In this keynote address, Valentine Rugwabiza, Special Representative of the Secretary-General (SRSG) and Head of United Nations Multidimensional Integrated Stabilization Mission in the Central African Republic (MINUSCA), highlights the critical achievements of Community Violence Reduction (CVR) initiatives in the Central African Republic. She reflects on how these efforts are fostering sustainable peace, strengthening community resilience, and supporting long-term stability in the region. 

Ms. Valentine Rugwabiza of Rwanda was appointed Special Representative of the Secretary-General for the Central African Republic (CAR) and Head of MINUSCA on 23 February 2022 by UN Secretary-General, António Guterres. With more than 30 years of experience in Africa development and security issues in both the public and corporate sectors, Ms. Rugwabiza has been a Cabinet member, a senior diplomat accredited to several countries and organizations, and a senior leader in national, regional and multilateral entities.

Since 2016, Ms. Rugwabiza has been her country’s Permanent Representative to the United Nations and non-resident Ambassador to Colombia and Jamaica. Between 2024 and 2016, she served as Minister for East African Community Affairs and Member of the East African Legislative Assembly. From 2013 to 2014, she was Chief Executive Officer of the Rwanda Development Board and a Member of Cabinet.

From 2005 until 2013, Ms. Rugwabiza served as the Deputy Director-General of the World Trade Organization (WTO) in Geneva. Before that, she was Rwanda’s Permanent Representative to the United Nations Office at Geneva and United Nations specialized agencies, as well as Ambassador to Switzerland, from 2002 to 2005.

Ms. Rugwabiza speaks English, French, Kiswahili and Kinyarwanda.

Beyond its reputation as a technical process, DDR is inherently political, shaping power dynamics and laying the groundwork for durable peace in fragile and conflict-affected settings. Located at the nexus of security, politics, and humanitarian support, DDR not only disarms combatants and reintegrates them into civilian life but is also influenced by and can influence broader political processes. For example, the mediation and negotiation process in a given country can have a direct influence on the national DDR program and architecture, shaped by the agreement reached and its DDR specific clauses.  On the other hand, DDR tools can support armed groups to transform into legitimate political actors and address structural grievances. In this way, DDR can recalibrate power relations and support fostering a more inclusive governance and political environment. DDR, therefore, can become a crucial element in sustaining peace by directly influencing political processes.

However, today’s rapidly evolving conflict landscape — marked by fragmented armed groups, violent extremism, and cross-border dynamics — poses new challenges. UN support in these contexts, from Peacekeeping Operations to country teams, must adapt, and so must DDR. The 2025 Peacebuilding Architecture Review (PBAR) will offer a timely opportunity to take stock of the United Nations’ peacebuilding efforts and, crucially, to refine DDR’s role within the wider peacekeeping continuum.  

In this edition, the bulletin delves into the politics of DDR and its expanding role in the peace continuum, spotlighting partnerships, innovations, and practical lessons from the field. It opens with a high-level reflection on the broader significance of DDR and CVR, featuring a keynote address by Valentine Rugwabiza, the Special Representative of the Secretary-General (SRSG) for the Central African Republic and Head of MINUSCA, and interviews with H.E. Ambassador Mohamed Edrees and Sara Pantuliano, both appointed as Independent Eminent Persons (IEP) for the PBAR (Chapter 2).

Next, the new “Partnerships in Focus” chapter showcases UNESCO’s unique contributions to CVR, illustrating creative approaches taken by partner organizations (Chapter 3). This leads into a regional discussion on DDR’s intersection with policies like the Post-Conflict Reconstruction and Development (PCRD) policy, reflecting on the African Union Peace and Security Council meeting in Kinshasa and its implications for peace, security, and prosperity in Africa (Chapter 4).

Chapter 5 introduces an ongoing collaboration between the Berghof Foundation and the DDR Section, which explores the intricate relationship between DDR and the political transformation of armed groups. A retrospective in Chapter 6 revisits former CVR projects in Mali, offering insights one year after the withdrawal of MINUSMA.

The bulletin concludes with field updates, recent publications, and a preview of upcoming events, ensuring readers stay informed of the latest developments (Chapters 7, 8, and 9).

Despite its proven potential, DDR continues to face significant hurdles. Limited resources, political constraints, and complex stakeholder dynamics often undermine its full impact. Addressing these challenges requires stronger national ownership, deeper international collaboration, and sustained funding. The insights and experiences shared throughout this bulletin highlight the innovative efforts of diverse actors in DDR and CVR—efforts that are continuously evolving to meet the evolving demands of global peace and security.

Sustaining peace demands more than disarmament alone. Effective reintegration must be embedded within broader governance reforms, economic development, and transitional justice processes. This comprehensive approach reinforces DDR’s vital role in bridging the gap between immediate post-conflict stabilization and long-term peacebuilding. As the case studies, partnerships, and reflections presented here demonstrate, DDR and CVR are not isolated tools but integral components in fostering inclusive, resilient societies and laying the groundwork for sustaining peace.  

Partnerships in focus: UNESCO’s role in cvr and sustaining peace

The new “Partnerships in Focus” category of the DDR Bulletin begins by exploring UNESCO’s pivotal role in DDR and CVR programs, particularly in the context of sustaining peace. As the preamble to its Constitution asserts:

“Since wars begin in the minds of men, it is in the minds of men that the defenses of peace must be constructed.”

This philosophy underscores UNESCO’s deep connection to the politics of DDR and its relevance to peacebuilding frameworks.

Through its multifaceted mandate, UNESCO addresses the structural and societal dimensions of sustaining peace. By leveraging education, culture, communication, and environmental sustainability, the organization offers innovative pathways for reintegration, conflict prevention, and socio-economic stability. These efforts align closely with the Sustainable Development Goals (SDGs), particularly SDG 16 on peace, justice, and strong institutions. We asked our UNESCO partners how their unique programs and initiatives foster peacebuilding and reintegration through five guiding questions. Below are the highlights:

1. How does UNESCO’s mandate connect to issues of international peace and security, specifically regarding DDR?

2. What unique contributions can UNESCO make to enhance the effectiveness of DDR and CVR programs?

UNESCO’s work in the field of culture offers unique contributions to DDR and CVR programs by leveraging cultural heritage to foster financial resilience, social inclusion, and psychosocial well-being. This cultural approach addresses the deeper challenges of reintegration and peacebuilding in innovative ways.

UNESCO’s efforts include raising awareness and preparedness around the protection of cultural heritage. Formal DDR programs can benefit from the training and sensitization of regular armed forces and law enforcement agencies on safeguarding cultural and natural heritage.

Similarly, reintegration of various individuals/communities as part of formal DDR programs, but also in the context of CVR activities could involve their participation in skills development and cash-for-work initiatives supported by UNESCO, for example for the rehabilitation of cultural heritage sites. Participants not only gained skills but also strengthened their financial stability, demonstrating how cultural preservation can simultaneously address economic and social challenges. By embedding cultural heritage into reintegration processes, UNESCO however also ensures that these programs transcend material support to include elements that promote social cohesion and identity.

Beyond financial resilience, culture can also be a powerful tool for mental health and psychosocial support, as well as reintegration into society. In Chad, for example, UNESCO supported the development of cultural projects designed to support conflict prevention among different population groups and promoting social inclusion and cohesion among the most vulnerable. (You can read more about this project in the UNESCO Heritage Emergency Fund 2023 Annual Report. 

3. The African Union Summit in 2024 was dedicated to Education, with a side-event on DDR where UNESCO contributed. However, the link between DDR and Education, while implied, remains elusive. What are your thoughts on how this connection can be clarified?

Connecting DDR and education is integral to UNESCO’s mandate as the lead agency for SDG 4 (Quality Education), especially as the world is falling behind on the 2030 education targets.

To strengthen this connection, UNESCO is stepping up efforts to safeguard the right to education in times of crisis. This includes developing a preventative plan of action to protect education from attacks, as per the decision adopted by UNESCO’s Governing Board. Following extensive consultations with key global partners, UNESCO’s network of field offices, and Member States, UNESCO is focusing on ensuring access to and continuity of learning for vulnerable populations—those at risk of recruitment by armed groups or in need of reintegration into communities.

Key initiatives like the UNESCO Qualifications Passport (UQP) enable the recognition of prior learning and provide skills development opportunities. Africa is a leader in these efforts designed to protect vulnerable youth, with Zambia, Uganda, and Kenya driving the UQP initiative, recently joined by South Sudan, the Democratic Republic of Congo, and Togo. By bridging DDR and education, UNESCO is not only safeguarding education but also empowering communities and contributing to sustainable peace.

4. How has UNESCO engaged ex-combatants and local communities in protecting tangible and intangible heritage sites, and how can these efforts aid reconciliation and social cohesion in DDR and CVR contexts? 

Engaging local communities in the protection of tangible and intangible cultural heritage is at the heart of UNESCO’s mission, especially in safeguarding heritage at risk. A key principle guiding this work is reflected in UNESCO’s Operational Principles for Safeguarding Intangible Cultural Heritage in Emergencies, which states:

“In all phases of emergency, the communities shall play a primary role in identifying their intangible cultural heritage. This requires the direct inclusion of the communities in identifying how their intangible cultural heritage might have been affected by the emergency and what measures are needed to safeguard it, as well as how they might draw on it as a resource for enhancing their resilience, facilitating recovery, and re-establishing trust and peaceful coexistence within and between communities.” 

A powerful example of this approach is the UNESCO-led project in Conejo village, located in Colombia’s Guajira Department. This village is home to the Pondores ETCR, a temporary shelter for ex-combatants and their families transitioning to civilian life as part of the 2016 Peace Agreement between the Colombian government and FARC-EP. In this village a UNESCO led project worked to safeguard intangible cultural heritage as a basis for resilience, reconciliation and reintegration. The project responded to the third point of the Peace Agreement between the Colombian government and the FARC-EP (the Revolutionary Armed Forces of Colombia—People’s Army) in 2016, which aimed to help former combatants reintegrate into civilian life following a sixty-year armed conflict. In this context, ex-combatants in the village of Conejo requested measures to reinvigorate their local culture. To this end, a participatory methodology was designed linking intangible cultural heritage capacity-building strategies and inventorying with the ‘Memory and Heritage’ approach of the Ministry of Culture of Colombia, directed at safeguarding living heritage and collective memory to reconstruct the social fabric and promote healing among communities affected by armed conflict.

This initiative not only safeguarded living heritage but also strengthened collective memory, contributing to the reconstruction of the social fabric in communities deeply affected by decades of conflict. By fostering resilience and promoting healing, these efforts exemplify how cultural heritage can serve as a bridge to reconciliation and social cohesion—essential components of DDR and CVR frameworks. 

5. In cases where cultural heritage has been a source of conflict, how can dialogue around heritage be transformed into a tool for reconciliation and trust-building in CVR and DDR contexts? 

Focusing on shared aspects of cultural heritage and identifying unifying common denominators is essential for fostering dialogue and mutual understanding. Inclusive engagement of all sides and communities creates a sense of ownership and belonging, paving the way for shared goals that serve the common good. Cultural activities and sports can be pivotal in this process, offering accessible platforms to build trust and strengthen social bonds in post-conflict settings.

An example from Mali illustrates the potential of cultural heritage to aid reconciliation. Following the destruction of the mausoleums of Timbuktu during the conflict, UNESCO supported their reconstruction using traditional methods and local expertise. With UNESCO’s support, the mausoleums were reconstructed using traditional methods and local masons, revitalizing ancestral construction practices and contributing to the local economy. The project also involved rehabilitating mosques, safeguarding ancient manuscripts, and fostering partnerships with the Malian authorities, local communities, the masons’ guild, and MINUSMA, which was mandated to protect cultural heritage.

This initiative demonstrated how the restoration of cultural heritage could heal wounds and rebuild community trust. It also marked a milestone in international justice, as the destruction of the mausoleums became one of the first instances where intentional heritage destruction was prosecuted as a war crime. By linking cultural heritage protection with peacekeeping and reconciliation, UNESCO exemplifies how dialogue around heritage can transform division into unity and pave the way for sustainable peace. 

Charting the Path for DDR and Sustaining Peace in Africa: 1245th Peace & Security Council Meeting in Kinshasa, DRC

The African Union Peace and Security Council (PSC) is the AU’s primary body for preventing, managing, and resolving conflicts across the continent. By overseeing peace operations, mediating disputes, and supporting post-conflict recovery, the PSC plays a vital role in sustaining peace. Its focus on early warning, inclusive processes, and partnerships aim to ensure swift, coordinated responses to security challenges. This article explores the recent PSC meeting in Kinshasa, that underscored the role of DDR in strengthening Africa’s resilience and advancing long-term stability.

As Africa faces an increasingly complex and fragmented security landscape, the importance of sustainable peacebuilding initiatives cannot be overstated. At the heart of these efforts lies the crucial nexus between DDR and Post-Conflict Reconstruction and Development (PCRD). These frameworks are not merely technical processes but essential pillars for ensuring peace agreements translate into lasting stability. It is within this critical context that the African Union Peace and Security Council (PSC) convened in Kinshasa, Democratic Republic of Congo (DRC) under the meeting title, “Implementation of DDR and PCRD Programmes for the Consolidation of Peace, Security, and Socio-Economic Activities: Challenges and Way Forward”.  

The AU PSC emphasized the importance of DDR and SSR as a cornerstone for addressing the root causes of conflict, preventing relapse into conflict after a peace agreement and ultimately fostering sustainable peace. MONUSCO, represented by Deputy Special Representative Bruno Lemarquis, contributed to the discussions, highlighting the impact of the Programme de Désarmement, Démobilisation, Relèvement Communautaire et Stabilisation (P-DDRCS) in the DRC. He underlined the value of decentralization, community engagement, and the AU DDR Capacity Program, a partnership between the AU, UN, and World Bank, as critical tools for effective DDR implementation. With support from UNOAU, the meeting showcased the strength of the UN-AU partnership in advancing comprehensive, locally driven DDR solutions aligned with broader socio-economic and political reforms.

The deliberations also underscored the importance of national ownership in DDR programming, emphasizing the need for homegrown strategies that integrate with wider socio-economic and political reforms. Member States were encouraged to establish institutions and frameworks that align DDR efforts with the broader goals of peace, security, and development. A key highlight of the meeting was the endorsement of the Kinshasa DDR Roadmap, which envisions Africa taking the lead in designing context-specific and sustainable DDR strategies. The Roadmap focuses on launching the AU Disarmament Fellowship Program (AUDF) to enhance the capacity of national and regional peace infrastructures and institutions across the continent. The program also aims to conduct in-depth studies at the Member State level and serve as a platform for lessons learned, experience sharing, good practices, and innovations in the implementation of DDR and SSR programs. 

Aligning DDR with Broader Peacebuilding Frameworks

Coinciding with the 4th AU PCRD Awareness Week, this meeting’s discussions aligned with the theme: “Charting the Path Forward: Collaborative Strategies for Effective PCRD Policy Implementation.” The PSC reiterated that DDR cannot operate in isolation; it must be embedded within broader peacebuilding frameworks. Such integration is vital for conflict prevention and ensuring that fragile post-conflict gains are consolidated. 

Recognizing Africa’s shifting security dynamics, the suitability of traditional DDR programs, often implemented after comprehensive peace agreements, was brought into question. Reflecting the revised PCRD policy, it was emphasized that modern DDR must address the complexities of fragmented conflicts, the involvement of non-state actors, and transnational challenges. The complexity of implementing DDR in the DRC, with over 120 armed groups, is a stark example of these difficulties. To address the diverse and complex nature of conflicts, tailored solutions are essential, particularly for vulnerable groups such as women, youth, and children. The revised PCRD policy now includes dedicated pillars on youth and women, underscoring the AU’s commitment to inclusive peacebuilding.

A Call to Action and the Way Forward

The meeting concluded with a resounding call to action: DDR and PCRD must move beyond theoretical frameworks to deliver tangible results. The PSC’s decision to convene an annual high-level meeting in Kinshasa during PCRD Awareness Week reflects its commitment to turning lessons into actionable strategies. These efforts, coupled with the Kinshasa DDR Roadmap, represent a significant step in Africa’s quest for sustained peace and stability.

The energy and resolve of the Kinshasa meeting underscore the growing momentum for peacebuilding across the continent, symbolizing a collective effort to address the continents’ peace and security challenges. 

Transforming Armed Groups: The Role of DDR in Political Participation  

Violence by many non-state armed groups is driven by grievances related to political participation. Research has found that their inclusion into the political arena generally has a positive effect on sustainable peace after armed conflicts. Such a transformation—from armed movements to political entities— entails the organizational shifts from military-type irregular forces to unarmed civilian structures. This process is known as the political transformation of armed groups. DDR serves as a cornerstone for this political transformation, but its success depends on addressing political, social, and civic dimensions. Past political transformation processes took diverse avenues hinging on a set of internal and external factors, while always being complex and long-term. 

The Berghof Foundation has partnered with the DDR Section to explore the intricate relationship between DDR and the political transformation of armed groups. Building on the recognition of the interdependence of the two processes, the partnership aims to operationalize support for political transformation by providing guidance for peace mediators, DDR and peacebuilding practitioners. To achieve this, the initiative implements support activities for non-state, state, and third-party actors in transitional or post-war contexts, with two objectives:

1. Provide direct support to DDR and political transformation processes.

2. Distill lessons to create concrete guidance on crucial elements of political transformation that need to be included and reflected in DDR processes. 

Civic Education: Laying the Foundations for Leadership

Members of armed groups fulfill a variety of functions during conflict – as commanders, fighters, or in non-combatant roles. However, combatants often aspire to play different roles in a post-conflict society. Particularly rank-and-file combatants often seek to serve their communities and contribute to peacebuilding. One crucial element of DDR programs is therefore providing former combatants with the tools to engage meaningfully in governance and peacebuilding processes. This involves equipping them with knowledge and skills to (re)establish themselves as full citizens, conscious of their political and social rights and responsibilities, and capable of pursuing their political aspirations peacefully.

A workshop held in April 2024 in Asosa, Ethiopia, convened ex-combatants, local government officials, and civil society to develop programs that position former fighters as peacebuilding agents within their communities. By focusing on civic education and mediation skills, the initiative highlighted how DDR can serve as a catalyst for political engagement and conflict resolution.