The United Nations- African Union Mission in Darfur (UNAMID) has come to an end. Yet, as Sudan welcomes a newly-established Special Political Mission (United Nations Integrated Transitional Mission in Sudan – UNITAMS), it is crucial to reflect on the mission and the role DDR played during its time under UNAMID.

This article provides a comprehensive retrospective of DDR in Darfur. It touches upon DDR decisive presence when signing the Peace Agreements, the limitations of launching DDR programs in non-inclusive treaties and the impact of cross-fertilization among missions. Darfur is in fact a story of how DDR had to adapt to the context and shape itself to the country dynamics to endure.

FIRST STEPS TOWARDS PEACE

The Darfur Peace Agreement (DPA) was the first major milestone in the long peace process. The Government of Sudan together with a major rebel faction, the Sudan Liberation Movement/Army (SLM/A), signed this agreement under the support of the African Union (AU), the UN and other partners in 2006. DDR was central to the DPA final security arrangements. UN DDR advisors were specifically involved in the Darfur peace talks, they provided technical assistance to the parties and supported the drafting of the agreement. Their presence ensured that several DDR related tasks were included in the DPA. At the time, it was the AU Mission in Sudan (AMIS) that undertook such tasks which were subsequently inherited by the joint UN/AU mission in Darfur (UNAMID).

Nevertheless, several areas in the DPA required clarification and further negotiations on the ground. For instance, the establishment of a clear institutional framework to plan and manage the DDR process, including representation of the UN in these institutions at the highest level; links with the other Sudanese DDR programmes; the role of the National DDR Commission in Darfur and more. In hindsight, it is now evident that less ambiguity in the DPA would have allowed the implementation of a more transparent programme and assisted in better defining the Mission’s mandate and resource requirements for DDR.

CREATION OF UNAMID

As anticipated, in 2008 the AU together with the UN deployed an unprecedented hybrid operation named UNAMID under the Security Council Resolution 1769 (2007). The resolution comprised a mandate which included the “establishment of the DDR programme called for in the DPA” (S/2007/307/Rev.1). CVR, then in its early stages in Haiti, was not mentioned in the mandate. Interestingly, while CVR was never explicitly included in the UNAIMD mandate, CLIPs and subsequent stabilization activities were implemented under the DDR mandate, as both the  interventions served the same strategic objective.

NEW AGREEMENT, old challenges

A subsequent round of negotiations, which lasted two and half years in Doha, Qatar, led to the signing of the Doha Document for Peace in Darfur (DDPD) on 14 July 2011 by the Government of Sudan and the Liberation and Justice Movement (LJM). During the negotiations, UNAMID provided technical expertise, including DDR experts, who played a significant role in assisting the creation of the final security arrangements provisions of the DDPD agreement. DDR tasks were mentioned multiple times in the DDPD.

However, the DDPD, similarly to the DPA, was non-inclusive, given that the two main armed movements i.e., Justice and Equality Movement (JEM) and the Sudan Liberation Army/Abdul Wahid (SLA/AW) along with other non-signatory movements did not take part in the discussions or signing and refused to commit to the resumption of talks. Aderemi Adekoya, UNAMID Chief of Service – DDR/Deputy Chief of Staff, and Isa Macedoine, UNAMID DDR field officer, both confirmed in separate interviews that this is what prevented the implementation of many elements in the agreement, posing a serious challenge for a viable DDR programme in Darfur to take off. Nevertheless, Mr. Adekoya also mentioned that a DDR programme for the LJM combatants was supported by UNAMID, however, on a limited scale. Overall, 11,000 combatants (signatory armed groups) were demobilized in Darfur, despite challenges.

Moreover, efforts were made through the DPA and DDPD to achieve peace in Darfur. Both documents made provisions for the disarmament, demobilization and reintegration of ex-combatants and addressed the issue of civilian small arms proliferation. Yet, implementation, due to the non-inclusive nature of the peace agreements, was the challenge.

LEARNING FROM HAITI

Given that DDR activities mentioned in the peace agreements did not take off fully, an alternative path had to be designed. In January 2012, the UNAMID DDR Section and UNHQ DDR colleagues visited the UN Stabilization Mission in Haiti (MINUSTAH), where the first Community Violence Reduction (CVR) programme – one of DDR measures – had been established in 2006. This visit was a decisive moment for the reshaping of the DDR process in UNAMID according to Mr. Adekoya. There, the UNAMID DDR team familiarized itself with the CVR methodology and brainstormed with MINUSTAH CVR colleagues about the kind of projects that could be established in an environment where no real economy exists. Following the visit, UNAMID DDR Section components adapted the CVR approach to Darfur’s context and developed distinctive CVR measures under the moniker CLIPs (Community-based Labor-Intensive Projects). Cross-fertilization would soon lead to a DDR success in UNAMID (see Voices of Darfur).

DDR METAMORPHOSIS

By mid-2012, UNAMID had operationalized CLIPs, a community stabilization and violence reduction programme that bridged the gap between jobless youth and lack of training and employment opportunities in the country. Mr. Adekoya remarked that “through CLIPs, we provided youth with skills so when an opportunity for a job is created by the government they can be absorbed as they possess the capacities needed.” Moreover, the projects implemented were twofold. The provision of vocational skills training on specializations that are high on demand on the local market (e.g., welding, metal works, computer training, carpentry) so youth participants could later open their own business. Alternatively, the engagement of at-risk youth in temporary employment opportunities, specifically, construction activities where learning was provided on the job while building schools, hospitals.

As it occurred in Haiti, CVR was a success in Darfur. As a recognition of its contribution to peace and stabilization in Darfur, in October 2014, UNAMID’s CLIPs programme received the UN 21 Award, for Outstanding Vision. The UN 21 Awards provide “recognition to staff members for innovation, efficiency and excellence in the delivery of the Organization’s programmes and services” (UN21, 2015). Also, in 2015, the section was declared the Country Winner for Sudan of the 2014 Saville Foundation Pan-African Awards for Entrepreneurship in Education.

One of many successful stories is of Rawda Mohamed who received training in tailoring and sewing. She said, “I had no tailoring skills before, but now I run my own tailoring workshop. My daily income is sufficient enough to live a good life. CLIPs have significantly changed my life. I consider myself socially and economically empowered” (see the source article by Elzarov Z.).

In the beginning of 2015, the programme evolved from the initial concept of CLIPs into Community Stabilization Projects (CSP). Until 2019 the CSPs focused on promoting community security, strengthening governance, institution development and community empowerment, amplifying access to basic social and economic services and creating durable solutions for conflict-affected communities. Isa Macedoine reminisced that “by reorienting the DDR program into CLIPs and later into CSP we gained the flexibility needed to help stabilize fragile communities and reach out to vulnerable groups, including women, instilling hope of life outside of conflict.”

CLIPs and subsequently CSP contributed to building confidence and changing perception about UNAMID. From 2012 to 2019 they supported over 10,000 youth and vulnerable community members, becoming one of the most important and widely implemented UNAMID programmes in Darfur to assist the Government of Sudan to address the socio-economic exclusion of youth-at-risk. By promoting alternative livelihood and capacity building opportunities, strengthening the resilience of local communities and bolstering peacebuilding, these projects reduced community violence, prevented the recruitment of youth in armed movements and combated unemployment, so to build the foundation for long-term development and stability.

MISSION ACCOMPLISHED?

In May 2019 the DDR programme implemented in Darfur was concluded and, on 31 December 2020, UNAMID terminated its mandate. While not officially referenced, CVR-type activities directly contributed to the implementation of UNAMID’s mandate related to DDR. In the view of Zurab Elzarov, UNAMID senior DDR officer, “we – the DDR team – tried to explain to the general public and the government the link between CVR and DDR but clarity of how CLIPs projects are part of a CVR programme and CVR is a part of the greater DDR programme was not achieved. A lesson learnt is to better familiarize everyone – from the very beginning – on CVR and how it links to DDR.” This will avoid controversies on what to account as a DDR success as it occurred in UNAMID.

Nevertheless, evidence highlights that the projects contributed to the social and economic development of Darfur, which helped reduce violence and promote peace. Hence, through education and employment opportunities, communities became more secure and CVR beneficiaries chose not to use weapons, focusing on rebuilding their communities.

For instance, in Nyala, South Darfur State, every year over 100 young women and men have benefitted from CLIPs vocational skills training. Zakaria Idris, is one of these and expressed how: “It was a dream. Now, it is a reality. I work as a car mechanic. My work is profitable and enjoyable. I have many customers from different communities of South Darfur. I see myself being a useful citizen and adding my input into stabilization of my country.” Yet most interestingly he added that “I thank UNAMID for not just helping me become a car mechanic, but for that I also changed and better understand that weapons are most likely to harm us than bring us any good.” Thus, emphasizing how CLIPs projects also raised awareness about disarmament within communities.

DDR in Sudan is a tale that carries on beyond UNAMID. Following the Juba Peace Agreement in October 2020, the new and significantly smaller Special Political Mission – UNITAMS – has a steep mountain to climb to deliver on its broad mandate which includes DDR. But the recent political developments in Sudan have gained further momentum and many see it as an historic opportunity to finally curb the violence that affected the country for decades. Learning from past mistakes needs to be matched with both innovative and durable solutions. With both CVR as well as weapons and ammunition management at the core of such a new approach, there is reason for a newfound optimism about the future of DDR in Sudan. The story continues.

CVR – SOP

The joint DPO-DPPA-DOS Standard Operating Procedure (SOP) on Community Violence Reduction (CVR) in DDR Processes, developed by the DDR Section (DDRS), has now been signed by the USGs of DPO (Jean-Pierre Lacroix), DPPA (Rosemary DiCarlo) and DOS (Atul Khare).

The new SOP aims to provide procedural guidance and a harmonized approach to the management and implementation of CVR programmes funded, wholly or partially, by the assessed budgets of field missions. The SOP reflects good practices from programmatic activities implemented by field missions and it specifically builds on the revised Integrated DDR Standards which set out guiding principles for CVR programmes.

CVR is a flexible approach to preventing and reducing community violence. CVR programmes can be implemented before, during and/or after a DDR programme as they are designed to contribute, by way of complementarity, to the strategic objectives of the DDR programme. CVR is distinctively bottom-up in orientation and serves as a short-term security and stability measure helping facilitate a better relationship between target communities, the local and national governments and the mission, which may improve the implementation of the broader DDR process. Given the added value of CVR to DDR processes has already for some time been broadly acknowledged, the SOP fills the long-standing guidance gap on CVR.

The SOP is binding for all DDR/CVR staff in peacekeeping operations who are involved in the initiation, planning, execution, and monitoring and evaluation (M&E) of CVR programmes. Other partners and contexts are also recommended to adhere to the SOP, which would serve to ensure effective coordination within the United Nations country team and to avoid duplication of projects in the same intervention area.

Weapons and Ammunition Management (WAM)

Savannah de Tessières, author of the Handbook, introduced the 2nd edition that reflects relevant developments at the policy level, including the revised Integrated DDR Standards and the MOSAIC module on SALW control in the context of DDR, and ensures consistent gender mainstreaming as well as systematic integration of youth considerations.

The virtual event also showcased concrete support currently provided to national authorities in Haiti in the framework of the joint DPO-ODA technical assistance mechanism. The United Nations Integrated Office in Haiti (BINUH), United Nations Development Programme (UNDP), United Nations Regional Centre for Peace, Disarmament and Development in Latin America and the Caribbean (UNLIREC) and United Nations Institute for Disarmament Research (UNIDIR) demonstrated strong multi-partner collaboration in assisting the Haitian authorities in the establishment of a comprehensive WAM regulatory framework, in line with international and regional arms control instruments.

DDR Revision of its SOP on M&E

On 25 February, the DDRS conducted a preliminary presentation to the Guidance Focal Point Group (GFPG) on the revision of its Standard Operating Procedure (SOP) on Monitoring & Evaluation (M&E) for DDR.

In responding to the Member States’ call for increased transparency and accountability, the DDR Section was in 2010 among the first entities in the UN Secretariat to develop its own guidance on M&E. In line with the Action for Peacekeeping (A4P) Initiative, the revision aims at further promoting a culture of performance and accountability. The revision builds on an in-depth evaluation conducted by DPET on M&E practices in DDR programmes in 2017-18 and subsequent consultations. The DDRS is also working with partners on the delivery of an M&E training to DDR field practitioners.

NATO and DDRS collaboration on WAM

On 12 April, DDRS and ODA met with NATO to exchange on opportunities for collaboration on weapons and ammunition management, including through the joint DPO-ODA initiative on “Effective WAM in a Changing DDR Context”.

During the fruitful discussion, concrete entry-points for increased partnership were identified, including DDRS participation in the quarterly coordination meeting on Small Arms and Light Weapons (SALW) organized by NATO, as well as DDRS’s potential contribution to NATO’s web-portal on SALW projects and its annual training course on SALW. NATO and DDRS also agreed to stay closely in touch on potential country-specific projects and assistance on WAM in NATO’s focus regions, including MENA and the Sahel.

African Union (AU) – DDR Capacity Programme 2021

DDRS met with the World Bank (WB), the United Nations Office to the African Union (UNAOU), and the AU counterparts as part of the AU DDR Capacity Programme (AUDDRCP), to set the agenda for 2021.

Within the AUDDRCP, initiated in 2012, DPO, the World Bank and the UNOAU provide technical assistance to Member States, including GoDRC, Regional Economic Communities (RECs) and Peace Support Operations (PSOs) in designing and implementing DDR processes. The third phase of the program (covering 2019-2021), seeks to (i) streamline DDR in the overall political and conflict resolution processes across the continent; (ii) reinforce operational response through urgent technical and capacity support to Member States and PSOs; and (iii) foster institutional capacity building, knowledge management and cross-institutional learning in line with the national and regional policy frameworks, including the African Peace and Security Architecture (APSA) framework as well as the Silencing of the Guns in Africa.

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Why DDR? How did your previous career lead you to becoming a DDR practitioner and eventually DDR Chief?

Je suis tombé dans le DDR par hasard en 2003. J’étais militaire détaché pour un an à la Monuc au poste d’adjoint du directeur de la section DDRRR. A cette époque la MONUSCO était surtout préoccupée par le rapatriement des FDLR au Rwanda. Le directeur m’avait laissé la partie DDR naissante. J’ai participé avec les responsables congolais et la Banque mondiale à l’élaboration du plan DDR de la RDC. Un an plus tard je quittais l’armée et je rejoignais la WB comme consultant pour la mise en œuvre du programme. J’ai beaucoup appris sur le DDR pendant cette période et surtout j’y ai noué des liens solides. Je suis ensuite passé par la Côte d’Ivoire, la Monusco encore où j’ai remplacé mon ami Gromo après son décès et enfin la RCA. Je suis resté DDR pendant quinze ans. 

As a Chief of Section, what was a normal day like for you? What part of your work did you find the most satisfying?

Il n’y a pas de jour »normal » pour un chef de section DDR. Chaque jour est un challenge. En théorie la mission semble toujours simple, désarmer et réinsérer socialement tel groupe armé. La mise en œuvre est beaucoup plus complexe et différente dans chaque pays: comment monter des camps pour des centaines de combattant au milieu de nulle part, que faire de leurs familles, comment trouver des budgets et comment les utiliser, comment transporter des milliers de combattants, que faire de déserteurs étrangers qui veulent rentrer dans leur pays d’origine, comment amener à la table de négociation une douzaine de chefs de groupes armés qui se haïssent etc etc. Le plus exaltant c’est que l’on trouve toujours une solution.  

What key challenges did you face as a DDR Chief? 

Je pense que tous les chefs de section DDR font face aux mêmes challenges majeurs: concevoir un plan DDR réaliste et réalisable, le lien avec les groupes armés, la confiance des gouvernements, la recherche de budgets conséquents, l’utilisation de ces budgets suivants les règles internationales très strictes, les achats de kits, la réinsertion de combattants dans des pays en crise avec de très faibles capacités d’absorption économiques, la capacité de s’adapter à des situations particulières comme le CVR en RCA. Et surtout, avoir toujours un plan B!

What are you most proud of in DDR?

Avant d’être fier je suis triste de certains échecs ou de situations humaines tragiques, le plus souvent par manque de volonté de la Communauté internationale. Ce qui me tranquillise c’est de penser à tous ceux que l’on a pu aider, aux femmes et aux enfants que nous avons sortis de la violence,à ceux que nous avons pu reconduire chez eux,  aux régions apaisées. Ce qui m’a beaucoup marqué pendant ces quinze années ce sont les rapports humains, les liens de confiance et de respect liés avec les partenaires nationaux, les staffs UN, les partenaires internationaux comme les collègues de la Banque mondiale qui m’ont fait confiance pendant toutes ces années et toute l’équipe de NYHQ toujours prête à nous soutenir et nous aider. J’en garde une profonde gratitude. 

Techniquement je suis fier de nos réussites, nombreuses. Particulièrement la mise en œuvre d’un centre des opérations conjointes en RDC avec une équipe transport qui nous a permis de déplacer et de démobiliser en une année plus de 30 000 combattants. Plus récemment en RCA, le mise en œuvre de programmes de réduction de la violence communautaire, l’achat et le transport de marchandises pour ces plan a été un challenge énorme. Merci à tous ceux qui ont participé. 

A “Peace and Reconciliation” monument soon to be erected on the ashes of weapons in Bouar (CAR) 

What is your perspective at the current evolution of Peacekeeping? Where do you think it is going? What is your opinion of Action for Peacekeeping (A4P) and its application in the field?

C’est une question très difficile. Cependant il semble que le peacekeeping soit actuellement  absent des zones de crises majeures. Cela n’augure rien de bon. 

How has DDR changed throughout your career? Has there been a development of DDR? If yes, in what direction?

Quand j’ai commencé, le DDR était vraiment très technique et « réglementé « avec quelques variantes comme le rapatriement de combattants étrangers dans leur pays d’origine. Au fil du temps le DDR s’est adapté à de nouvelles missions et à de nouveaux théâtres. Il est d’ailleurs surprenant de voir combien les staffs DDR peuvent être inventifs et opiniâtres quand il s’agit de mettre en œuvre des programmes de développement et de réduction de la violence. D’autant plus qu’il n’existe pas réellement de cursus universitaire pour cette activité. Heureusement les différentes formations qui sont données comme par exemple par le FBA (Folke Bernadotte Academy). Ici, il faut bien reconnaitre l’importance qui est désormais attachée à l’aspect politique de DDR ; personnellement j’ai toujours eu le sentiment très fort, dès ma première mission en RDC , que le DDR était avant tout politique et extrêmement sensible.  

Looking back at your career what was the most impactful experience that changed you as a person?

Je l’ai déjà dit plus haut, ce qui m’a le plus touché en tant qu’homme au-delà de la réussite de certains programmes ce sont les relations humaines avec l’ensemble des personnes pour qui et avec qui j’ai travaillé. La confiance de combattants, de partenaires, de mes chefs m’ont beaucoup marqué. J’y pense très souvent.

In your belief, how will DDR evolve in the future? Where and into what should DDR evolve?

C’est encore une question difficile. Le DDR évoluera avec le peacekeeping. Mais il faudra toujours des hommes ou des femmes capables de concevoir un plan de désarmement réaliste mesurant toutes les conséquences sociales et économiques. Le DDR est un outil formidable, pas une baguette magique. Les chefs de mission qui sauront s’en servir pourront réaliser de grandes choses. A condition qu’il y ait une réelle volonté de la part de la Communauté internationale et des moyens adaptés aux missions données. 

Je n’ai pas servi dans les zones touchées par le terrorisme. Je n’en connais pas bien les aspects alors j’évite de donner mon avis. 

Les programmes de développement et de réduction de la violence sont des pistes mais certainement pas les seules. Je sais que les staffs DDR s’adapteront aux situations futures.

Team Bangui

Events

High Level Launch Event of the joint DPO/BICC Study on The Future of DDR

Agenda: High-level discussion on the Study, and launching of the Virtual DDR Senior Officers Symposium

Date: 22 June, 2021

Training Opportunities

The recently updated Compendium of DDR Training Courses provides an overview of training opportunities provided by the United Nations System, by partner organizations, and training institutes. Upcoming opportunities include:

Disarmament, Demobilization and Reintegration of former combatants (DDR)

Training provider: Folke Bernadotte Academy (FBA)

Format: Online

Date:  6 September – 22 October 2021 

Link: https://fba.se/en/how-we-work/courses/upcoming-courses/