Fostering a farewell to arms : preliminary lessons learned in the demobilization and reintegration of combatants

This report examines experiences in El Salvador, Eritrea, Ethiopia, Mozambique, Nicaragua, and Uganda in terms of policy and legal issues, political context, and program implementation. The special needs facing female, disabled, and child ex-combatants are discussed, along with recent initiatives in Haiti and Angola. Conclusions and lessons learned are analyzed in detail. From a policy and legal perspective, supporting demobilization has been challenging for USAID because of legal restrictions on assisting foreign militaries and the inflexibilities of development assistance. Yet staff have found creative solutions enabling USAID to be supportive and still uphold the spirit of the legislation. Congressional appropriations, such as the Demobilization and Transition Fund for El Salvador and the African Disaster Account, have been important vehicles for USAID involvement. While the political context makes demobilization assistance risky for USAID, which must constantly assess whether the parties are sincerely committed to peace before obligating resources, the demobilization process itself is usually straightforward. Demobilization and reintegration programs need to address the critical period right after demobilization, when ex-combatants have returned to their communities. Short-term monetary or in-kind assistance facilitates veterans" reinsertion into society and provides them an important buffer period for finding their way in a civilian economy. The experience with in-kind assistance has not been fully satisfactory, because "Buy America" restrictions have raised the cost of such assistance. Monetary assistance can be provided in one or two payments or in monthly periods extended over time. There are advantages and disadvantages to each, and donors need to examine several factors before deciding which is most suitable for a given country. The purpose of reintegration programs is to ensure ex-combatants" financial independence and acceptance in the community. There is significant evidence that such programs should be community-based rather than target ex-combatants as individuals. In addition to financial initiatives such as credit or microenterprise programs, or vocational training programs, USAID has had positive experience in establishing information and referral centers that link ex-combatants with job, training, and credit opportunities. In sum, demobilization and reintegration efforts have been successful, despite many complications and bumps in the road. One issue not yet fully addressed concerns security. Countries emerging from a war-to-peace transition have experienced increased banditry and lawlessness at a time when peace is expected to prevail. USAID may well want to consider programs to strengthen respect for the rule of law to fully consolidate and increase personal and property security in post-transition situations. Includes bibliography. (Author abstract, modified)