How should non-state armed groups (NSAGs) be engaged in disarmament as part of peace negotiations? How should disarmament be introduced, addressed and ultimately achieved? This article from the United Nations Institute for Disarmament Research (UNIDIR) sets out how disarmament should be dealt with in the different phases of negotiation with NSAGs. Disarmament is a particularly sensitive topic for NSAGs as giving up their weapons amounts to giving up their power. As a result, disarmament is often most effectively addressed through other topics or in parts.
NSAGs present international mediators with particular challenges. They are often cut off from civilian life, live only in the short-term and do not have the skills to negotiate.
In negotiations with NSAGs, disarmament is often addressed through other topics, and in parts, in order to avoid drawing attention to the fact that it is under discussion. There is no “one size fits all” solution. However, three factors must be dealt with if disarmament processes are to be viable:
- The peace process must cover all issues. Mediators must consider both what parties insist are the key issues and those which they do not want to discuss.
- Disarmament negotiations depend on movement on a wide range of other issues. Today, conflicting parties want a comprehensive vision of their future before they are willing to drop their arms.
- Disarmament must not be neglected in negotiation, whatever the wishes of the parties. Mediators must ensure that both parties are reassured, but that disarmament is nonetheless addressed.
Disarmament must be dealt with differently in each phase of negotiations. There are often four phases when dealing with NSAGs: pre-pre-negotiations, pre-negotiations, substantive negotiations and implementation:
- Pre-pre-negotiations involve establishing contact and building confidence with the NSAG. Disarmament can be the perfect topic for initial discussions because it affects the NSAG directly.
- In the pre-negotiation phase, the mediator is attempting to answer basic questions about how, where and when talks will take place and what issues will be discussed. The aim is to create an inclusive process. Disarmament should probably not be discussed at this stage. It can prove a deal breaker if the parties have little confidence in each other. The mediator should resist attempts to tie progress on disarmament to other issues.
- In the substantive phase, when formal negotiations take place, work often begins on a disarmament plan. However, it is often not labelled as such, but rather as reconciliation mechanisms or standard peace procedures. The best approach is to embed disarmament measures within the total content of the process. Parties should see it as part of a larger picture.
- In the implementation phase, it is vital to put agreements on disarmament into action, not only in relation to government forces, but also in relation to civil society.
