Cote d'Ivoire

Background

Situation Analysis/Context
Since the beginning of the Ivorian crisis on 19 September 2002, a series of peace initiatives have been carried out. A brief outline on the agreements that culminated into these initiatives is essential in order to put the DDR into the proper poitical context. In the framework of the ECOWAS mechanisms on conflict prevention and resolution, on 29 September 2002 a summit was held in Accra, Ghana under the auspices of the Senegalese President and ECOWAS chairman Mr. Abdulaye Wade. This summit culminated in the adoption of the Accra I Accord, which called upon the armed groups to cease hostilities and to engage in a dialogue that would bring about peaceful resolution to the Ivorian crisis. The accord also condemned the use of force as well as the violation of human rights.

On 23 January 2003, the Government of Côte d’Ivoire and the Forces nouvelles, which had been fighting the Government of President Laurent Gbagbo,, signed the French-brokered Linas-Marcoussis Accord (LMA), agreeing to establish a Government of national reconciliation which would include representatives of the Forces nouvelles. The parties agreed to work together on modifying laws on national identity, eligibility for citizenship, and land tenure. The LMA also stipulated that a United Nations Monitoring Committee would report on implementation of the accord. Further to this agreement, President Gbagbo appointed Mr. Seydou Diarra as the consensus Prime Minister. In March 2003, Prime Minister Diarra formed a government of national reconciliation of 41 ministers. The full government did not meet until mid-April 2003, when international peacekeepers were in place to provide security for the Force nouvelles ministers in the capital, Abidjan. On July 4, 2003, the government and the Forces nouvelles armed forces (FAFN) signed an "End of the War" declaration. They also agreed to recognize the authority of the elected President of Côte d’Ivoire, and vowed to work for the implementation of the LMA and to participate in a Disarmament, Demobilization and Reintegration (DDR) programme.

Six months after the formation of the reconciliation government, and further to consultations with the political parties and the Forces nouvelles, President Gbagbo named politically neutral Defense and Security Ministers,. However, progress in the peace process was tenuous and there were a series of serious challenges to the Linas-Marcoussis Accord. Violent flare-ups and political deadlock led to further attempts to move the peace process forward through the Accra II and the Accra III agreements signed on 7 March 2003 and 30 July 2004 respectively. The principle objective of both these acgreements was to further consolidate the peace process that began with the signing of the Linas Marcoussis agreement, Among the crucial issues they attempted to address was the disarmament of the Forces nouvelles. The Accra III Agreement also reaffirmed the goals of the LMA with specific deadlines and benchmarks for progress. Unfortunately, the parties did not meet the deadlines for legislative reform and for disarmament (which had been set for 15 October 2004.)

In April 2005, South African President Thabo Mbeki invited Ivorian parties to the conflict to meet in South Africa for an African Union-sponsored mediation effort. The result was the Pretoria Agreement, signed on April 6, 2005. The Pretoria Agreement formally ended the country's state of war, and addressed issues such as DDR, the return of Forces nouvelles Ministers to government, and the reorganization of the Independent Electoral Commission. A follow-up agreement signed in Pretoria on June 29 2005, known as the Pretoria declaration, laid out another framework for DDR, elections, and the adoption of legislation required under the Linas-Marcoussis Accord.

The Pretoria declaration specifically states that DDR and political reform must go hand in hand and recognises that the adoption of seven key laws constitutes a prerequisite requirement for the commencement of all the planned disarmament stages. These seven laws relate to the reform of the Independent Electoral Commission, the financing of political parties, the right to Ivorian nationality, the issue of national identity documents, and the establishment of a human rights commission and the regulation of newspapers, radio and television.

On 9 July 2005 a new agreement on DDR, known as the “Yamoussokro Declaration”, was negotiated during three days of talks in the town of Yamoussoukro. This calls for 42,564 rebel combatants and 5,500 government troops recruited since September 2002 to start assembling at agreed cantonment sites on 31 July 2005. One of the key requirements of the Yamoussoukro agreement is for pro-government militias in the south of Côte d’Ivoire to disarm first by 20th of August 2005 and for the Government of Côte d’Ivoire to sign a series of delayed political reforms into law by 15 July 2005. This integrated timetable includes the disarming and the dismantling of the militias and adoption of key laws as principle benchmarks.

The pre-cantonment process was delayed due to objections by Forces nouvelles and other parties over the final form of the laws mentioned in the Pretoria Agreement which were, contentiously, adopted through presidential decree on 15 July 2005. The political deadlock over the adoption of these laws has blocked the DDR process which, in turn, is one of the preconditions for holding elections. Consequently, on October 17 2005, the African Union decided to extend by 12 months the mandate of President Laurent Gbagbo and Prime Minister Charles Konan Banny (in December 2005 Charles Konan Banny was chosen by Nigerian President Olusegun Obasanjo and South African President Thabo Mbeki to replace Seydou Diarra as the head of the reconciliation government).. Due to a continued political deadlock, the mandates of both President Gbagbo and Prime Minister Banny were renewed for a further 12 months by the African Union Peace and Security Council on 17 October 2006. Meanwhile, the UNOCI DDR section has continued to work on a plan for the dismantling and disarming of militias.

Ceasefire/Cessation of hostilities agreements:
Linas-Marcoussis Agreement: 23 January 2003
Comprehensive Ceasefire Agreement: 3 May 2003
Accra III Agreement: 30 July 2004
Pretoria Agreement on the Peace Process in the Côte d’Ivoire: April 6, 2005

DDR Strategy and Approach

Mandate and DDR provision in CPA
The current mandate was outlined in Security Council Resolution 1609 of June 24, 2005:

In the area of DDR, the mandate emphasizes support and assistance to the Government of National Reconciliation in carrying out the following DDR related activities in the realm of a “coordinated regional approach”:

• “regouping of all the Ivorian forces involved and to assist in ensuring the security of their disarmament, cantonment and demobilization sites.”
• “implementation of the national programme for the disarmament, demobilization and reintegration of combatants” while taking into consideration specific needs of women and children. Additionally, implementation of the “Joint Operational Plan for the disarmament and dismantling of militias envisaged in article 4 of the Pretoria Agreement.”
• Coordination with the Sierra Leone and Liberia missions on the implementation of a “voluntary repatriation and resettlement programme for foreign ex-combatants, paying special attention to the specific needs of women and children” while considering efforts and inputs of other governments, donors, international financial institutions and international development organizations.
• “secure, neutralize or destroy any weapons, ammunition or any other military material surrendered by the former combatants.”

President Laurent Gbagbo remains head of state after the old mandate expires on October 17, 2005. Specifically, the African Union (AU) Plan calls for him to not stay in office any longer than 12 months.

Aim and Objectives, Eligibility and criteria / Timeline of DDR processes
During the Yamoussoukro seminar that was held from 2nd to 6th May 2005, the ex-belligerent forces (FDS and FAFN) agreed that a total of 48,064 beneficiaries comprising 5,500 combatants from FDS and 42,564 ex-combatants from FAFN would benefit from the DDR programme. Women and/or girls associated with armed groups or forces and vulnerable groups (widow, disable and orphans) have also been included among these beneficiaries. According to the PNDDR programme, demobilized combatants will be entitled to a safety net package of 499,500 F CFA Francs for six months. This safety net package will be distributed to demobilized combatants upon presentation of their demobilization ID card at the regional office. The safety net package will be disbursed in the following sequence:

• 25% paid upon demobilization
• 25% paid 45 days later
• 50% remainder paid 90 days after demobilization

Ex-combatants will be oriented to the city or village district of origin or a locality where they will eventually choose to live. At the district office, ex-combatants will receive advice on available reintegration opportunities such as: education grant, vocational training, job placement, and income generating activities or micro-finance projects. An education grant of 200,000F CFA (maximum) will be allocated to ex-combatants that will opt to resume their studies. Tools kit will be given to ex-combatants that will chose vocational training at the end of the programme. Ex-combatants that will opt for micro-credit finance project will be entitled to a loan of 180,000 F CFA per individual plus a loan of 150,000 F CFA for the purchase of equipment. They will also be qualified for a loan of 100,000 F CFA for agricultural projects and for the purchase of seeds.

DDR Zones
The ex belligerents have identified 11 DDR Zones across the territory of Côte D’Ivoire. In the northern part of the country (controlled by the Force Nouvelles) there are 5 DDR zones: Bouake, Bouna, Korhogo, Man and Seguela. In the southern part of the country (controlled by the FDS) there are six DDR zones: Abidjan, Guiglo, Daloa, Yamoussoukro, Bondoukou and San Pedro. ONUCI has already allocated some containers for all DDR sites to store and secure ammunitions and arms that will be collected during the disarmament process. Most of these zones have undergone extensive rehabilitation works. The Chiefs of Staff of the FDS and FAFN have agreed on a number and localities for the establishment pre-cantonment sites. There are 75 pre-cantonment sites in the FAFN controlled area, located in the northern part of the country, and there are 35 pre-cantonment sites located in the FDS controlled are, located in the southern part of the country. Members of the armed forces from the belligerent parties are to be assembled in the pre cantonment sites prior to the commencement of the official DDR programme. These sites are technically operational and will be manned by the ex-belligerent forces as per a formal agreement between their respective chiefs of staff.

Once the DDR programme starts the participants are to move into 17 cantonment sites (nine in the FAFN controlled areas and eight in the FDS controlled areas). Here the weapons will be secured so as to allow the combatants to participate in the identification process (in which those deemed eligible will be issued with Côte d’Ivoire identity papers) and the voter registration process, which will take place concomitantly with the DDR programme. In order to allow the combatants to travel they would receive a first installment of the transitional safety net allowance once their weapons have been secured.

Upon completion of the identification process the combatant would return to the cantonment site for formal demobilization and to participate in reorientation programmes before returning to their respective region of origin where they would enter socio-economic reintegration programmes.

Approach to special groups (children, women, disabled and foreign combatants)
UNDP has secured funds to support the reintegration of women and girls in order to offer them the same economic opportunities as men and boys once they have departed from the cantonment site. ONUCI has also put in place an array of Quick Impact Projects (QIPs) to facilitate the reintegration of ex-combatants. Children associated with armed group or forces have a separate DDR programme. They will transit through an orientation and transit center under the management of UNICEF. Children are not entitled to the safety net package.
 

Operational Structure and Framework

Implementation Mechanism
DDR units will assist in the implementation of a national DDR program, targeting combatants and paying special attention to women and children. Additionally, they will work in coordination with the Government of Côte d’Ivoire, Sierra Leone and Liberia in the implementation of a voluntary repatriation and resettlement programme for foreign ex-combatants. The programme mandate calls for coordination between regional groups in the effort to secure, neutralize or destroy weapons and ammunition.

Institutional Structure
The UN DDR units, under the auspices of UNOCI, are assisted in the post conflict environment by ECOWAS, the African Union, and the State through the Government of National Reconciliation and the Election Commission.

Area of Activity

Disarmament and Demobilization

• To assist the Government of National Reconciliation in undertaking the regrouping of all the Ivorian forces involved and to assist in ensuring the security of their disarmament, cantonment and demobilization sites.
• To support the Government of National Reconciliation in the implementation of the national programme for the disarmament, demobilization and reintegration of combatants, paying special attention to the specific needs of women and children.
• To coordinate closely with the United Nations missions in Sierra Leone and in Liberia in the implementation of a voluntary repatriation and resettlement programme for foreign ex-combatants, paying special attention to the specific needs of women and children, in support of the efforts of the Government of National Reconciliation and in cooperation with the Governments concerned, relevant international financial institutions, international development organizations and donor nations.

Disarmament and dismantling of militias

• To assist the Prime Minister of the Government of National Reconciliation in formulating and monitoring the implementation of the Joint Operation Plan for the disarmament and dismantling of militias envisaged in article 4 of the Pretoria Agreement.
• To secure, neutralize or destroy all weapons, ammunition and other military materiel surrendered.

Resource Mobilisation

Budget, Financial Management Framework, Resource Mobilization Strategy
The cost of the disarmament, demobilization and reintegration programme for the period 2005-2008 is estimated at $150 million. The Government of National Reconciliation is expected to provide about 30 percent of the funding and has thus far contributed 14,000,000 USD. The World Bank is considering the provision of an $80 million grant and modalities and conditionality for the disbursement of the grant are currently in the process of being negotiated between the Ivorian Government and the World Bank. The approved multilateral and bilateral contributions to the DDR process, amount to 16 182 064 .67 USD. The total for all the DDR related projects is 22 482 064.57 USD. The multilateral and bilateral donors are the following: UNDP, UNICEF, France, EU, Japan, Belgium, Denmark, Sweden and Japan.

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Current Challenges and Updates

DDR is one of the main mechanisms that will be implemented to solve the Côte d’Ivoire conflict it is also closely linked to political progress in implementing the peace. The primary areas of focus will be to mainstream HIV/Aids programs in DDR, the formulation of mobile courts, and the establishment of identification centres, which will include an expansion in identification to all areas.

After negotiations at the October 2006 AU summit, the AU Peace and Security Council recommended that current President, Laurent Gbagbo and Prime Minister Charles Konan Banny remain in office for no longer than 12 months. These recent developments, as in the past, do not make any of Côte d’Ivoire’s current challenges any easier. A series of failed peace deals, an increase in human rights abuses, the postponment of elections that were to be held in October, 2006 and the Forces nouvelles continued refusal to give up arms until the existing nationality laws, which exclude individuals living in the north from gaining Ivorian citizenship, are reformed are just some of the major trials facing the country and, therefore, creating a series of political challenges for DDR related program work.

During a press conference at ONUCI, the Sanctions Committee President, Adamantios Vassilakis, outlined three major barriers within the peace process facing Côte d’Ivoire today, all of which are related to the challenge of disarming: (1) a credible process towards elections; (2) decision making on the issue of identity/nationality laws and (3) disarmament in an environment where the north and south interpret the process in the same manner. Without disarmament, there cannot be free and fair elections, or rather effective reintegration measures.

In October 2006, in order to expedite the disarmament process, and given the assurances given by the respective forces that the pre-cantonment of their troops had been completed by July 2006, it was proposed that the disarmament process should be relaunched and should start with the cantonment phase. In this regard, the verification, screening and profiling of combatants and the listing of their weapons would now be carried out during the cantonment phase of the programme. It was also decided to increase the number of cantonment sites to 17, including nine in the Forces nouvelles-controlled area and eight in the Government-controlled area. This may be delayed by a funding shortfall of $10 million which the PNDDR needs to complete the physical rehabilitation of the facilities at the cantonment sites by the end of December. Furthermore,, the World Bank continues to withhold the $80 million it had pledged to contribute towards the total cost of the disarmament, demobilisation and reintegration programme (estimated at $150 million, half of which would be provided by the Government of Côte d’Ivoire and other donors) due to unpaid arrears.

In order to facilitate the timely resumption of the disarmament process, it is also imperative that PNDDR and UNOCI receive the lists of combatants and weapons from the Forces nouvelles and the FANCI before the resumption of the disarmament programme. Work on reintegration opportunities to be provided to ex-combatants should also begin without delay, so as to ensure that there would be no gap between disarmament and reintegration programmes.