What are the key challenges and opportunities for security sector reform (SSR) in difficult contexts? This chapter compares SSR in the Central African Republic (CAR), Colombia, Democratic Republic of the Congo (DRC), Georgia, Morocco, Nepal, Sri Lanka and Timor-Leste. It finds a significant gap between the theory and practice of SSR. A practical approach is needed that gives greater attention to accountability, gender-mainstreaming, change management and political factors. Reform will only be successful if linked to specific problems that are considered urgent by political leaders and stakeholders.
The ‘ideal-type’ SSR is based on comprehensive, whole-of-government approaches as outlined in the UN Secretary General’s 2008 report on SSR. In practice, however, SSR is often carried out in extremely challenging or ‘barely enabling’ environments. It may be hindered by: ongoing violence and conflict; pervasive corruption; unstable political frameworks; imprecise, open-ended or inconclusive peace agreements; contested or impending elections or referenda; and a lack of resources.
Comparative analysis of SSR processes and activities indicates that there is a significant gap between the ideal-type and real-life SSR at the country level.
- SSR tends to be partial and limited – focusing on a small number of security providers (e.g. the military or police) and giving priority to making the security sector more effective, rather than strengthening accountability. There are also gaps in implementing and sequencing SSR activities. For example, appropriate security reviews may be lacking during the initial phase, and reform of oversight bodies often lags behind that of security-providing institutions).
- Obstacles to SSR include: the negative impact of ongoing conflict; resistance from domestic elites; lack of accountability to and oversight by parliament, judiciary and civil society; inadequate attention to gender aspects; and weak donor coordination.
- Enabling factors include: peace agreements (although in many cases they focus exclusively on the military rather than providing an entry point for reform of the wider security sector); engagement of international organisations and external donors; and domestic drivers (such as political commitment to change or specific security problems).
SSR is a complex and sensitive process that needs to be tailored to the economic, political, security and social environment. Key recommendations for improving SSR in challenging environments include:
- Adopt a practical or programmatic approach. This may involve prioritising and sequencing SSR activities on the basis of an in-depth review, whilst at the same time working towards the overarching objective of reinforcing the accountability and effectiveness of security institutions.
- Avoid prioritising operational capacity over accountability. Recognise that efforts to build technical capacity should be complemented by efforts to strengthen governance and accountability frameworks. Accountability is critical with respect to: security providing-institutions, the executive, the legislature, the judiciary, independent oversight bodies and civil society.
- Manage the process of change. Political commitment at the highest level is essential to bring about change or transformation of the security sector. There is also a need to establish an institutional home for SSR dealing with the entire sector; this unit should provide assistance in terms of the conceptualisation, coordination and evaluation of SSR.
- Mainstream gender issues in SSR. Possible initiatives include: integrating gender as a key feature of security reviews; evaluating security-related legislation and supporting the development of policies that institutionalise gender issues and the fight against gender-based violence; and building the capacity of SSR oversight bodies for gender-responsiveness.
- Address the political dimension of SSR. Reform will only be successful if linked to specific problems that are urgent and relevant to political leaders and stakeholders. Peace agreements are also critical and should incorporate a system of checks and balances that lead to power-sharing rather than power-separation.
- Undertake further research to advance understanding of the processes, challenges and opportunities for transforming SSR principles into practice.
