51415 No. 119 / February 2009 Disarmament, Demobilization and Reintegration Disarmament, demobilization and reconstruction, etc). When they shift reintegration (DDR) is a process that resources to the social and economic sectors, contributes to security and stability by DDR programs can also reduce poverty1 disarming combatants, removing them from Over the last twenty years, there have been military structures, and socially and DDR programs in more than 30 countries. economically integrating them into society. About two-thirds of these countries have DDR programs downsize armed forces, or been in Africa. The World Bank's disband them completely. They are usually involvement with DDR began in 1992 with part of other efforts to demilitarize (e.g. the Uganda Veterans Assistance Program. landmine removal, Security Sector Reform, Since then, it has supported about 21 etc.) and consolidate peace (e.g. justice, demobilization and reintegration projects in reconciliation, community-based more than 15 countries.2 1 Most of these have been post-conflict (e.g., the their needs (e.g., interim care centers, Rwanda Demobilization and Reintegration family tracing, psycho-social support, Program) rather than peacetime (e.g., the and recreation). In Rwanda, the kadogo Chad Structural Adjustment Credit, which (Kiswahali for "little one") schools had a demobilization component) operations. were set up as multi-age, multi-grade Hence, this note will focus on post-conflict institutions for child soldiers. These disarmament, demobilization and transitional institutions allowed for a reintegration. period of de-socialization and re- socialization before the children Beneficiaries: returned to civilian schools.3 There are usually three types of The Cape Town Principles beneficiaries: The Cape Town Principles and Best Practices · Combatants. Most of the beneficiaries (1997) defines a "child soldier" as "any person are adult males who have under 18 years of age who is part of any kind of participated in combat and/or regular or irregular armed force or armed group support roles such as cooks, porters in any capacity, including but not limited to cooks, or messengers. However, there may porters, messengers and anyone accompanying such groups, other than purely as family also be women and children, members. The definition includes girls recruited including those abducted and for sexual purposes and forced marriage. It does sexually exploited. not, therefore, only refer to a child who is carrying · Dependents. The spouses, children or has carried arms." and other dependents of ex- Source: United Nations. 2006. Operational Guide to combatants can also be direct the Integrated Disarmament, Demobilization and beneficiaries. Reintegration Standards. New York: United Nations. · Communities. The communities where http://www.unddr.org/iddrs/iddrs_guide.php. ex-combatants resettle may benefit from DDR programs, especially when · Youth. A large number of ex- they are delivered through combatants are between 15 and 24 community-based mechanisms. years old. Many have not been socialized by their families and Clear and unambiguous eligibility criteria, communities. They may also have along with a careful screening process, missed education and employment should determine who can participate in a opportunities. DDR programs ought DDR program. While it is important to to consider the special needs and exclude non-combatants who may be armed potential of this group (for example, (petty criminals, for example), it is also substance abuse treatment, youth critical to include women, children and the clubs, etc.). disabled who may no longer be in · Women. Female ex-combatants, possession of a weapon. supporters, and dependents ought to be formally included in the DDR · Children. According to the United process and receive assistance Nations, the recruitment of children specifically designed for their needs under 18 into the armed forces is not and aspirations (for example, separate only illegal but one of the worst forms shelter and sanitation facilities, of child labor. The recruitment of treatment for sexual and gender- children under 15 is considered a war based violence, reproductive health crime. When a DDR program includes services, childcare, and other gender- children, they must be separated from specific services). Female combatants adult ex-combatants and receive who have achieved equality on the assistance specifically designed for battlefield may find it difficult to 2 return to more traditional female Disarmament is the first component of the roles. This was true for female DDR program.4 The separation of members of the Eritrean People's combatants from their weapons signals the Liberation Front (EPLF). end of their involvement in active combat. It also enables a secure environment where UN Security Council Resolution 1325 demobilization and reintegration can take UN Security Council resolution 1325 (2000) place. measures the advancement of women in all aspects of peace-building and "encourages all Disarmament often includes the following those involved in the planning for disarmament, activities: demobilization and reintegration to consider the different needs of female and male ex- combatants and to take into account the needs of · Information gathering and their dependants." operational planning. Information is collected on the size, profile, Source: United Nations. 2006. Operational Guide to the Integrated Disarmament, Demobilization and and deployment of the armed Reintegration Standards. New York: United Nations. forces and the number, type, and http://www.unddr.org/iddrs/iddrs_guide.php. location of their weapons. An information and sensitization campaign is also carried out to · Disabled. Disabled and chronically ill raise public awareness about the ex-combatants also require disarmament process. specialized assistance. This includes · Weapons collection. Combatants health screening to identify are gathered at pick-up points, rehabilitation and treatment options moved to weapons collection and reintegration assistance to points or disarmament sites, and enable independent living and disarmed.5 This process must not community-based care. In Uganda, be linked to the cash payments about 17 percent of the ex- provided during reinsertion (see combatants suffered from below). Otherwise, the program HIV/AIDS, which led to the design may be seen as an arms buy-back of a specific health component scheme, which can lead to within the DDR program. increased arms flows to the country. Beneficiaries need to be involved in the · Stockpile management and weapons design and implementation of the DDR destruction. Weapons, program to ensure that their needs and ammunition, and explosives are aspirations are properly addressed. counted, stored, moved, and/or destroyed. Where possible, the Disarmament: UN encourages the immediate destruction of all collected Definition of Disarmament weapons. Otherwise, as in Sierra "Disarmament is the collection, documentation, Leone in 2000, they may be used control and disposal of small arms, ammunition, to restart the conflict. explosives and light and heavy weapons of combatants and often also of the civilian population. Disarmament also includes the When more than one group is being development of responsible arms management disarmed, the principle of "proportional and programs." fair" disarmament needs to apply. This ensures that all groups are disarmed at the Source: United Nations. 2005. "Note by the Secretary-General on Administrative and same rate and avoids a sudden imbalance in Budgetary Aspects of the Financing of UN military capabilities. Peacekeeping Operations." A/C.5/59/31, May 24. 3 Demobilization: (numbered, stamped, and with a photo) are given to each ex- Definition of Demobilization combatant. In Cambodia, a market "Demobilization is the formal and controlled for counterfeit ID cards developed discharge of active combatants from armed forces or other armed groups. The first stage of due to rumors of large benefit demobilization may extend from the processing packages. of individual combatants in temporary centers to · Health screening. Ex-combatants are the massing of troops in camps designated for screened for chronic illness and/or this purpose (cantonment sites, encampments, disability. Voluntary counseling and assembly areas or barracks). The second stage of demobilization encompasses the support testing for HIV/AIDS should also package provided to the demobilized, which is be offered. This is important called reinsertion."6 because the combatant lifestyle (separation from spouse, Source: United Nations. 2005. "Note by the opportunities for unprotected sex, Secretary-General on Administrative and Budgetary Aspects of the Financing of UN tendency to take greater risks, etc.) Peacekeeping Operations." A/C.5/59/31, May 24. increases the likelihood of contracting HIV/AIDS and other Demobilization is the second component of communicable diseases. the DDR program. The separation of · Pre-discharge orientation. Information combatants from their command and control on the DDR process is provided and structures marks their formal transition from the challenges of the transition from military to civilian life. Whereas disarmament military to civilian life (rights and is primarily carried out by the military and responsibilities) are explained. In supported by civilians, demobilization is Rwanda, inadequate pre-discharge primarily carried out by civilians and orientation led to unrealistic supported by the military. expectations among ex-combatants. · Discharge. Discharge documents that There are two types of demobilization: static recognize military involvement, (cantonment or combatants are brought to demobilization, and eligibility for demobilization sites) or mobile reinsertion and reintegration (demobilization services are brought to the assistance are given to each ex- combatants). DDR programs are combatant. increasingly using mobile demobilization as it tends to be cheaper, faster, and more Definition of Reinsertion flexible. Where cantonment is necessary, it "Reinsertion is the assistance offered to ex- needs to be as short as possible. Otherwise, combatants during demobilization but prior to the combatants can become a serious threat to longer term process of reintegration. Reinsertion is a form of transitional assistance to help cover security. In Mozambique, for example, they the basic needs of ex-combatants and their got out by taking UN camp staff hostage, families and can include transitional safety blocking roads, and appropriating vehicles. allowances, food, clothes, shelter, medical services, short-term education, training, Demobilization usually consists of the employment and tools. While reintegration is a long-term, continuous social and economic following activities: process of development, reinsertion is a short- term material and/or financial assistance to meet · Registration and documentation. immediate needs, and can last up to one year." Eligibility is determined through a Source: United Nations. 2005. "Note by the screening process; socio-economic Secretary-General on Administrative and data are collected to inform the Budgetary Aspects of the Financing of UN design of the reintegration Peacekeeping Operations." A/C.5/59/31, May 24. assistance (see below); and non- transferable identity documents 4 To bridge the gap between demobilization · Beneficiaries. A profile of the and reintegration, DDR programs provide combatant (age, gender, marital reinsertion assistance to cover the status, dependents, education, immediate and basic needs of ex-combatants health, needs, expectations, and and their dependents. This assistance needs areas of return) is developed before to be appropriate to the socio-economic and verified during demobilization. context. It can be in-kind or cash. When cash · Areas of return and resettlement. is provided, it needs to be paid in Based on the profile of combatants, installments and can be linked to quick- an assessment is made of the impact community-based projects. This economic and social potential of the assistance may also include transport areas of return (including and/or cash for transport. information on its natural resources, infrastructure, security situation, Reintegration: social capital, and perceptions of and willingness to accept ex- Definition of Reintegration combatants). "Reintegration is the process by which ex- combatants acquire civilian status and gain · Reintegration opportunities and sustainable employment and income. services. A nationwide mapping Reintegration is essentially a social and exercise determines employment economic process with an open time frame, opportunities (in existing primarily taking place in communities at the local enterprises, self-employment level. It is part of the general development of a country and a national responsibility and often schemes, etc.) and services necessitates long-term external assistance." (education, training, credit, community mobilization, etc.). Source: United Nations. 2005. "Note by the Secretary-General on Administrative and This assistance can include the following Budgetary Aspects of the Financing of UN Peacekeeping Operations." A/C.5/59/31, May 24. activities: Reintegration is the third component of the · Information, counseling and referral. DDR program. The sustainability of the General information is provided on disarmament and demobilization processes the reintegration process and the depends on the successful social and opportunities available to all ex- economic reintegration of ex-combatants. combatants. Then, specialized This is a complex process where ex- counseling is provided to each ex- combatants, many of them with no memory combatant based on his or her of family or community life, return to their profile. Finally, ex-combatants are communities and adjust to civilian life. The referred to support services within communities, many of them also the DDR program (grant transformed by the conflict, play an mechanisms, for example). They are important role in the ex-combatants' also referred to other services such reintegration. In Rwanda, this was very as health, education, training, jobs, difficult because many ex-combatants had etc. lost their families during the genocide or · Economic reintegration. Education came from neighboring countries and had and training assistance includes no community to return to. Others had "catch-up" education, vocational committed crimes in their communities or training, apprenticeships, and life wanted to begin a new life in the city. skills development. This assistance ought to respond to the needs of the Reintegration assistance must be based on a labor market, i.e. , help ex- detailed assessment of: combatants find jobs. Livelihood and income generation assistance 5 consists of access to land (where other community organizations possible), short-term public works, (e.g., Buddhist village associations grants for small businesses, business in Cambodia, church-led development services, and repatriation committees in Namibia, temporary wage subsidies to and community development businesses that hire ex-combatants. councils in East Timor) can play a In Ethiopia, for example, assistance role here. In addition, it is important was organized around specific for communities to benefit from the modes of subsistence: upland crop DDR program. For example, farmers received coffee, lowland community-based mechanisms can wheat cultivators received draft be used to deliver reintegration animals, and city dwellers received assistance; public works projects can training, apprenticeships, and focus on community infrastructure microcredit. such as roads and schools; and · Social reintegration. Information and business development initiatives sensitization activities can reduce can include community members. suspicion and rebuild trust between Economic collaboration can be ex-combatants and the communities critical to social integration. that receive them. Religious and/or Rwanda Demobilization and Reintegration Program (RDRP)7 The government of Rwanda implemented the first phase of the RDRP between 1997 and 2001. About 18,500 government soldiers (including 2,500 child soldiers) were demobilized. This phase was financed by the government, various donors (through a trust fund), and UN agencies. The main achievements of this phase were demobilization, reinsertion, and referral to education and employment opportunities. Reintegration was hindered by the reduction in donor funding after the deployment of government forces in the Democratic Republic of Congo (DRC). In addition, there were a number of technical and management issues, including unrealistic expectations among ex-combatants due to inadequate pre-demobilization sensitization, a poorly implemented microcredit scheme, and an unsustainable village established for disabled ex-combatants. As a result of this experience, the government asked the World Bank to lead the redesign of the second phase of the program, provide financial assistance (a US$25 million credit), and coordinate donor support.18 The overall goal of the second phase of the RDRP is peace in the Great Lakes region and reconciliation in Rwanda. The main objectives of the program are: i) demobilize another 20,000 government soldiers and 25,000 members of armed groups returning from DRC (including 2,500 child soldiers); ii) provide reinsertion assistance to 15,000 soldiers of the previous government; iii) socially and economically reintegrate all phase two ex-combatants and phase one ex-combatants who remain socio-economically vulnerable; and iv) reallocate government expenditures from the defense to the social and economic sectors. The inclusion of combatants from armed groups and the previous government in the program is considered an important reconciliation measure. The second phase has five components: i) demobilization, including HIV/AIDS prevention and mitigation measures, ii) reinsertion, including the provision of basic needs kits (valued at US$91), iii) reintegration, including a reintegration grant (valued at US$182), access to land, and a vulnerability support window19, iv) special groups (women, disabled, chronically ill and child soldiers), and v) institutional development and implementation support. Disarmament takes place outside of the program and is implemented by government forces in Rwanda and the United Nations in DRC. Members of armed groups are screened for crimes committed against humanity. Only those who have not been involved in the 1994 genocide participate in the program. The total cost for the program (phase one and two) is about US$73 million (US$852 per beneficiary). The Rwanda Demobilization and Reintegration Commission and its Technical Secretariat are responsible for planning, coordinating and implementing the RDRP. They work with 30 District Reintegration Offices who are responsible for reinsertion and reintegration activities at the community level 6 . It is important to meet the urgent and specific information and communication needs of ex-combatants without turning them strategy is important. into a privileged group, which can create National actors often rely on technical and resentment in the receiving community. This financial support from international actors. means that reintegration assistance should be This is especially true in post-conflict limited in time and scope and be delivered environments where national capacity can through community-based mechanisms. The be weak and international actors are seen as Stockholm Initiative on Disarmament, more neutral. Demobilization and Reintegration takes this a · UN system. The Special Representative step further by suggesting that a parallel of the Secretary-General (SRSG) is program be set up to directly address the needs responsible for the UN system in of the affected communities.10 countries with peacekeeping missions. He or she may also represent the UN National and International Actors in political negotiations on DDR. In other countries, the Humanitarian DDR is a complex process that often Coordinator (HC) or Resident requires information-sharing, consultations, Coordinator (RC) is responsible for coordination, and partnerships among a coordination among the UN number of national and international actors. specialized agencies, including on The overall responsibility for the planning DDR. A list of the 15 agencies working and implementation of the DDR program, on DDR programs and involved in the however, rests with national actors. preparation of the IDDRS is available at www.unddr.org. · Governments. Governments need to · Bilateral partners. Bilateral partners establish national institutions such as can provide financial assistance to national commissions on DDR. They DDR programs. They may also also need to ensure that line ministries consider using diplomatic pressure and other government bodies to remove political obstacles. responsible for national recovery and · World Bank and regional development development strategies are banks. Development banks can represented in these institutions. provide technical and/or financial · Armed forces and groups.11 In assistance to DDR programs, consultation with other including the management of stakeholders, the armed forces and multidonor trust funds. groups usually decide the · Nongovernmental Organizations combatants that will be downsized (NGOs). Because NGOs have or disbanded. They can also experience with humanitarian and participate in the development of development activities in countries DDR policies and institutions. where DDR programs take place, · Civil Society Organizations (CSOs). they are often chosen as CSOs can play a role in the design implementing partners. and implementation of DDR · Research and policy centers. These programs, especially with respect to centers can contribute to the the social and economic development, monitoring and reintegration component. evaluation of DDR programs. A list · National media. The media can of national and international inform the public about and build research and policy centers working confidence in the DDR program. on DDR issues is available at Hence, the development of a public www.unddr.org. 7 United Nations Development Programme (UNDP) Since 1991, UNDP has supported DDR in more than 20 countries in both peacekeeping and non- peacekeeping contexts. Its strengths are: i) presence at the country and regional levels; ii) coordination role; iii) experience in program design; iv) commitment to capacity development of national actors; and v) ability to mobilize funds among bilateral donors as well as multilateral financial institutions. United Nations Children's Fund (UNICEF) UNICEF takes a rights-based approach to ending the exploitation of children by armed forces and groups. Priority is given to the prevention of recruitment by identifying and responding to vulnerabilities that affect children living in zones affected by or prone to conflict. If and when children are demobilized, activities include family tracing, reunification, and the provision of essential services for their survival and well-being, such as reproductive health care and a community-based approach to reintegration which can contribute to their well-being and help prevent rerecruitment. United Nations Development Fund for Women (UNIFEM) Over the last decade, UNIFEM has assisted women in conflict situations and supported their participation in peace processes. This work is guided by international humanitarian and human rights standards, including Security Council Resolution 1325. UNIFEM's work on DDR has been largely focused on articulating the differential impact of armed conflict on women and girls and advocating for an appropriate response. Conclusion · transparent and effective The key ingredients for a successful DDR institutions, including i) delivering program are: assistance simply, i.e., minimizing · political will, including commitment transaction costs and corruption and and pragmatism, throughout the maximizing benefits to ex- process; combatants, and ii) coordinating at · careful preparation, including the central level but decentralizing participatory methods to profile ex- implementation to communities; combatants and assess the economic · timely and adequate financing; and and social potential of areas of · integration with ongoing and future return; humanitarian and development efforts. 8 12 Multi-Country Demobilization and Reintegration Program (MDRP) Launched in 2002, the MDRP supports the demobilization and reintegration of ex-combatants in the Great Lakes region of Central Africa. The almost US$500 million program targets over 400,000 ex-combatants in seven countries: Angola, Burundi, the Central African Republic (CAR), the Democratic Republic of Congo (DRC), the Republic of Congo (RoC), Rwanda and Uganda. The MDRP helps establish standard approaches, coordinate partner initiatives, and provides financial and technical assistance for the demobilization, reinsertion, and reintegration of ex- combatants. The program's underlying principles are partnership and national ownership. Financed by the World Bank and 13 donors, the MDRP collaborates with national governments and commissions, along with more than 30 partner organizations, including UN agencies and NGOs. The secretariat is based at the World Bank in Washington, D.C. The MDRP supports national programs in Angola, Burundi, Rwanda, the RoC and the DRC, where they are implemented by national governments. In other countries, national commissions (Amnesty Commission in Uganda) and UN agencies (UNDP in CAR) have been used to implement programs. The MDRP also undertakes significant analytical work on cross-cutting issues such as gender and HIV/AIDS and supports regional initiatives such as facilitating the repatriation of foreign combatants based in the eastern DRC. The largest MDRP program is in the DRC. The US$260 million operation (US$160 million from IDA and US$100 million from the MDRP) implemented by the government has demobilized about 150,000 combatants (including 30,000 children) and is supporting their social and economic reintegration. A number of special projects focusing on child soldiers have also been implemented by UNICEF, Save the Children, International Rescue Committee and others, and small-scale pilots have been implemented by UNDP. 9 Recommended Reading: Reintegration: Final Report." Ministry of Foreign Affairs, · Colleta, Nat J., Markus Kostner, and Stockholm, Sweden. Ingo Wiederhofer. 1996. Case Studies · United Nations. 2006. Operational in War-to-Peace Transition: The Guide to the Integrated Disarmament, Demobilization and Reintegration of Demobilization and Reintegration Ex-combatants in Ethiopia, Namibia Standards. New York: United and Uganda. Washington, DC: World Nations. Bank. http://www.unddr.org/iddrs/iddr · Colleta, Nat J., Markus Kostner, and s_guide.php. Ingo Wiederhofer. 2004. · Verhey, Beth. 2001. "Child Soldiers: "Disarmament, Demobilization and Preventing, Demobilizing and Reintegration." In When States Fail: Reintegrating." World Bank, Causes and Consequences, ed. Robert Washington, DC. I. Rotberg, 170­18. Princeton, NJ: · World Bank. 2002. "Greater Great Princeton University Press. Lakes Regional Strategy for · Colleta, Nat J., Markus Kostner, and Demobilization and Reintegration." Ingo Wiederhofer. 1996. The World Bank, Washington, DC. Transition from War to Peace in Sub- Saharan Africa. Washington, DC: Recommended Websites: World Bank. · De Watteville, Nathalie. 2002. · Bureau for Crisis Prevention and "Addressing Gender Issues in Recovery, United Nations Demobilization and Reintegration Development Program (UNDP) Programs." Africa Region Working http://www.undp.org Paper Series, World Bank, · Conflict, Crime and Violence, World Washington, DC. Bank · Douglas, Ian, Colin Gleichmann, http://go.worldbank.org/RVC6BB Michael Odenwald, Kees Steenken, W0F0 and Adrian Wilkinson. 2004. · Multi-Country Demobilization and "Disarmament, Demobilization and Reintegration Program (MDRP) Reintegration: A Practical Field and http://www.mdrp.org/ Classroom Guide." German · Stockholm Initiative on Technical Co-operation (GTZ), Disarmament, Demobilization and Norwegian Defense International Reintegration Centre (NODEFIC), Pearson http://www.sweden.gov.se/sb/d/ Peacekeeping Centre (PPC) and 4890 Swedish National Defense College · United Nations Children's Fund (SNDC). (UNICEF) http://www.fhs.se/upload/DDRH http://www.unicef.org andbook.pdf. · United Nations Department Of · Douglas, Sarah, Vanessa Farr, Peacekeeping Operations (DPKO) Felicity Hill, and Wenny Kasuma. http://www.un.org/Depts/dpko/ 2004. Getting it Right, Doing it Right: dpko/home.shtml Gender and Disarmament, · United Nations Development Fund Demobilization and Reintegration. for Women (UNIFEM) New York: United Nations http://www.unifem.org/index.php Development Fund for Women · United Nations Disarmament, (UNIFEM). Demobilization and Reintegration · Ministry of Foreign Affairs. 2006. Resource Centre "Stockholm Initiative on http://www.unddr.org/ Disarmament, Demobilization and 10 This note was prepared by Taies Nezam and Alexandre Marc. It has not undergone the review accorded to official World Bank publications. The findings, interpretations, and conclusions expressed herein are those of the author(s) and do not necessarily reflect the views of the International Bank for Reconstruction and Development / The World Bank and its affiliated organizations, or those of the Executive Directors of The World Bank or the governments they represent. 1 This brief draws extensively on the United Nation's Integrated Disarmament, Demobilization and Reintegration Standards (IDDRS), a comprehensive set of policies, guidelines and procedures on DDR. The IDDRS are based on lessons learned by and best practices drawn from United Nations agencies involved in DDR. 2 See figure 1.1 on IDA/IBRD Demobilization and Reintegration Projects. 3 Examples are drawn from: Colleta, Nat J., Markus Kostner, and Ingo Wiederhofer. 2004. "Disarmament, Demobilization and Reintegration." In When States Fail: Causes and Consequences, ed. Robert I. Rotberg, pp. 170­181. Princeton, NJ: Princeton University Press. 4 According to Operational Policy 2.30, the World Bank "does not engage in peacemaking or peacekeeping, which are functions of the United Nations and certain regional organizations. It also does not provide direct support for disarming combatants." 5 Disarmament for regular forces can also be done in their barracks. 6 The World Bank considers reinsertion to be a separate component. 7 World Bank. 2002. "Technical Annex to Rwanda Emergency Demobilization and Reintegration Program." World Bank, Washington, DC, March 25. 8 Other donors of the second phase include the Multi-Donor Trust Fund (see Multi-Country Demobilization and Reintegration Program), the United Kingdom, Germany, and the government of Rwanda. 9 The RDRP draws on the experience of and coordinates with the World Bank-supported Community Reintegration and Development Project. 10 Ministry of Foreign Affairs. 2006. "Stockholm Initiative on Disarmament, Demobilization and Reintegration: Final Report." Ministry of Foreign Affairs, Stockholm, Sweden. 11 The armed forces are a state's military sector with a legal basis. Armed groups use force to achieve political or economic objectives but are not under the control of the state where they operate. 12 MDRP. 2008. "MDRP Fact Sheet." August. MDRP. 2008. "MDRP Fact Sheet: Democratic Republic of Congo." August. 11