A comprehensive DDR framework

By Chiran Jung Thapa

Recognizing the varied approaches towards DDR (disarmament, demobilization and reintegration), various UN agencies, departments, funds and programmes collaborated with other practitioners and organizations, and conceived the "Integrated DDR Standards (IDDRS)." Although IDDRS is a great leap forward, there is still ample potential to make the concept more integrated and comprehensive. In truth, rather than employing varied recovery formulas, the DDR abbreviation could effectively become the one grand formula that encapsulates the entire continuum of the post-conflict revitalization process.

The United Nations (UN) has been engaged in DDR activities for more than two decades. The UN's official definition outlines DDR as a "process that contributes to security and stability in a post-conflict recovery context by removing weapons from the hands of combatants, taking the combatants out of military structures and helping them to integrate socially and economically into society by finding civilian livelihoods."

DDR, however, is only one of the many formulas prescribed for the revitalization of post-conflict societies. Other reviving formulas include, but not limited to, are Security Sector Reform (SSR), democratic governance, rule of law, transitional justice, capacity building, sustainable development, peacebuilding, peacekeeping, and preventative diplomacy.

Given the wide array of formulas (which at times overlap) and the involvement of innumerable national and international entities, the post conflict recovery process has become a hodgepodge affair. There seems to be a lack of a coherent and comprehensive post conflict recovery formula. And neither is there a clearly defined continuum. Compounding these deficiencies is the lack of coordination amongst the various entities involved in the recovery process. Inevitably, the recovery process has become an agglomeration of disjointed processes.

UN has played a leading role in most recovery processes of post conflict societies. And its role has always been contingent upon the 3Ms (mandate, money and manpower). Recovery processes are varied not only because of the conflict circumstances but also because of the architecture of the 3M configuration. Wherever the UN plays a leading role, the 3M configuration becomes the defining feature of the recovery process.

A comprehensive module

Recognizing the mishmash nature of the post-conflict recovery process and the fact that the DDR abbreviation has the potential to encompass the entire post-conflict recovery framework, I propose a three tiered DDR module: DDR1, DDR2 and DDR3. The three phases would be undertaken with the primary objective of consolidating "sustainable democratic peace."

DDR1 would include three phases: disarmament, de-mining and re-orientation. DDR1 would be a short term phase which would span between 1 to 5 years. This will begin with disarmament and de-mining. These two processes would be undertaken simultaneously. Re-orientation would be a precondition to reintegration of former combatants and would only proceed after complete disarmament.

An indispensable revitalization process is de-mining. Since landmines and other explosive remnants affect almost every post-conflict society, d e-mining must be an integral part of the comprehensive framework rather than a detached discipline . W ithout the removal of explosive remnants, the society cannot return to normalcy because lives constantly remain at risk, and the use of valuable agricultural land and productive use of infrastructure is debilitated.

The "de-mining" phase would involve the "detection and destruction (D&D)" of not just land-mines but of all “unexploded ordnance” (UXO) and "abandoned ordnance" (AO) (which include grenades, bombs, mortars, missiles and other explosive devices) that could still be volatile.

De-mining has been placed in the initial phase of the continuum because the "D&D" would be more efficient and effective if carried out prior to the reintegration or discharge of the former combatants. In most instances, it is the former combatants that plant the mines. Retrieving the vital information about the sites and locations prior to proper discharge would make the process more effective rather than turning it into a scavenger hunt.

Other actions undertaken during de-mining phase would comprise of marking and fencing off contaminated areas and educating people about the dangers of a mine-affected environment. Providing medical assistance, rehabilitation services, job skills training and employment opportunities for victims of landmines would also be a part of the process.

"Re-orientation," is the newest terminology introduced in this framework. It is designed to be a cathartic process which would aim to mentally detach the former combatants from the violent mind set. Since most of the combatants are inculcated against a violent backdrop, it is imperative to purge/dilute the violent outlook prior to being integrated back into the society. Mental preparation is actually more important than taking away the weapons from the combatant because if the violent mentality persists, a tendency to opt for violent methods is likely to perpetuate. This would certainly make the reintegration process arduous, which could jeopardize peace in the long run.

DDR2 would comprise of demobilization, demilitarization, and rehabilitation. This would be a short/medium term phase which could span anywhere between 1 to 15 years. The demobilization process in this module would include all the activities mentioned in the chart above. As for the reinsertion activities, it would be included in the rehabilitation process.

Generally, societies that have endured a conflict are highly militarized. A large portion of the national resources are allocated for military affairs. Therefore, another objective of post-conflict revitalization program must aim at demilitarizing the society.

UN defines demilitarization as "th e complete range of processes that render weapons (ranging from small arms and light weapons (SALW) to field artillery and guided weapons systems) , ammunition and explosives unfit for their originally intended purpose. Demilitarization not only involves the final destruction process, but also includes all of the other transport, storage, accounting and pre-processing operations."

There is, however, more to demilitarization than that. Demilitarization would involve the systematic disengagement of military from the political sphere and the consolidation of civilian control over military affairs. It would also involve the reduction of the national army and re-allocation of national resources for civilian purposes.

Another phase of DDR2 is rehabilitation. Rehabilitation is a more inclusive terminology that encompasses re-integration, reinsertion and repatriation processes. The rehabilitation phase would be an integrated approach that would simultaneously engage in the reintegration of combatants, repatriation of civilians displaced by the conflict and the re-insertion of both combatants and civilians. Since the number of displaced civilians (refugees and internally displaced persons) usually exceeds the number of combatants, repatriation and resettlement of civilians is equally important as reintegration of combatants. Thus, rehabilitation process will seek to resettle all those displaced from their original place of dwelling

DDR3 will comprise of democratization, development and reconciliation. Since this phase involves long term strategies aimed at preventing conflict recurrence by addressing the root causes of conflict, it can also be labelled as a preventative phase. In essence, DDR3 would be a blend of endorsed political, economic and social/psychological processes.

Today, almost every preventative measure prescribed for post-conflict recovery includes two indelible elements: democratization and development. All conflicts have political, economic and social fuelling factors. While unemployment, illiteracy, poverty, inequality, lack of human rights, marginalization are often pointed as the root causes of conflict, democracy and development are equated as the mitigating mechanisms. It is widely believed that democracy and development are the mutually reinforcing processes that lay the foundation of a just society which is more capable of managing conflicts peacefully but more importantly, capable of preventing conflicts.

But, under the prevalent recovery processes, these grand themes are undertaken via numerous other banners like democratic governance, rule of law, sustainable development so on and so forth.

Democratization is not an event but a long term political progression which involves the establishment of a governance system in which leaders are chosen through fair and competitive elections, basic civil liberties are codified and guaranteed, rule of law is enforced and constitutionalism embraced. Establishment of strong and impartial institutions with checks and balances of power such as the judiciary, bureaucracy, civil society and a vibrant media are also attributed to democratization.

Like democratization, development is another long term process aimed at socially and economically empowering the citizenry. Development can be categorized into social and economic development. Social development typically refers to transforming institutions to improve the quality of life of the individual members of the society by fostering social justice, cohesion and integration, and promoting productive employment. It includes improvements in a variety of indicators such as literacy rates, life expectancy, and reduction of poverty rate.

Economic development on the other hand can be defined as a process where the society engages through a host of policies and activities to improve the economic well-being of the members of a society. In a broad sense, it is mainly about creating wealth by attracting investment, creating and retaining of jobs, controlling inflation, and through taxation. It is also about building infrastructure and providing public services.

Finally, the last important process of the revitalization package is "reconciliation." To minimize the risk of relapse of violence in post conflict societies, reconciliation is imperative. Reconciliation involves developing new relationships not only between protagonists but also between victims and aggressors based on apology, forgiveness, and trust. Usually, the reconciliation process embodies elements such as stability, trust, justice, mercy and healing.

Obviously, reconciliation will be a difficult and slow process. Bridging the divide between former enemies and restoring relations between aggressors and victims can be quite excruciating. Most experts even suggest that the process could actually take generations. But, reconciliation programs based on formalized apology and forgiveness like the South African "Truth and reconciliation commission (TRC)" is necessary for closure and cooperation.

Till date the DDR abbreviation has been solely confined to one aspect of the long term peace building effort. But, since the abbreviation has the potential to represent the entire spectrum of the post conflict revitalization process, it could be effectively employed to consolidate the post-conflict revitalization processes under one comprehensive framework. And perhaps that would provide the much needed oomph to the frailties of the glacial post conflict revitalization process?

(Thapa lives in New York and can be reached at chiranjthap@hotmail.com)

(Editor’s Note: Nepalis, wherever they live, as well as friends of Nepal around the globe are requested to contribute their views/opinions/recollections etc. on issues concerning present day Nepal to the Guest Column of Nepalnews. Length of the article should not be more than 1,000 words and may be edited for the purpose of clarity and space. Relevant photos as well as photo of the author may also be sent along with the article. Please send your write-ups to editors@mos.com.np)

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