Pathways to peace talks Supporting early dialogue September 2019 Pathways to peace talks: supporting early dialogue Author: Cate Buchanan September 2019 Acknowledgements: This Accord Spotlight was drafted by Cate Buchanan for Conciliation Resources with peer review by participants of a February 2019 three-day discussion which provides the basis for the report. Accord would like to thank all meeting participants for so generously sharing their experiences, insights and ideas. Conciliation Resources is grateful to the Sasakawa Peace Foundation for their generous support for the Accord Pathways to Peace Talks project. Conciliation Resources is an independent international organisation working with people in conflict to prevent violence, resolve conflicts and promote peaceful societies. We take what we learn to government decision-makers and others working to end conflict, to improve policies and peacebuilding practice worldwide. Published by: Conciliation Resources Burghley Yard, 106 Burghley Road London NW5 1AL www.c-r.org Telephone: +44 (0) 207 359 7728 Email: [email protected] Facebook.com/ConciliationResources Twitter.com/CRbuildpeace Charity registered in England and Wales (1055436) Company limited by guarantee registered in England and Wales (03196482) Design & layout: www.revangeldesigns.co.uk Cover photo: People from the Somali Regional State in Ethiopia gather at a conference organised by the Ogaden National Liberation Front (ONLF) in April 2019 to discuss the Asmara peace deal and the ONLF’s transition from an armed group to a political party. © Conciliation Resources Findings and recommendations Below are findings and recommendations for 2 Support civil society to prepare for peace talks: how third party support for the early phases of Civil society actors need assistance to prepare peace processes can be more effective. These for early phases of peace processes, to gain are drawn from a three-day joint analysis the confidence and technical skills needed for workshop convened by Conciliation Resources negotiations. This can help to challenge the in February 2019. Workshop discussions are exclusivity of more conventional approaches to summarised in more detail subsequently. early dialogue. It also responds to a particular challenge of ‘ineffective’ or ‘shallow’ inclusion, Strengthening practice whereby civil society individuals who have gained access to early dialogue through an Raise the bar on the quality of early inclusion: inclusion mechanism and may have legitimacy, Early peace dialogue is largely done in secret and nevertheless remain marginalised due to their is still largely dominated by men – mediators lack of experience of negotiation, and so cannot and armed actors. This sets up a low inclusion exert influence or input substantively into talks. threshold for a peace process, shaping which 2 Enhance the quality of early inclusive political issues matter enough to be negotiated as well as analysis: Setting up and sustaining effective who negotiates them going forward. There are a peace interventions requires cogent political range of mechanisms and modalities for greater analysis – of sources of conflict, but also of societal representation across different phases peace. High-quality analysis that incorporates of a peace process, but there are major gaps in gender perspectives and conflict sensitivity knowledge about how to support more inclusive is yet to be a core feature of peace process engagement early on. Workshop discussions support, however. It is especially scarce early identified three ways in which third parties can on, when prospects for peace may appear low, help to enhance the quality of early inclusion and interest and involvement in supporting in peace processes in order to establish more peace initiatives is limited and focused on positive path dependencies: armed actors by and large. Analysis needs 2 Invest in non-violent social-political movements to examine gendered identities and power and local peace capacity: Especially in the dynamics and should engage widely with local early phases, peace processes risk feeding and external actors – including more difficult into negative path dependencies by privileging groups such as those with conservative and the participation of armed over unarmed extremist views, and even proscribed actors. actors. Although the boundary between violent Local perspectives and insights are often and non-violent movements for change is missing from early interventions when external not always clear-cut, support for the latter is mediators are establishing their presence. comparatively weak or seen as too risky. In Third party organisations can take a lead order to create more conducive environments by sharing analysis methods, networks and in which sustainable peace initiatives can grow, innovations. Donors can also be influential by there is a pressing need to invest in inclusive investing in preparatory analysis capabilities, spaces for dialogue among non-violent groups, and by requesting and supporting regularly as well as groups who use violence to explore updated inclusive political analysis, beyond the priorities and pathways for peaceful change. requirements of funding proposals. Pathways to peace talks: supporting early dialogue 3 Commit to early coordination through strategic diplomacy and funding mechanisms. division of labour: The exponential growth of mediation, facilitation and third party peace Engage with religious traditionalists and support has brought dynamism, but also conservative movements: Peace practitioners coherence and coordination challenges. increasingly acknowledge the role of religious These are heightened in early dialogue, when leaders and communities in peacebuilding. But third parties may be vying for influence and they tend to avoid those with views regarded conflict parties are incentivised to ‘shop’ for as highly conservative or extremist. Engaging a sympathetic mediator. Secrecy, discretion solely with ‘friendly’ religious actors in early and funding competition also inhibit effective phase peace practice separates the process coordination. Poorly designed, sequenced from constituencies that may encourage or duplicative interventions once set up are and manipulate divisions to foment violence. hard to untangle. Creative ways are needed Excluding such potential spoilers early on to establish coordinated division of labour in leaves the door open for them to undermine peace processes early on. The International the process subsequently. A wider spectrum Contact Group for the Bangsamoro peace of outreach is necessary to be truly inclusive process in the Southern Philippines provides in order to navigate divergent worldviews; an innovative hybrid model of states and INGOs find common ground with radical leaders working together, which, with creativity and will, and conservative movements; and transform is applicable and adaptable to informal, early relationships among antagonistic constituencies. peace work elsewhere. The Contact Group had Recognise the peace potential of social media a mandate to promote dialogue and coordinate and technology: Social media, 24-hour and ‘fake’ inclusive process support, providing a vehicle for news can undermine nascent peace processes. institutions to play to their strengths, support But information technology can also play a the facilitator of the peace talks, and reduce positive role, for instance when members of duplication of effort across both formal and armed groups like the Taliban have used it to informal mediation tracks. promote pro-peace messages internally. Third Support armed groups to engage in peace parties should look beyond risks and explore dialogue: Armed groups are typically trained to how best to use social media, for example by fight, not to talk. Preparing for dialogue requires supporting conflict parties to communicate in significant changes in orientation. Third parties smarter ways with their constituencies. can help armed groups in a number of ways, to Understand new mediation actors and their gain knowledge and skills to prepare for dialogue; approaches: There is growing interest in develop pro-peace strategies and infuse cultural mediation from non-Western states. China has shifts within different factions; consult with now appointed a cohort of envoys deployed to constituencies to broaden their legitimacy; conflict zones – from Syria to Venezuela and and reach out to long-term adversaries as a Myanmar. It also has a burgeoning think-tank stepping-stone to more structured engagement. community and major geopolitical ambitions, Technical support can be essential to navigate such as the Belt and Road Initiative. Peace specialist issues such as legal and technical organisations need to build links with Chinese requirements of constitutional and security peacemaking efforts to better understand their sector reform, or the politics of international perspectives and possibilities. Western-oriented peace communities are currently ill-prepared to engage with China and need to develop 4 Accord spotlight the requisite networks, language skills and and third party organisations can help build knowledge of Chinese policy. higher-impact peace support for early dialogue and emergent peace processes. Refining funding and support 2 Rethink timeframes and funding models to support local peace organisations: Funding Review counter-terrorism policies so they do models are increasingly risk-averse and geared not block early peace dialogue: Proscription towards multiple and fast deliverables