CONTENTS

The withdrawal or drawdown of a UN Peacekeeping Operation or a Special Political Mission represents a critical transition for a host country and the UN configuration and presence. On one hand, it signals progress towards peace and new opportunities to further consolidate development gains, but at the same time presents risks that need to be addressed through sustained investment in peacebuilding and longer-term efforts to overcome fragility so as to not lose such hard earned progress. The UN’s legacy in a country emerging from conflict depends largely on how it has supported national actors and coordinated with international and regional partners to consolidate the political and social gains made during the mission’s presence. 

If well-planned and well-managed, transition processes can increase the prospect of sustained peace and durable development. If ill-timed or mis-managed, such transitions can pose a challenge to previous peacebuilding efforts and may result in a relapse into conflict and protracted crises. While the UN has undertaken several transitions, withdrawals, and reconfigurations over several decades, the need for effective UN transition planning has gained considerable momentum and attention over the last 12 months, with the governments of DRC, Mali and Sudan initiating transition processes and with early transition mechanisms taking place in several mission settings, including Central African Republic (CAR), Haiti, Somalia and South Sudan.  

Across these handful of transition settings, many lessons can be drawn. What is the right sequence of activities for an effective drawdown? How does the Mission prioritize mandated activities as it scales down its activities both geographically and thematically? And how do Missions communicate this strategically and keep populations informed in the wake of disinformation and misinformation? How can we assess the effectiveness and even success of a transition? Do hasty withdrawals undermine the gains made during the timeframe of the UN’s presence? What are the significant challenges that departing missions face in ensuring business continuity with broader UN efforts in the development and humanitarian sphere?  

This edition of the DDR Bulletin seeks to delve into these questions, as well as highlight common challenges and lessons learned from national institutions, DDR and Community Violence Reduction (CVR) practitioners in field missions, partner organizations and UN colleagues who have worked within transition settings in a variety of contexts. In this regard, this Bulletin primarily focuses on the process of transitions through a Disarmament, Demobilization, and Reintegration (DDR) lens, considering how these may impact DDR efforts and legacy, reflecting on the contexts of DRC, Haiti, Mali, and Sudan.  

In order to ensure the broad scope of the Bulletin, the DDR Section has conducted over 20 interviews with a variety of different interlocutors serving different tasks and positions, from national staff to the heads of UN missions and representatives from key political partner institutions. 

The UN integrated DDR (Disarmament, Demobilization, and Reintegration) process holds paramount relevance in the broader context of transitions, particularly during post-conflict periods. DDR serves as a crucial component in transitioning from conflict to sustainable peace and development. DDR contributes to the reduction of security threats and the prevention of the resurgence of violence, whilst primarily aiming to reintegrate former combatants into society, fostering social cohesion, stability, capacity development towards a sustained peace approach. DDR programs aims to address the root causes of conflict, promoting reconciliation, and supporting the establishment of effective governance structures. In the context of UN transitions, DDR initiatives become instrumental in consolidating peacebuilding gains, bridging critical capacity gaps, and ensuring that the withdrawal of a UN mission leaves a positive and lasting impact on the political, social, and economic landscape of the transitioning country. The UN’s commitment to DDR underscores the recognition of the intricate link between disarmament, demobilization, and reintegration and the overarching goal of sustained peace and development in post-conflict environments. 

Transitions are important moments in the “peace continuum” of a country emerging from conflict. As such, ensuring pro-active, integrated, and forward-looking transition planning and management is a key priority. As transitions are highly complex and multi-faceted in nature, all posing their own unique set of challenges and dynamics, this Bulletin delves into the different perspectives of a variety of different stakeholders and actors, from DDR/CVR practitioners to national authorities, representatives from political institutions, UN colleagues and partnering organizations.  

The UN Transitions Project represents the UN’s key mechanism to advance the system-wide work on more proactive, integrated, and forward-looking transitions in the context of mission drawdown and withdrawal. The UN Transitions Project is comprised of the Development Coordination Office (DCO), Department of Peace Operations (DPO), Department of Political and Peacebuilding Affairs (DPPA) and United Nations Development Programme (UNDP). Initiated in 2014, the Project works to ensure that UN transitions result in a better positioning of the UN and its partners to support host countries move from conflict to sustainable peace and development. The Project provides country support, identifies, and shares lessons and good practices, and strengthens operational and policy coherence on transitions-related issues.  

Meet the UN Transitions Project

In Conversation with the UN Transitions Project

How have transitions evolved?

In the past, UN transitions used to take place in environments marked by relative stability and peaceful handovers of power (e.g., Liberia, Mission closure in 2018; Sierra Leone, Mission closure in 2014; and Côte d’Ivoire, Mission closure in 2017). Today, the global context has profoundly changed and ongoing (e.g., DRC, Mali) and accelerating transition processes (e.g. CAR, Somalia, Sudan, and South Sudan) are unfolding in more complex settings, where security challenges and protection gaps persist, and root causes of conflict have not been fully addressed.

The UN’s approach to planning and managing transitions has evolved considerably over the last decade: from viewing transitions as a ‘hand-over of residual activities’ towards a forward-looking approach that aims to support national stakeholders and key partners towards successfully consolidating peacebuilding gains.

What policy and guidance is there available in managing UN Transitions?

The commitment to better plan and manage transitions is at the core of the Secretary-General’s reforms of the peace & security and development pillars; it has been mainstreamed into the Action for Peacekeeping (A4P) Initiative and the Sustaining Peace agenda, and implementation of the findings of the UN Integration Review account for early transition planning. In particular, the SGs Planning Directive for the development of consistent and coherent UN Transition processes, issued in February 2019, continues to guide UN Missions, Country Teams, and HQ entities, particularly on early integrated planning and financing, operational support, and staffing. Building on existing policy and guidance on UN integration, it provides a framework to advance both a development and a peace and security approach in the context of UN transitions, to sustain peace and development gains, reduce the risk of relapse into conflict, and help set countries on a path towards achieving sustainable development. In addition, with the adoption in late 2021 of the first- ever Security Council Resolution (SCR) on transitions, UN SCR 2594, Member States have expressed their commitment to further developing how the UN system prepares for transitions. This has been reflected in the SG’s Report on Transitions in Peace Operations of 2022 that provided an organization-wide analysis of the most pressing transition-related challenges that need to be tackled in the coming years and going forward charts a roadmap for collective action.

Building partnerships and making transitions less UN-centric

Experience from past transitions has shown that partnerships – with the host country, with bilateral and multilateral partners, regional organizations and International Financial Institutions – are of utmost importance for a successful and sustainable transition from a UN mission to the Country Team. The Transitions Project therefore closely cooperates with a plethora of partners, including Member States, the European Union, the World Bank, academia, research institutes, and others to ensure that the reconfiguration of the UN presence is a joint endeavor that leverages existing resources and creates a momentum for future engagement. A good example of this cooperation is the joint UN-EU workshop on transition partnerships that recently took place in the Democratic Republic of Congo and focused on strengthening cooperation in areas such as DDR, SRR and Protection of Civilians putting particular emphasis on aligning existing activities and creating mechanisms that allow for a close cooperation and coordination between the UN and its partners.

The UN Organization Stabilization Mission in the Democratic Republic of the Congo (MONUSCO) is also undergoing a transition, with the Congolese government calling for its accelerated drawdown to begin by the end of 2023. The DRC, with its history of conflict and complexity, presents lessons for the UN in managing transitions. The UN Security Council renewed MONUSCO’s mandate on December 19, 2023. The Security Council on September 1, 2023, called for the mission’s accelerated withdrawal to commence at the end of 2023, the government and the mission’s signing in November of a disengagement plan to implement this accelerated withdrawal, and the general elections slated for December 20, 2023. The past two months have seen renewed fighting between the Armed Forces of the DRC (FARDC), the M23 rebel group, and other armed groups. The Nairobi and Luanda peace processes were disrupted by the resumption of hostilities and heightened tension between the DRC and Rwanda. The security and humanitarian conditions continue to worsen in the eastern provinces of the DRC, with persistent threats to human rights and the protection of civilians. 

The UN’s role in the DRC underscores the need for adaptable strategies that consider the fragmentation of armed groups, political instability, and resource constraints. The transition in the DRC reinforces the idea that successful DDR requires not only disarmament and demobilization but also comprehensive approaches addressing the root causes of conflict. Lessons learned stress the importance of sustained engagement, sufficient resources, and collaboration with local authorities and international partners for a successful transition. 

An interview with Daniel Maier

Peacekeepers from the UN Multidimensional Integrated Stabilization Mission in Mali (MINUSMA) are in the final processes of leaving Mali under difficult circumstances following the ending of the mission’s mandate in June 2023 and withdrawal from the country by end of 2023. The UN’s engagement in Mali underscores the complex nature of transitions in conflict-affected regions. The situation in Mali has been marked by multifaceted challenges, including insurgency and political instability. Lessons learned from the Mali transition emphasize the importance of comprehensive approaches that address not only security concerns but also the underlying socio-economic factors contributing to conflict. The need for effective coordination with regional partners and local stakeholders remains critical for sustainable peacebuilding. 

Haiti’s ongoing challenges have placed a spotlight on the complexities of transitions in fragile states. The UN’s engagement in Haiti emphasizes the importance of long-term commitment and resilience in the face of persistent socio-economic and political difficulties. Lessons learned from Haiti highlight the need for integrated approaches that prioritize both immediate stability and enduring development. Effective communication and coordination with local communities are crucial elements in navigating the intricacies of a successful transition. 

Considering that Transitions are a complex and multifaceted in nature, it is highly important to consider the perspectives of all those involved. Click on the following buttons to find interviews of various different stakeholders and their perspective on transition processes in Haiti:

The UN Multidimensional Integrated Stabilization Mission in Mali (MINUSMA) has formally closed on 31 December 2023 under difficult circumstances following the ending of its mandate in June 2023. The UN’s engagement in Mali underscores the complex nature of transitions in conflict-affected regions. The situation in Mali has been marked by multifaceted challenges, including insurgency and political instability. The recent MINUSMA’s withdrawal from Mali suggests that emphasis should be placed on the importance of comprehensive approaches that address not only security concerns but also the underlying socio-economic factors contributing to conflict. The need for effective coordination with regional partners and local stakeholders remains critical for sustainable peacebuilding.

An interview with Marie Chantal Lumba Tshimanga

Based on your overall experiences with the UN, what insights can you share for the colleagues working on transitions, particularly in terms of processes, which have proven valuable in supporting sustainable efforts? 

The transition concerns the period between the signing of the peace agreement and the effective and comprehensive implementation of the DDR process. DDR depends greatly on the political and security situation, operations remain technical and require good coordination and the involvement of all stakeholders in the process. Despite the challenges to overcome in supporting the DDR process in Gao, as DDR officer, the section supported and coordinated: 

1. Identification and implementation of MINUSMA financed projects to reduce community violence (From 2014 to 2023 more than 50 CVR projects were implemented in Gao region);
2. Support for Accelerated DDR and integration operations into the regular army through the Operational Coordination Mechanism (MOC);
3. Support for the socio-economic reintegration program for women associated with armed groups. In the Gao region, this process enabled the biometric registration of 206 women associated with armed groups from both signatory and non-signatory armed movements who benefited from a World Bank supported socio-economic reintegration program. MINUSMA provided a reintegration kit and a safety net to each beneficiary.

Drawing from your personal experience in Mali, what are the main challenges that come to mind when reflecting on key transition moments?

Challenge 1: The constantly changing context in which DDR was taking place in Mali is the main challenge. These initiatives were being implemented while clashes between the national army and armed groups went on. 

Who will lay down their arms first if each armed group rival fears revenge attacks against them and the communities they claim to protect? At the same time, after laying down their arms, who will be able to protect communities? And how can civilians be sure that returning ex-combatants are not acting on past grudges? 

Challenge 2: Unclear/or adaptable expectations of the armed groups signing the peace agreements. Like any other intervention in a sector as sensitive as security, DDR is shaped, facilitated and limited by the context in which it takes place. In the past, armed groups have been seen as a springboard for their leaders to high-level positions in the military, government or national politics. These setups generally benefited high-ranking individuals, turning ordinary soldiers into tools for their own professional gain. 

Challenge 3: The fundamental lack of trust between the government, armed groups and communities. The government and army have reneged on promises to armed groups in the past, particularly regarding demobilization and community reintegration. 

Challenge 4: The overall reintegration delays for ex-combatants. The willingness of ex-combatants to demobilize and reintegrate is naturally greatly influenced by the availability of alternative livelihoods and employment. In the Gao region the reality faced was that ex-combatants became a threat to the continuation of the DDR process. 

Challenges 5: Poverty and community violence. 

In a situation of extreme socio-economic difficulties, the financial flows to which demobilization and reintegration programs are attached have produced benefits for the leaders of armed groups, combatants and political elites. 

It is therefore not surprising that many communities perceive reinsertion/ reintegration programs as a reward for those who engage in armed conflict, thus oftentimes resulting in one of the reasons for the rejection of ex-combatants by the host communities. 

In conversation with Ndiaga Diagne

Whilst there may not be a one-size-fits all approach to transitions, as the examples of DRC, Haiti, Mali, and Sudan, , have demonstrated, the insights provided in this Bulletin have highlighted the existence of several strategies and practices which have proved beneficial in past transition processes. DDR/CVR/Weapons and Ammunition Management (WAM) practitioners must recognize that transitions provide an opportunity to establish meaningful partnerships and to ensure full implementation of national ownership. Transitions allow DDR/CVR/WAM practitioners to collaboratively redefine priorities, roles, and responsibilities with national institutions, consolidating gains through new cooperation modalities.

All modules of the IDDRS have now been finalized and validated by the IAWG-DDR since the publication of the last DDR Bulletin. including module 5.10 regarding Women, Gender and DDR and module 6.20 addressing Transitional Justice an DDR. The operationalization includes disseminating the updated standards with practitioners in the field to support work on the ground.

Two modules have been validated by the IAWG-DDR since the publication of the last DDR Bulletin, namely 5.10 Women, Gender and DDR as well as 6.20 Transitional Justice and DDR.

With thanks to Thomas Kontogeorgos, Kwame Poku, Markella-Eleonora Mantika, Beatrice Hagan, Cheriff Musombo, Osama Abdelaziz Mahmoud Abbas, Aimee Therese Faye Diop, Louise Bosetti, Jeanne Ni Bhriain, Janvier Mushengezi and the DDRS team. Special thanks to all those who have worked and/or are currently working on UN DDR/CVR transitions.