How can Security Sector Reform (SSR) in the Democratic Republic of Congo (DRC) be improved? What SSR lessons can be learned from the DRC’s United Nations Mission (MONUC)? This book chapter from the Geneva Centre for the Democratic Control of Armed Forces (DCAF) finds that the UN has been slow to address SSR comprehensively in the DRC, but has been hampered by the complex political and security context and the virtual collapse of the state. SSR must take place at different levels simultaneously, together with other reform processes.
SSR is crucial to the DRC’s governance and stability but has been neglected by donors and the UN. The DRC is a problematic context in which to conduct SSR because: its army is factionalised and controls significant natural resources; the powers of the police and army are not separated; the judiciary is subject to political control; and regulatory bodies are ineffective and corrupt. The legislature, financial management and human rights protection must be strengthened if SSR is to be effective.
Political will is needed to address deep-seated governance problems in the DRC. Greater human and financial resources must be allocated to SSR in the DRC, both by the Congolese government and donors. Capacity-building, technical assistance and political influence are needed to support institutional reform. Further findings are:
- Many army, police and justice reform activities were undertaken by various actors in the DRC, but remained disjointed despite the establishment of several coordination mechanisms. The lack of coordination and a broad strategic framework has undermined SSR activities.
- The lack of vetting of security officials has allowed war criminals to join the new army, seriously undermining operations and public trust, and allowing abuses to continue.
- SSR, especially army reform, should have begun early in the UN peacekeeping mission.
- All actors in the DRC lack a clear understanding of SSR, and the organisation of elections was prioritised over SSR.
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A peacekeeping mission’s strength is in facilitating SSR, and this role needs to be more clearly defined.
SSR must be understood as a long-term, community-based process that begins early in a peacekeeping mission. Concepts and practice of SSR, good governance and institution-building need to be clarified across the UN, and the Security Council needs to provide a strong mandate to missions on SSR as part of governance. Recommendations include:
- A focal point for SSR is insufficient – a unit or wider network of agency SSR focal points must be established. A joint donor coordination mechanism chaired by MONUC and the EU should be established.
- The effectiveness of monetary payments in DDR is questionable, as money is often used to buy weapons rather than food. Job training, education and work opportunities should be provided in consultation with the community.
- Army reform can play an important role in overcoming ethnic tensions, but higher standards of recruitment and vetting are needed. Programmes should be developed for those who do not meet the entry criteria as well as for those who do. Human rights training for the army and police requires careful planning and consistent follow-up.
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Joint policies and regional agreements should be established with neighbouring countries, especially in relation to the demobilisation of foreign armed groups and allegations of support to Congolese militias.
