Has the Ituri Disarmament and Community Reinsertion (DCR) programme stabilised the North-eastern region of the Democratic Republic of Congo? What policy considerations should be taken into account to strengthen the programme? This report by the Clingendael Institute of the Netherlands and the Africa Initiative Programme analyses the current situation of the DCR programme and describes the challenges it faces. In particular, it discusses the difficult decision of moving from voluntary to forced disarmament and demobilisation.
The inter-ethnic conflict in Ituri began in 2003, precipitated by warring in the Great Lakes region. An estimated 50,000 civilians were killed and half a million displaced. In May 2004, the Trans National Government invited Ituri militia groups to the negotiation table to develop a military solution. Militia leaders committed themselves to the DCR programme, aimed at disarming and demobilising the 15,000 Ituri militias and stabilising the region. The DCR has three stages: Preparation (sensitisation), transit (disarming combatants) and community reinsertion or incorporation into the FARDC.
Officially the voluntary disarmament and demobilization phase is over, but a third of the militias remain armed. Key challenges for the DCR programme are:
- Militia leaders were appointed to senior posts in FARDC (the Congolese Armed Forces) in Kinshasa in the expectation that militias would then disintegrate, disarm and demobilise. This has had questionable results and a tougher line towards the militia leaders is required.
- Only a small number have joined the FARDC due to lack of communication and cooperation between key stakeholders and confusion on the part of the militias about what is expected of them.
- Reinsertion assistance was offered to militia members and communities to resume civilian life but information on the nature of assistance given has been not been widely disseminated.
- The specific needs of women associated with the militia are not being taken into account. A basic survey of women in the militias is needed and women should be direct programme beneficiaries.
- The programme is considering whether to move from voluntary to forced disarmament and demobilisation. Forced disarmament may bring military security, but may not bring human security to the Ituri communities.
Adequate reinsertion assistance is a powerful incentive to leave the militia but so far the community reinsertion trajectory has not provided enough of an incentive. A more sustained approach to reintegration is required. A balance between short-term reinsertion and long-term reintegration is needed. Specific policy recommendations are:
- Clearer and better communication is required for ex-militias to find out how to join FARDC. The FARDC should be made more attractive as an employer.
- One suggestion is to develop local security structures as an alternative to reintegration into the FARDC. This will allow ex-combatants to stay in Ituri.
- More staff need to be employed to accelerate the implementation of micro-credit projects for combatants.
- To manage the expectations of militias, ex-combatants and communities, information needs to be better coordinated and more consistent.
- Reinsertion activities should focus on relatively safe zones.
- Special sensitisation measures are required for female militias so that they feel safe and welcomed into the DCR programme.
