edited by Devon Curtis and Gwinyayi A. Dzinesa w i t h a f o r e w o r d b y a d e k e y e a d e b a j o Peacebuilding, cambridgePower, centre of and african Pol studiesitics series in Africa Peacebuilding, Power, and Politics in Africa CAMBRIDGE CENTRE OF AFRIcaN STUDIES SERIES Series editors: Derek R. Peterson, Harri Englund, and Christopher Warnes The University of Cambridge is home to one of the world’s leading centers of African studies. It organizes conferences, runs a weekly seminar series, hosts a specialist library, coordinates advanced gradu- ate studies, and facilitates research by Cambridge- and Africa-based academics. The Cambridge Centre of African Studies Series publishes work that emanates from this rich intellectual life. The series fosters dialogue across a broad range of disciplines in African studies and be- tween scholars based in Africa and elsewhere. Derek R. Peterson, ed. Abolitionism and Imperialism in Britain, Africa, and the Atlantic Harri Englund, ed. Christianity and Public Culture in Africa Devon Curtis and Gwinyayi A. Dzinesa, eds. Peacebuilding, Power, and Politics in Africa Peacebuilding, Power, and Politics in Africa Edited by Devon Curtis and Gwinyayi A. Dzinesa Foreword by Adekeye Adebajo Ohio University Press • Athens Ohio University Press, Athens, Ohio 45701 ohioswallow.com © 2012 by Ohio University Press All rights reserved To obtain permission to quote, reprint, or otherwise reproduce or distribute material from Ohio University Press publications, please contact our rights and permissions department at (740) 593-1154 or (740) 593-4536 (fax). Printed in the United States of America Ohio University Press books are printed on acid-free paper ƒ ™ 20 19 18 17 16 15 14 13 12 5 4 3 2 1 Library of Congress Cataloging-in-Publication Data Peacebuilding, power, and politics in Africa / edited by Devon Curtis and Gwinyayi A. Dzinesa ; foreword by Adekeye Adebajo. p. cm. — (Cambridge Centre of African Studies series) Includes bibliographical references and index. ISBN 978-0-8214-2013-3 (pb : alk. paper) — ISBN 978-0-8214-4432-0 (electronic) 1. Peace-building—Africa. 2. Peace-building—Africa—International cooperation. 3. Africa—Politics and government—1960– I. Curtis, Devon. II. Dzinesa, Gwinyayi Albert. III. Series: Cambridge Centre of African Studies series. JZ5584.A35P44 2012 327.1'72096—dc23 2012019442 Foreword ADEKEYEContents ADEBAJO ix Acknowledgments xiii Abbreviations xv The Contested Politics of Peacebuilding in Africa introduDEVON CURTICtionS 1 PArt i: PeacPeaceebuilding: as an Incentive themes for War And debAtes DaVIDone KEEN 31 Statebuilding and Governance The Conundrums of Legitimacytwo and Local Ownership DOMINIK ZAUM 47 Security Sector Governance and Peacebuilding EBOEthree HUTCHFUL 63 The Limits of Disarmament, Demobilization, and Reintegration PAULfour OMach 87 v Contents PArt ii: institutions And ideologies The Role of the African Union, New Partnership for Africa’s Development, andfive African Development Bank in Postconflict Reconstruction and Peacebuilding GILBERT M. KHADIAGALA 107 Peacebuilding as Governance The Case of the Pan-Africansix Ministers Conference for Public and Civil Service CHRIS LaNDSBERG 121 The United Nations Peacebuilding Commission Problemsseven and Prospects ’FUNMI OLONISAKIN AND EKA IKPE 140 Financing Peace? The World Bank, Reconstruction,eight and Liberal Peacebuilding GRAHAM HARRISON 158 The International Criminal Court A Peacebuildernine in Africa? SARAH NOUWEN 171 PArt iii: CAse s tudies The Politics of Negotiating Peace in Sudan SHARATHten SRINIVASAN 195 vi Contents Peacebuilding in the Great Lakes Region of Africa RENÉ elevenLEMARCHAND 212 Peacebuilding through Statebuilding in West Africa? The Cases of Sierratwelve Leone and Liberia COMFORT ERO 232 Oil and Peacebuilding in the Niger Delta ADEROthirteenJU OYEFUSI 253 Disarmament, Demobilization, and Reintegrationfourteen in Southern Africa Namibia, Angola, and Mozambique GWINYAYI A. DZINESA 276 Peacebuilding without a State The Somalififteen Experience CHRISTOphER CLaphaM 295 Bibliography 311 Contributors 337 Index 341 vii ADEKEYE ADEBAJO Executive Director, Centre for Conflict Resolution, Cape Town, South Africa foreword It was fortuitous that, after five years, I was able to take time out from my position as the executive director of the Centre for Conflict Resolution (CCR), in Cape Town, South Africa, in 2008/9 to spend a five-month sabbatical in the wonderful surroundings of the Centre of African Studies (CAS) at Cambridge University in England. In pursuit of its pan- African vision, the overall theme of CCR’s Africa program in 2008–12 was “Peacebuilding in Africa,” with a book planned specifically to assess the continent’s peacebuilding challenges. Under the dynamic supervision of Devon Curtis, CAS was itself preparing a book project on the same topic. This volume is the result of the fruitful marriage of both projects between an African institution and a European institution, involving scholars from Africa, Europe, and North America, as well as an Indian-Australian scholar. Several of the authors have practical experience of peacebuilding in Africa. Thematic debates involving issues of mediation, governance, the security sector, disarmament, and demobilization are combined here with assessments of African and global institutions, bolstered by rich case studies spanning the Great Lakes region, Southern Africa, West Africa, and the Horn of Africa. This is truly a unique volume, which we hope scholars, civil society activists, and practitioners around the world work- ing on peacebuilding issues in Africa will find useful. A seminar at the University of Cambridge in March 2009 helped shape the conceptual and empirical contents of this project. Five months later, CCR organized and largely funded a policy seminar in Gaborone, in cooperation with the universities of Botswana and Cambridge, at- tended by about forty scholars and practitioners. My colleagues at the Centre for Conflict Resolution deserve particular praise for the flawless organization of this logistically challenging meeting. Commissioned pa- pers were presented at the seminar over three days, and authors received feedback to revise their chapters in a rigorous editing process. A few more chapters were commissioned based on gaps identified at the Ga- borone seminar. We thank all the authors for cooperating so efficiently with this arduous process. I particularly acknowledge the contributions ix of Devon Curtis, who didAdekeye the most Adebto shapeAjo and edit the book (includ- ing spending a few weeks in Cape Town in 2010 completing this proj- ect). I also thank the director of CAS, Megan Vaughan, for supporting this collaboration. Devon Curtis’s co-editor and former CCR colleague, Gwinyayi Dzinesa, also deserves recognition for his contributions. I take this opportunity to pay tribute to Glenn Cowley, former publisher of the University of KwaZulu-Natal Press, with whom CCR published seven important books on Africa’s post–Cold War international relations. At the Gaborone seminar in August 2009, he skillfully chaired a session on how to turn the papers into a coherent edited volume. Glenn unfortu- nately died in May 2011, and his great warmth, experience, and insights will be sorely missed. CCR, one of the very few centers of excellence on the UN’s role in Africa, has established its expertise in this important area, organizing important policy seminars since 2004 on critical peacebuilding chal- lenges in Southern, West, Eastern, and Central Africa that involved key actors from the African Union (AU), Africa’s regional organizations, civil society, the UN, and external donor representatives. The center has also published three books on UN peacebuilding issues, as well as three other volumes covering issues of transitional justice in Africa, Africa’s human rights architecture, and the African Union and its institutions. Peacebuilding was popularized in the 1992 publication, An Agenda for Peace, by the first African United Nations secretary-general, Egypt’s Boutros Boutros-Ghali. Africa has since become the world’s most im- portant peacebuilding laboratory, making this book particularly timely in assessing two decades of post–Cold War peacebuilding experiences on the continent. The concept of peacebuilding is often associated with the “second generation” of post–Cold War UN missions in countries such as Namibia, Angola, Mozambique, and Somalia, where efforts were made to adopt a holistic approach to peace. More recent cases, also cov- ered in this book, have involved the Democratic Republic of the Congo (DRC), Burundi, Rwanda, Sierra Leone, Liberia, Nigeria’s Niger Delta, and Sudan. Not only are diplomatic and military tools employed in building peace; today’s peacebuilders also focus on the political, social, and economic causes of conflicts, as well as the need to promote socio- economic justice. The peacebuilding office established by the UN in Liberia in 1997 was the first ever such office. Others were subsequently established in Sierra Leone, Central African Republic (CAR), Guinea-Bissau, Angola, x Foreword and Burundi. There are also UN peacebuilding offices for west Africa, central Africa, and the Great Lakes region. Both the UN High-Level Panel report of 2004 and the 2005 report In Larger Freedom, by the sec- ond African UN secretary-general, Ghana’s Kofi Annan, called for the establishment of a Peacebuilding Commission, as well as a Peacebuild- ing Support Office within the UN secretariat. Both were approved by the UN General