Mind the gap: the importance of local institutional development in peace-building-funded security interventions

In this paper, the authors analyse current spending priorities of the Peacebuilding Fund (PBF)-funded security sector reform (SSR) programmes. They conclude that these spending priorities do not appear to support traditional components of SSR and underfund programmes needed for the development of local public administration and civil society. This is observed despite the published commitments of UN PBF funding priorities to include the strengthening of national institutions in the context of support to the wider security and justice sectors.1 ?1. See UNPBSO, Strategy 2012–2013. The underfunding of civil society and local administration has been shown to undermine PBF's goals for the type of liberal democratic reform upon which peace-building, conflict management and conflict prevention rests. Focusing on the importance of accountability, the authors build on the scholarship of the rule of law literature to explore wider concerns associated with limited support to local public institutions and civil society. Drawing on empirical research on the peace-building experience in Sierra Leone, the authors reflect on concerns with the effects of past and current funding priorities and expose a number of ‘capacity deficits’ which have emerged in the wake of PBF funding patterns. The article concludes with several recommendations for a contextual approach to the development of local institutions and civil society in PBF-recipient countries more generally, and in Sierra Leone more specifically. This work contributes to the growing literature that seeks to link security sector reform with the need for a more nuanced approach to peace-building.     

The influence of research and local knowledge on British-led security sector reform policy in Sierra Leone

Externally-led security sector reform (SSR) in conflict-affected countries may require an array of different and timely interventions to restructure the whole security architecture of a state. Whilst the intent of these efforts is political, their nature is usually technical, operational and targeted at military, police, justice or intelligence actors, or relevant groups in the civilian policy sectors. Because of their urgency, there is seemingly little or no room for research to influence the implementation of these activities. Nevertheless, academic studies on SSR have flourished in recent years, and case studies, ‘lessons learned’ and recommendations for policy-makers now enrich this burgeoning literature. This paper analyses one of the early cases of an externally-led SSR intervention, namely the United Kingdom (UK) assistance programme in conflict-affected Sierra Leone. It seeks to understand whether and how research and knowledge on topics relevant to SSR influenced the development and implementation of the UK's SSR assistance policy in this country. Building on the Sierra Leonean case study, it then examines some general issues and themes, which characterise the use of research in SSR policy in conflict-affected environments.     

Democratizing security sector governance in West Africa: trends and challenges

While other regions of Africa have had their share of crises, the challenge of meeting numerous security threats has been particularly arduous in West Africa. Nevertheless, there are unmistakable signs that, through its collective regional integration instrument, the Economic Community of West African States (ECOWAS), the sub-region is beginning to awaken fully to the need to tackle its security crisis. This article makes two interrelated arguments. First, although the creation of democratic spaces in democratizing states, or complete rebuilding of collapsed states, provides greater opportunities for security sector reform (SSR), the relationship between democratization and democratic governance of the security sector is less clear. Second, a combination of norm setting at the sub-regional level as well as activism in the non-governmental sector across the region is driving the move (even if slow and seemingly uncoordinated) toward improved governance, including in the security sector at the national level. However, the commitment of states to principles of good governance at the inter-governmental level does not naturally lead to corresponding change within the state. Therefore, there is a clear need to promote a security sector governance (SSG) agenda at both sub-regional and national levels in order to expand the space for meaningful SSR processes in West Africa.     

Security sector reform: bringing the private in

As the links between security and development have been increasingly recognized, Security Sector Reform (SSR) has become a central part of development policy. Following a traditional Weberian conception of the state, these programmes are almost exclusively focused on the public security sector, neglecting the extent to which people in developing countries have come to rely on private security providers for their day-to-day security needs. While the reform of public security institutions is undoubtedly important, this article argues that a strict public/private distinction is a poor guide to security sector reform. Focusing on Sierra Leone and Kenya, the article argues that ‘bringing the private in’ is crucial to a comprehensive understanding of the security situation in most countries and that any attempt to ensure better security for all must take account of private actors. Private security companies and their integration into SSR matter not simply in terms of the maintenance of law and order, but also in terms of who has access to security, and ultimately, for the legitimacy of social and political orders.     

Politics,exit strategy and political settlement in Sierra Leone: a critical analysis of a laboratory experiment (1991–2015)

Abstract

A glance at key indicators—in terms of growth forecast and stable elections—will project Sierra Leone as a political settlement model for a post-conflict state. Sierra Leone has been an important laboratory for UN and international donors’ interventions and thinking. However, efforts by the international donor community to decentralise power to the margins, both geographically and demographically, have failed. Instead, this focus on the institutions of governance has allowed the same elite to maintain power. Sierra Leone today shares similar socio-economic and political conditions with the Sierra Leone before the outbreak of the civil war. A detailed analysis of the country’s socio-economic trends, its political institutions and the logic and dynamics of violence show a disturbing picture. While the international community considered that an exit strategy was feasible, the political settlement remains an experiment in that it is detached from everyday life and livelihood concerns of Sierra Leoneans and reveals the structural violence behind this process.     

The economic community of West African states,the defence of democracy in Sierra Leone and future prospects

The wave of democratization in the 1990s has brought considerable challenges and opportunities for post‐cold war Africa. One such challenge is the democratic intervention of the Economic Community of West African States (ECOWAS) under the aegis of the multilateral intervention force, ECOMOG, to restore a democratic government and constitutional order. The ECOWAS democratic intervention in the West African state of Sierra Leone can be located in a wider debate about international dimensions of democratization. In several respects, it also reflects the changing nature of international politics in the post‐cold war period particularly with regards to certain traditional norms of international society, namely non‐intervention and state sovereignty. The ECOWAS democratic efforts in Sierra Leone demonstrate that it is increasingly becoming acceptable for regional and international organisations to ‘defend’ democracy, albeit under the auspices of forcible as well as non‐forcible humanitarian intervention. However, these kinds of external intervention on behalf of democracy have in most cases led to its retrenchment. This article therefore critically assesses how the nature of domestic politics led to the suspension of democracy in Sierra Leone, the domestic and international implications of the ECOWAS defence of democracy there and the country's post‐conflict democratic prospects.     

Laudable,ahistorical and overambitious: security sector reform meets state formation theory.

Security sector reform (SSR) is a concept that is highly visible within policy and practice circles and that increasingly shapes international programmes for development assistance, security co-operation and democracy promotion. This paper examines the concept and practice of SSR using theories of the state and state formation within a historical-philosophical perspective. The paper recognises that the processes of SSR are highly laudable and present great steps forward towards more holistic conceptions of security and international development. However, the main argument of the paper is that we should be careful of having too high expectations of the possibility of SSR fulfilling its ambitious goals of creating states that are both stable and democratic and accountable. Instead, we should carefully determine what level of ambition is realistic for each specific project depending on local circumstances. A further argument of this paper is that legitimate order and functioning state structures are prerequisites and preconditions for successful democratisation and accountability reforms within the security sector.     

European Approaches to Security Sector Reform: Examining Trends through the Lens of Afghanistan

Abstract

Since its emergence in the late 1990s, the security sector reform model has come to be accepted as an indispensable element of democratic transitions and state-building projects. Europe has been an incubator for the concept, which is rooted in the notion of human security. While the model's normative framework has reached an advanced stage of development, it has produced few clear successes, revealing a ‘conceptual–contextual divide’. Placed under new pressure due to a shift in security thinking following 11 September 2001, the model faces an identity crisis. The Afghanistan process, above all, has demonstrated the need for new debate in Europe and elsewhere on the direction and structure of the model.     

The politics of security sector reform in ‘fragile’ or ‘post-conflict’ settings: a critical review of the experience in Timor-Leste

Security sector reform (SSR) policy has, for the better part of a decade, been viewed as instrumental to the larger international project of improving and strengthening the ‘capacity’ of post-conflict and ‘fragile’ states. The current policy approach, which represents a merging of security and development agendas in the post-Cold War era, is based on the premise that fragmented, ineffective, poorly managed and politicised state security institutions threaten political stability and undermine poverty reduction and sustainable development goals. The objective of this article is to examine aspects of what has been described as the ‘SSR policy-practice gap’ that arose in the course of implementing SSR policy in Timor-Leste by analysing the systemic basis of the gap. An analytical framework that untangles the relationship between SSR policy objectives, targets and outcomes is presented in concert with a discussion of the social and political circumstances that confronted international organisations and donor countries when they sought to implement SSR policy in Timor-Leste. By using the analytical framework to assess the policy coherence between SSR objectives and the SSR programme contained in UN Security Council Resolution 1704, the ubiquitous disconnect between SSR ‘Gospel and Reality’ is pulled more sharply into focus.     

Islamist militancy in Sierra Leone

This article examines the contemporary Islamic trends in post-conflict Sierra Leone (through 2009) against the background of international concerns that the country might become a haven for religiously-inspired violence. It argues that there is some evidence that prolonged economic impoverishment and foreign religious influences, especially from Saudi Arabia and Iran, have led to a reinvigoration of Islam in post-war Sierra Leone. Though this reinvigoration has resulted in the visibility of more purist strains of the religion, there are no indications that the Sierra Leonean Muslim groups are actively participating in any worldwide jihadist network or will engage in large-scale religiously-inspired extremism and violence. The recent history of the country indicates that attempts to mobilise religious sympathies for political ends in Sierra Leone have been short-lived and largely unsuccessful     

Transforming security sectors: the IMF and World Bank approaches

Since the end of the Cold War, donors have come to realise that when security sectors operate autonomously, with scant regard for the rule of law, democratic principles, and sound management practices, sustainable, poverty-reducing development is extremely di?cult, if not impossible, to achieve. Because of the substantial ?nancial resources and technical expertise at their disposal, there is a growing expectation that the World Bank and the International Monetary Fund will play an important part in supporting improved security-sector governance. These organisations have, however, long taken the position that, because of restrictions on political activities in their Articles of Agreement, their involvement in issues pertaining to the security sector must be limited. This article suggests that a governance approach to the security sector is well within the mandate of both organisations. And it is necessary for the Bank and the Fund to address the quality of security-sector governance if they are to be e?ective in carrying out two of their core functions: reforming public institutions and strengthening governance.     

To arrest insecurity: time for a revised security sector reform agenda

Despite the exponential growth in the attention and resources devoted to security sector reform (SSR), positive tangible outcomes remain hard to find. A ‘conceptual-contextual’ divide exists between SSR's stated goals and its actual implementation, a fissure that suggests the need to re-evaluate its tenets as currently conceived and practiced. This paper contributes to such a reappraisal and argues for a new round of SSR debate and policy formulation that will be simultaneously more pragmatic and less ambitious, while listening carefully to the wishes of those who are to benefit from SSR. Our core argument is that the current understanding of SSR policy provides practitioners with neither the requisite intellectual foundation nor practical guidance to craft institutions that arrest insecurity. Consequently, a number of the central concepts of the current SSR agenda—local ownership, civil society, governance, multi-sectoral approach, etc.—need to be recast to make them operationally effective, managerially coherent, and susceptible to measurable evaluation.     

Securitization and Desecuritization: Female Soldiers and the Reconstruction of Women in Post-Conflict Sierra Leone

This article focuses on the construction of “soldier” and “victim” by post-conflict programs in Sierra Leone. Focusing on the absence of individual testimonies and interviews that inform representations of women and girls post-conflict, this article demonstrates that the ideal of the female war victim has limited the ways in which female combatants are addressed by disarmament, demobilization, and reintegration (DDR) programs in Sierra Leone. It is argued that titles given to female soldiers such as “females associated with the war,” “dependents,” or “camp followers” reveal the reluctance of reintegration agencies to identify females who participated in war as soldiers. In addition, I argue that men and masculinity are securitized post-conflict while women—even when they act in highly securitized roles such as soldiers—are desecuritized and, in effect, de-emphasized in post-conflict policy making. The impact of this categorization has been that the reintegration process for men has been securitized, or emphasized as an essential element of the transition from war to peace. In contrast, the reintegration process for females has been deemed a social concern and has been moralized as a return to normal.     

Development policy and the democratic peace in Sub-Saharan Africa

The contention that ‘democracies do not ?ght one another’ has gained widespread acceptance in the discipline of international relations, as well as among policymakers and international institutions. In the post-Cold War era, this contention has formed part of the justi?cation for making development assistance conditional on democratic reforms in recipient countries. This article explores the democratic peace thesis in relation to Sub-Saharan Africa, and argues that the relationship between peace and democracy is much more complex than commonly allowed for in conventional liberal analyses. Contemporary development policies that are intended to promote peace, democracy and stability are frequently implicated in the production and continuation of con?ict. Accordingly, the article contends that many of Africa’s conflicts and so-called ‘failed states’ are best understood in light of policies inspired, in part, by the principles of the democratic peace thesis. The argument is illustrated with reference to four countries on the African continent: Côte d’Ivoire, Rwanda, Sierra Leone and Zambia.     

The African post-conflict policing agenda in Sierra Leone

This article examines policing in Sierra Leone four years after the civil war. It evaluates the achievements in the area of policing against the major policing challenges in African post-conflict societies. These are recruitment and (re)training of a civilian force; establishing an organizational culture that is accountable and responsive to citizen concerns; organizational rebuilding and re-equipment; utilizing the resources of commercial and community organized policing; and establishing a sustainable basis. The research finds that for all the positive achievements, the fact remains that the government of Sierra Leone still does not exert effective control over, nor is it able to deliver state policing services to, significant parts of its own territory. The 7,000 active police officers are too small in number and too limited in resources to provide all Sierra Leone's citizens with a service that protects them from crime and investigates crime. Its fundamental weaknesses mean that post-conflict internal security programmes may have to look again at others who currently authorize and provide policing. It may be that some community led policing groups can be harnessed and if necessary reformed to assist the police in establishing the rule of law.     

Security sector reform: The building of security in Bosnia and Herzegovina

This article addresses the issue of Security Sector Reform (SSR) in Bosnia and examines whether the reform of security structures has enhanced security of Bosnia as a whole. The experience of recent armed conflict, and fragmentation and ethnicization of security structures have created special challenges for SSR in Bosnia. Transformation of the security sector in Bosnia is made even more complicated by the plethora of international actors involved in the process. The article argues that, despite the complexity of the task, SSR has produced some notable results, particularly in redressing the balance of power between the state and entities in the spheres of defence, policing and intelligence. However, while some of the SSR initiatives appear to be very successful in their main objective, they have inadvertently created some new security risks and/or displaced problems into another area. Thus, the question remains whether Bosnia's security has been enhanced in the process. The article identifies two main obstacles which block further progress in the building of security in Bosnia: first, the lack of local ‘ownership’ of SSR, and second, the Dayton constitutional arrangements. The article concludes that until these two fundamental issues are effectively addressed Bosnia will remain a weak, marginalized country filled with insecurity, divisions and adversity.     

The role of security sector reform in sustainable development: donor policy trends and challenges

This paper attempts to account for the gap between donor policies in support of SSR in developing countries, in particular in post-conflict African states, and their record of implementation. It explores the inadequacies of the present development cooperation regime and argues that a substantial part of this gap can be explained by the tension that exists between the prevalence of a state-centric policy framework on the one hand, and the increasing role played by non-state actors, such as armed militia, private security and military companies, vigilante groups, and multinational corporations on the other hand, in the security sector. This paper, which acknowledges the growing importance of regional actors and questions the state-centric nature of SSR, recommends a paradigmatic shift in the current approaches to development cooperation. The external origin and orientation of SSR needs to be supplemented by more local ownership at the various levels of SSR conceptualisation, design, implementation, monitoring, and evaluation in order to enhance synergy between donor priorities and interests on the one hand, and local needs and priorities on the other hand.     

The substance of EU democratic governance promotion via transgovernmental cooperation with the Eastern neighbourhood

Existing studies of the European Union’s (EU) democratic governance promotion via transgovernmental cooperation in the EU’s neighbourhood seem to take the substance of what is being promoted by the EU for granted. In filling this gap, this article examines the substance of EU democratic governance promotion by assessing (1) to what extent norms of democratic governance appear in EU Twinning projects implemented in the Eastern neighbourhood, and (2) what factors account for differences in the presence of democratic governance norms across those projects. To explain possible variation, the article hypothesizes that the democratic governance substance of Twinning projects will vary with the country’s political liberalization, sector politicization, sector technical complexity, and EU conditionality attached to reform progress in a given policy sector. Data are retrieved from a content analysis of 117 Twinning project fiches from the Eastern neighbourhood and analysed via standard multiple regression. The article finds that the EU mostly promotes moderate, mixed democratic governance substance, which varies across different projects. This variation may be best explained by the level of political liberalization of the beneficiary country and the politicization and technical complexity of the policy sectors and institutions involved in respective Twinning projects.     

Group identity—a neglected asset: Determinants of social and political participation among female ex-fighters in Guatemala

Many of the armed conflicts after World War II have had female fighters, such as El Salvador, Eritrea, Guatemala, Sierra Leone and Sri Lanka. In the disarmament, demobilisation and reintegration (DDR) process that followed the signing of the Guatemalan peace accord in 1996, altogether 766 women were demobilised. This article seeks to explain why some of these women became politically and socially active in the post-conflict peacebuilding phase, whereas others did not. Contrary to the negative experiences of female ex-fighters from Sierra Leone and West Africa, the article points out that the Guatemalan female ex-fighters preserved a positive group identity developed during the war. In particular, the war experiences represented an asset for social and political participation to those of the female ex-fighters that reintegrated collectively—together with their male ex-combatants. The article concludes that future DDR programming should take into account the importance of group identity and the needs and the own wishes of female ex-fighters from different war contexts.     

EU internal security governance: the case of counter-terrorism

There are clear indicators that in spite of the sensitivity of internal security in terms of essential state functions and national sovereignty an EU governance framework with specific characteristics has emerged in the counter-terrorism field. Common threat assessments guide governance responses, and specific institutional structures, cooperation mechanisms, legal instruments, and forms of external action have been put into place to respond to the cross-border nature of the terrorist challenges. However, in line with the general subsidiary role only of the EU as provider of internal security in addition to the Member States, this governance framework remains based on the interaction and cooperation between national counter-terrorist systems and capabilities that remain largely under national control and still enjoy relatively wide margins of discretion in terms of priorities, legal framework, and organization. This analysis concludes that the EU's internal security governance – as evident from the counter-terrorism field – may be best characterized as an advanced institutionalized system of cooperation and coordination between national governance frameworks constructed around a core of common instruments and procedures with a cross-border reach.