonou task force that was established on PCAE’s research focused on ‘The chang- organisations (including within the frame- 3 November 2003. It was agreed to expand ing face of pastoral conflict in South Eastern work of the Cotonou Agreement) to partici- the membership of the task force from 10 to Ethiopia, the case of Booran and Degodi’ pate in the ongoing peace process and its 15 members to include other civil society while EPARDA’s research looked at ‘Peace- implementation. Participants discussed the groups such as women’s organisations, the making among rival ethnic groups in areas potential areas of partnership between civil religious sector, research institutions, of Southern Ethiopia’. The objective of the society organisations in North and South professional associations, trade unions, research papers is to understand the causes Sudan and with public sector institutions. farmers’ associations and pastoralists’ and types of conflict in selected areas of The meeting also assessed the various forums. The expanded task force was given Ethiopia and to assess the role of civil frameworks for political dialogue, including a one-year mandate to draw up a plan of society and other players (including the EU) the Cotonou Agreement, and their direct or action and terms of reference. A general in such conflicts. The meeting also provided indirect contributions to peace-building in assembly will take place within a year. an opportunity to suggest recommenda- Sudan. Importantly, participants conducted One of the objectives of the workshop tions on how to address the problems. a collective review of the extent to which the was for participants to examine mecha- The issues raised during the discussions peace process and political dialogue so far nisms to formalise a NSA structure for included: involved Sudanese civil society organisations. dialogue with the EC and the Government, A communiqué was drafted by Sudanese r The need for the Ethiopian Government’s in particular the Ministry of Finance and civil society representatives in which they interventions to support traditional Economic Development. During the work- proposed recommendations to enhance the conflict resolution mechanisms ing group session, participants explored role of civil society in the peace process and NSA strategies on partnership with the EC r The tension between traditional and the Cotonou Agreement. The communiqué and the Government, their expectations modern governance systems called for the urgent inclusion and involve- from this partnership, what structures to r The tensions arising from generational ment of civil society organisations in the put in place for such discussions, and how gaps current peace talks and for openness, NSAs can improve the quality of participa- transparency, accountability and popular r The importance of mainstreaming tory approaches. The engagement of NSAs consultations on all national issues. Civil conflict sensitivity in development in political dialogue will benefit and achieve society representatives also urged the programmes greater economic development. international community and regional r The need to enhance collaboration The EC economic advisor Mr Van Ness, organisations to enhance co-ordination between the Government, the Conflict said that the EC has always recognised that and networking with civil society, promote Early Warning and Response mechanism civil society organisations and NSAs are development programmes, and ensure (CEWARN), civil society, and local “important and reliable partners in linkages between the North and the South. communities to undertake effective implementing development strategies”. A 14-member working group was created conflict resolution and early warning The EC supports civil society organisations to follow up the recommendations to measures and actions on conflict and through co-financing arrangements in promote civil society participation in: cross-border issues. specific sectors. Furthermore, to facilitate the funding processes within the framework r Bringing together different political A full report of the workshop will be available to of the Cotonou Agreement, the Ministry of parties in Sudan for further dialogue download on www.saferworld.org.uk Finance and Economic Development along Contact: Bizuwork Ketete [email protected] r Disseminating the protocols to the wider • PCAE (Abdi Abdullahi) [email protected] with the EC are finalising preparations for public the creation of a Civil Society Fund. This • EPARDA (Dr Zerihun Ambaye) r Engaging with the EC about the NSA Fund focuses on strengthening and building [email protected] capacity-building programme and the the capacity of NSAs and to increase their delays faced in its implementation. involvement in advocacy and policy dialogue. A full report will be available soon. Contact: [email protected] Contact: [email protected]

DECEMBER 2004 · FOCUS 7 Seminar and roundtable reports Cotonou national consultation reports Research on the mid-term review process Developing Horn of Africa civil society Developing Djiboutian civil society in the Horn of Africa, Africa Peace Forum, engagement in the Cotonou Agreement: engagement in the Cotonou Agreement: InterAfrica Group and Saferworld report of the regional Horn of Africa report of the first consultation between civil publication, forthcoming. meeting on the mid-term review of the society representatives, the Djiboutian Pastoral conflicts and small arms: The Country Strategy Papers and the National Government and the European Union, Kenya-Uganda border region, Kennedy Indicative Programmes, Mombasa, March Djibouti, March 2004, Africa Peace Forum, Mkutu, Saferworld publication, 2003. 2004, Africa Peace Forum, InterAfrica InterAfrica Group and Saferworld Group and Saferworld publication, 2004. publication, 2004 (available in French). Enhancing the capacity of the European Union to foster peace and stability in the Mid-term reviews 2004: priorities from Developing Ethiopian civil society Horn of Africa, Africa Peace Forum, African civil society, influencing Country engagement in the Cotonou Agreement: InterAfrica Group, and Saferworld PUBLICATIONS Strategy Papers to advance poverty report of a consultation between civil publication, 2003. reduction and conflict prevention: report society representatives, the Ethiopian of the regional seminar, Addis Ababa, Government and the European Union, Other relevant publications February 2004, Africa Peace Forum, Addis Ababa, November 2003, Africa Peace Conflict-sensitive approaches to Eurostep, InterAfrica Group and Saferworld Forum, InterAfrica Group and Saferworld development, humanitarian assistance and publication, 2004. publication, 2004. peacebuilding, a resource pack, Africa Understanding the ACP-EU Partnership Peace Forum, Center for Conflict Policy reports Agreement (the Cotonou Agreement), an Resolution, Consortium of Humanitarian awareness-raising seminar for Somali/land Strengthening small arms controls: An Agencies, Forum on Early Warning and civil society/non-state actors: report of the audit of small legislation in Early Response, International Alert and Hargeissa seminar, April 2002, Africa Peace the Great Lakes region and the Horn of Saferworld publication, 2004. Forum, InterAfrica Group and Saferworld Africa, Catherine Flew and Angus Urquhart, publication, 2003. SaferAfrica and Saferworld publication, All the publications are available online: 2004. www.saferworld.org.uk Enhancing conflict prevention and civil society engagement in the Horn of Africa: Strengthening global security through opportunities presented by the Cotonou addressing the root causes of conflicts: Agreement: report of the Kampala seminar, Priorities for the Irish and Dutch April 2002, Africa Peace Forum, InterAfrica presidencies in 2004, International Alert Group, Center for Conflict Resolution and and Saferworld publication, 2004. Saferworld publication, 2002.

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