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Anatomy of Civilian Disarmament in Jonglei State Recent Experiences and Implications

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Anatomy of Civilian Disarmament in Jonglei State Recent Experiences and Implications sudanHuman Security Baseline Assessment issue brief Small Arms Survey Number 3 (2nd edn.) November 2006—February 2007 Anatomy of civilian disarmament in Jonglei State Recent experiences and implications espite the end of the second and the Sudan People’s Liberation armament and security improvement Sudanese civil war in Janu- Army (SPLA), now operating under the efforts in South Sudan. These lessons ary 2005, South Sudan has auspices of the fl edgling Government are particularly timely given that the D 3 remained volatile and insecure. This of South Sudan (GoSS), is actively con- United Nations, together with govern- is due, in part, to the widespread pro- ducting it. In some instances, its efforts ment and non-governmental partners, liferation of small arms in the hands have had devastating consequences for is preparing major conventional DDR of both armed groups and civilians. human security. and community security programmes But while the Comprehensive This Issue Brief examines two recent for 2007. Peace Agreement (CPA) calls for the experiences of civilian disarmament in The Issue Brief fi nds that a range of disarmament, demobilization, and re- Jonglei State. Both interventions gen- internal and external pressures are integration (DDR) of so-called Other erated weapons surrenders but had acting on the SPLA that continue to Armed Groups (OAGs),1 it provides substantially different human security steer it towards a militaristic and coer- comparatively little guidance on the outcomes. By looking closely at the cive approach to civilian disarmament. question of disarming civilians.2 Yet local contexts, design, and execution of These pressures must be taken into civilian disarmament is an essential these two campaigns, important lessons account in evaluating its past efforts step in bringing security to the region, are highlighted for future civilian dis- and anticipating future campaigns. It A UN observer surveys civilian small arms surrendered in Akobo, Jonglei State, in August 2006. © Mohamed Nureldin Abdalah/Reuters www.smallarmssurvey.org/sudan 1 targeting civil- What is civilian ians. Before more comprehensive, disarmament? pacifi c civilian Civilian disarmament is a generic con- also fi nds that due to current constraints disarmament can be achieved, a deeper cept that encompasses a wide variety in the mandates and capacities of var- understanding of local dynamics affect- of interventions. These range from ious UN agencies on the ground, the ing the SPLA’s approach, and the un- tightened regulatory mechanisms for international community is poorly posi- willingness of certain communities to private arms possession and forcible tioned to support a voluntary approach disarm, is required. fi rearms seizures, to public awareness 2 Sudan Issue Brief Number 3 (2nd edn.) November 2006—February 2007 and sensitization campaigns and Coercive disarmament is only sel- hand over their weapons, arguing with weapons buy-back, collection, and dom undertaken by the UN, specifi cally some justifi cation that they needed destruction programmes. Along with by the Department of Peacekeeping them to defend themselves against DDR, civilian disarmament is increas- Operations, pursuant to a Chapter VI neighbouring Murle, who retained ingly considered to be a mainstay of or VII mandate. In Sudan, there remains their weapons. Simultaneous disarma- post-confl ict recovery programmes.4 considerable debate within the UN ment was not on offer. Within this broad spectrum of acti- over whether all SPLA disarmament A rash of minor skirmishes between vities, practitioners and analysts distin- initiatives are coercive or not. the white army and the SPLA erupted guish between coercive and voluntary during the early stages of the disarma- efforts: ment campaign in January 2006.9 Civilian disarmament in Crucially, clashes included members Coercive civilian disarmament is often northern Jonglei (December of a group within the South Sudan pursued as part of crime reduction, Defence Force (SSDF) led by Simon peacekeeping, or peace support opera- 2005—May 2006) Gatwitch that had joined the SPLA tions. It is usually administered exclu- The SPLA-led disarmament campaign following the Juba Declaration. In the sively by security structures—including in northern Jonglei6 was launched ensuing mayhem, SPLA forces were formal law enforcement, military, or against a backdrop of simmering ten- scattered, many dying of thirst and peacekeeping personnel. In many cases, sions over common property resources hunger. Wutnyang Gatkek, a spiritual arms are collected and destroyed, and politicized inter-ethnic rivalries.7 leader of the Nuer from Fangak and, while in others, weapons are recycled Problems emerged in December 2005 more critically, a former white army into newly reconstituted armed forces after Lou and Gawaar Nuer pastoral- member, was one of the fi rst people or policing services. ists requested permission from the killed when he went to Yuai on behalf Voluntary civilian disarmament is Dinka Hol and Nyarweng from Duk of the SPLA to sell the disarmament decentralized, and often combines both county to graze cattle on their lands. programme.10 His death amounted to collective and individual incentives. It The Dinka civil authorities requested a symbol of the SPLA’s ineffectiveness may be conducted as part of a formal that the Nuer pastoralists surrender in convincing local youth to turn in crime or peacekeeping intervention or their weapons before grazing their their weapons. It also threatened the can be designed to accompany a devel- livestock. The Lou Nuer summarily onset of inter-clan confl ict between the opment programme. Such activities refused, noting that disarmament had Nuer and the Dinka, further intensifying frequently employ amnesties, weapons never been a precondition. Informal demands within the SPLA for military buy-backs, or ‘weapons for develop- meetings were held with representa- retaliation. ment’ activities. tives of the white army,8 the Dinka from Following the white army attack Duk county, Nuer from Ayod and on the SPLA, the Juba leadership of Whatever the material and devel- Fangak counties, and the Jonglei State the SPLM/A was seized with the issue. opment incentives provided in either government. During these meetings it GoSS Security Committee members type of effort, a crucial difference is was stressed that a forcible campaign were divided between those calling that coercive disarmament carries the would take place if weapons were not for swift retribution against the white threat of punitive measures for non- surrendered voluntarily. army, and those urging restraint. These compliance, while voluntary efforts do One reason many civilians were tensions mirrored deeper splits, between not. Nevertheless, voluntary disarma- reluctant to disarm was that the terms supporters of the previous SPLM/A ment is often combined with, or in some of the campaign were never entirely leader John Garang and those of his cases precedes, coercive disarmament clear. Compensation was offered by successor, Salva Kiir, the current presi- of the same community. This point is the Jonglei governor, Philip Thon Lek, dent of the GoSS. particularly relevant in the case of recent a Nyarweng Dinka from Duk county, A conference on 27 February– civilian disarmament efforts in South for voluntarily returned arms, but 7 March was rapidly organized in the Sudan. details concerning the source of these heart of Lou Nuer territory to convince There is no standard template for funds were lacking. Not surprisingly, the white army to surrender their arms civilian disarmament. But lessons the Lou and Gawaar Nuer refused to to the SPLA voluntarily. The result was learned reveal that efforts should be embedded in an appropriate norma- tive framework, be preceded by a sensitization campaign, and combine GoSS Security Committee members were divided clear criteria for surrendered weapons. Adequately resourced procedures for between those calling for swift retribution against compensation and weapons destruc- tion are also preferable wherever the white army, and those urging restraint. possible.5 www.smallarmssurvey.org/sudan 3 nity security approach,15 but others By most standards, the human costs of disarmament within UNMIS remain fi rmly focused on conventional DDR of armed com- in northern Jonglei were high. batants as prescribed by the CPA. Moreover, the military component of UNMIS was unable or unwilling to engage in civilian disarmament in far from encouraging. Meanwhile, August 2006, owing to persistent inse- northern Jonglei. Military Intelligence of the Sudan curity and the presence of mines and Armed Forces (SAF) reportedly began unexploded ordnance in the area. to take advantage of the escalating There is considerable uncertainty Civilian disarmament in tension by stirring up violence in neigh- over what will happen next. Though bouring Upper Nile State and supply- Governor Philip promised compensa- Akobo (March—August 2006) ing the white army with weapons and tion for voluntarily surrendered Prior to the disarmament campaign in ammunition, even while allegedly weapons, it was never clarifi ed who the north of the state, between 2004 and destroying symbolic stocks for the UN would provide compensation and in 2005 a small UN contingent worked Mission in Sudan (UNMIS).11 what form. Local authorities would like quietly with local government admin- The wider consequences of the co- to receive collective (i.e. development) istrators and SPLA counterparts to ercive disarmament campaign did not benefi ts for turning over their commu- develop what was expected to be a fully emerge until later, in May 2006. nity’s weapons. Major priorities identi- voluntary civilian disarmament in A major confrontation occurred in the fi ed include schools, clinics, and water Akobo county, to the south-east. There triangle of Motot, Karam, and Yuai on systems. Meanwhile, many households they identifi ed pilot areas, and by July 18 May when at least 113 white army continue to believe that weapons pos- 2005 a project involving the SPLA, fi ghters were killed12 against one SPLA session is an inalienable right, though civil authorities, women, and youth soldier, after which the white army they supported the disarmament.
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