GABON/CAR: FRAMEWORK AGREEMENT ON CAR DDR PROCESS

UNCLAS SECTION 01 OF 06 LIBREVILLE 000567

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E.O. 12958:N/A
TAGS: PREL PHUM CT GB
SUBJECT: GABON/CAR: FRAMEWORK AGREEMENT ON CAR DDR PROCESS

Ref: LIBREVILLE 0517


1. The following is a rough English translation of a framework
document outlining the launch of the DDR process in the Central
African Republic. The original French text has already been provided
to AF/C.

(Begin Text)

FRAMEWORK PAPER ON THE LAUNCHING
OF THE DDR PROCESS
IN THE CENTRAL AFRICAN REPUBLIC

Libreville, November 20, 2008


I. PREAMBLE

The Central African Republic, confronted with rebel movements since
September 2005, is progressing on the road to peace. Following the
discussions the government held with rebel movements, three peace
Agreements were signed successively between February 2007 and May
2008, namely the Syrte Agreement in February 2007 between the
Government and the Democratic Front for the Central African People
(FDPC),the Birao peace Agreement signed in April 2007 between the
Government and the Union of Democratic Forces for Unity (UFDR) and
the Libreville Agreement of May 2008 between the Government and the
People's Army for the Restoration of Democracy (APRD). In turn,
with support from facilitators, a Global Peace Agreement was signed
in Libreville on June 21, 2008.

In line with this Agreement, two meetings of the Follow-up Committee
of the Libreville Agreement were held (September 15 and October 24,
2008) to exchange views on practical modalities for the
implementation of this agreement, and the amnesty law was voted by
the National Assembly on September 29, 2008, then promulgated by the
President of the Republic on October 13, 2008..

The meeting of the Follow-up Committee for the Global Peace
Agreement held in Libreville on October 24, 2008, set up a working
group charged with determining the modalities for the implementation
of the Disarmament, Demobilization and the Reintegration (DDR)
process. It was agreed that this group would submit its report
during the next meeting of the Committee scheduled for November 18,

2008. In this regard, a whole new approach should be developed that
would draw on all the lessons of the past programs. To do this, the
Central African government solicited technical and financial support
from the international community, particularly from its partners in
carrying out the process. The entire preparation of the upcoming
DDR program will require the full participation of all the
signatories to the Global Peace Agreement.

In conformity with the Final Communique of the second meeting of the
Follow-up Committee for the Libreville Global Peace Agreement,
concerning the implementation of a DDR program for combatants of the
signatory political and military movements, the signatories to the
Libreville Global Peace Agreement reaffirmed their genuine
willingness to respect their political commitments and to put into
force all the provisions of the Agreement.

In this regard, the Follow-up Committee noted with satisfaction the
action of the Central African Government which released all
prisoners, and restructured the organizing committee, according to
claims by UFVN and APRD, and formally proposed the date for the
holding of an inclusive political dialogue. The committee also
noted that the APRD for its part continues to respect the ceasefire
and received favorably the announcement of plans to hold an
effective dialogue. The APDR, in addition, addressed a letter to
President BOZIZE promising to provide the list of assembly sites for
its combatants.

The parties agreed, in conformity with the provisions of Article 4
of the Global Peace Agreement, to put in place, with the assistance
of the international community and countries which are friendly to
the Central African Republic, and to the Economic Community of
Central African States and FOMAC/MICOPAX, and with the logistical
support contributed by the French forces, the DDR Program for
combatants of signatory movements and for the rehabilitation of the
areas affected by the conflict.

UNDP indicated its agreement to support the implementation of the
DDR Program based on the technical expertise acquired in other

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countries, and on lessons learned about the difficulties encountered
in previous DDR experiences in CAR. It was proposed that UNDP and
all the parties concerned should work together within a working
group.

In order to implement this program the parties committed themselves
to the following:

FOR THE GOVERNMENT:

- The lifting of possible obstacles, particularly clauses related to
the exclusion or sanctioning of any of the parties, which might
cause a resumption hostilities by the belligerent parties;

- The acceptance of exceptional security and protection measures
assured by FOMAC/MICOPAX, for the return and the period of stay in
the country of the leaders of the parties concerned with the Global
Peace Agreement, and during the implementation of the DDR program;

- A compromise on the deadlines and conditions for the return to the
country of the leaders of the parties involved in the Global Peace
Agreement;

- A compromise on the 60-day deadline under Article 6 of the General
Amnesty Law;

- The clear commitment to an all-inclusive and positive dialogue;

- The commitment for the DDR process to be carried out by a neutral
body which has proven experience in this area (namely the UNDP);

- The positive commitment in the planning process of DDR to a
neutral implementation body and appointment of
spokespersons/delegates to the Bangui working group.

FOR POLITICAL AND MILITARY GROUPS:

- The commitment of political and military groups to provide
necessary information for the preparation of a DDR program,
particularly: the numbers and the lists of names of all combatants,
the positions and the areas occupied, the list of weapons and
ammunition held;

- The commitment of political and military groups to respect the
normal activities of the authorities in their localities;

- The positive commitment in the planning process of DDR to a
neutral implementation body, and appointment of
spokespersons/delegates to the Bangui working group.

ACCEPTANCE OF THE FRAMEWORK FOR IMPLEMENTATION OF THE DDR PROCESS

- The acceptance by all parties of the application of international
DDR standards (IDDRS);

- For transparency and control in financial implementation and
management, the acceptance of procedures and conditions of support
from the international community to accompany the process and thus
guarantee funding, particularly the acceptance of the management of
the program under direct implementation (DEX) by the designated
body;

- For the sharing of information and participation in the process by
all political participants, the setting up of an inclusive
coordination mechanism where all the parties will be represented

THE CONSENSUS OF ALL THE PARTIES ON THE MODALITIES FOR APPLICATION

- Clear and final determination of the criteria for eligibility for
the status of combatant or associate, for claims for benefits of the
DDR program by the signatories to the Agreement;

- Acceptance of mechanisms for verification of the status of
combatant accepted and agreed by the Parties. The verification will
be carried out under the supervision of a neutral force to guarantee
equity and transparency and allow the smooth running of the
process;

- Setting up of a realistic schedule accepted and agreed by all the
parties concerned with the Global Peace Agreement and based on the
schedule for the execution of the DDR program.

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II. DESARMAMENT DEMOBILIZATION AND REINTEGRATION PROGRAM


1. PREPARATORY PHASE

The preparatory phase of the DDR program will be conducted in a
participative manner and will include the following analyses:

- Social and economical profile of those who will be demobilized, in
order to better determine the options for a viable and durable
social and economic reintegration;

- Existing needs in reception communities and arrangements for
receiving the ex-combatants;

- Economic opportunities offered in the country and in the possible
sectors of the reintegration of the ex-combatants;

- Specific role to be played by associated women and by [other]
women in the communities;

- Eventual presence of vulnerable groups requiring a specific
approach;

- Existing capacity of local authorities;

- Presence of local implementation partners

- Analysis of the relations and local dynamics between armed groups,
communities and other constituted groups;

- Development projects and initiatives, ongoing or already planned
in the country, able to provide synergy with the social and economic
reintegration of demobilized persons.

The preparatory phase will be conducted by a UNDP team in close
collaboration with the parties involved in the process.


2. SENSITIZATION

Once the conditions are met to start the DDR process, an effective
awareness campaign will be launched. It will be conducted by the
follow-up committee with support from the Central African
Government, the leaders of politico-military movements, the Union of
Active Forces of the Nation (UFVN),the Presidential Majority and
all the other active forces of the country and the international
community. It will target the beneficiaries and the receiving
communities. It will disseminate information on the future of
combatants, the running of the process, the advantages and the
options presented (who will be integrated, who will be demobilized,
how, when, with what?). The program will be based on an individual
approach to ex-combatants, integrated with a community approach. At
the individual level, only the ex-combatants who meet the criteria
agreed by the parties and their associates will be taken into
account. Their dependents will be taken into account at the
community level.

The awareness campaign will use many information channels in order
to ensure a dissemination adapted to the public concerned, giving
priority to the use of picture messages.


3. REGROUPING AND/OR CANTONMENT

The assembly of combatants will be done under the full
responsibility and control of their respective movements, to allow
the verification of numbers of combatants, their identification, the
verification of the status and profile of the combatants. These
activities will be carried out in the area occupied by each party
and under its direct responsibility.

For the implementation of this step, it is indispensable that the
government guarantee, with the support of the international
community and FOMAC/MICOPAX, the security of citizens in the sectors
affected by the operations, by suspending all its patrols, and that
the signatory parties should commit themselves to definitively cease
their hostilities in absolute respect for the Global Peace
Agreement.


4. IDENTIFICATION AND VERIFICATION

- Sensitization of combatants on the mechanism for identification

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and verification;

- Preparation of provisional lists of the combatants of each party;


- Composition of mixed verification teams made up of members of
different parties under the supervision of FOMAC/MICOPAX;

- Verification of combatant status by mixed teams with confirmation
of status by the mechanisms of supervision, and the military
observers of CEEAC;

- Adoption of the definitive lists of combatants by the supervision
commission and handing the list over to the steering body and to
FOMAC/MICOPAX;

- Identification of the presence of child soldiers among the
combatants and the granting of special child soldier status, so as
to be taken care of by the DDR program;

- Identification and verification of the presence of women to
develop an approach taking into account the aspect of gender during
the whole process;

- Identification and verification of the presence of foreign
combatants in view of a specific procedure for their repatriation.


5. DISARMAMENT

Disarmament is the first obligatory step to commence the
demobilization. It must be understood as a procedure for
collection, recording, controlling and storing of both heavy and
light weapons as well as ammunition and explosives held by the
combatants of each party. Disarmament can be extended to the
civilian population to guarantee security in all the sectors
concerned, particularly through encouraging the combatants to freely
hand over their weapons, in conjunction with the return of security.
The disarmament mechanism includes the implementation of a
procedure for the management of the weapons collected and this
procedure will normally lead to their destruction.

The disarmament will be carried out by a mixed team under the
supervision of FOMAC/MICOPAX.

The disarmament will be conducted for the members of armed groups
and will not concern the Armed Forces of the Central African
Republic (FACA),which will pursue its legal national missions to
guarantee the security of the country.


6. DEMOBILIZATION

Demobilization is the formal and organized return of ex-combatants
of armed groups/armed forces to civilian life. The first step can be
taken from the zone occupied by the combatants towards transit
zones. The second step consists of granting eligible combatants
assistance for reinsertion to allow and facilitate their return to
the communities.

Demobilization will exclusively concern those who will have met the
requirements of the identification and verification mechanisms. It
will not concern dependents who will be integrated through other
opportunities now existing, or to be offered in the communities.


7. REINTEGRATION

Reintegration is a process through which the ex-combatants acquire
civil status, and which enables them to acquire the means for a
viable and lasting livelihood. It is a social and economic process
open in time, which takes place in communities at the base level.
It forms part of the general development of the country and engages
national responsibility. It also requires long term external
assistance.

The social and economic reintegration of the demobilized will
include the individual approach and the community approach.

INDIVIDUAL APPROACH

Reintegration will aim at the strengthening of capacities in the
options offered by the program and at support in kind for the
demobilized to take care of themselves and initiate activities which

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will guarantee them durable means for subsistence. To guarantee the
durability of the economic reintegration of the demobilized,
training programs will particularly be offered to ex-combatants. An
identification and verification mechanism will permit individual
follow-up of ex-combatants in the process of reinsertion and
reintegration.

COMMUNITY APPROACH

It is also necessary to target the communities receiving
ex-combatants. To do this, a participatory and inclusive process
will help identify their needs and define the projects to be
conducted for the benefit of communities. At this level, the
program will in the first place aim at community development by
offering basic social services, and will evolve in an integrated
manner with other ongoing programs.

Opportune synergies will be established with existing programs
conducted by the government and those working to support
development, particularly the European Union, France, the United
Nations, the World Bank.


8. FOLLOW-UP AND EVALUATION

A system for follow-up and evaluation will be set up as soon as the
DDR program starts.

The system of follow-up and evaluation should permit the timely
identification of problems encountered and anticipated, in order to
find solutions. It will also permit the production of reliable
reports.


9. INSTITUTIONAL FRAMEWORK FOR IMPLEMENTATION

The institutional framework will have to be managed by a third party
with proven expertise and capabilities in the field of DDR offering
guarantees for an equitable and durable implementation for the
benefit of beneficiaries and communities.

Moreover, it is necessary that the beneficiaries should be
represented in the structure, to guarantee the sharing of
information and a better understanding of the implementation of the
program.

The Follow-up Committee will be entrusted with the political and
strategic orientation and coordination in the implementation.
However, it will set up a Steering Committee which will be
responsible for the permanent follow-up of the DDR process, the
terms of reference of which will be specified later. The committee
will include:

- One Representative of the Government of the Central African
Republic;
- One Representative for each politico-military movement;
- One Representative of UNDP;
- One Representative of BONUCA
- One Representative of the European Union.

An executive organ for the management and implementation of the
project, under the control of UNDP, will be set up and will include
a central structure and a decentralized structure to be closer to
the beneficiaries. Representatives of the demobilized and of
communities will be recruited within that organ to give priority to
transparency and the continuous sharing of information with them.


10. Calendar

The Steering Committee will propose a realistic calendar for the
implementation of the DDR program to the Follow-up Committee at its
next meeting.

Done at Libreville, November 20th 2008

- His Excellency Mr. Paul TOUNGUI, Minister of State, Minister of
Foreign Affairs, Cooperation, Francophonie and Regional Integration
of the Republic of Gabon;
- His Excellency Mr. Noel Nelson MESSNE, Delegate Minister to the
Minister of State, Minister of Foreign Affairs, Cooperation,
Francophonie and Regional Integration of the Republic of Gabon;
- Mr. Michel MBOUSSOU, High Commissioner at the Presidency to the
Minister of State, Minister of Foreign Affairs, Cooperation,

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Francophonie and Regional Integration of the Republic of Gabon;
- Mr. Guy ROSSATANGA-RIGNAUT, Personal High Representative of the
President of the Republic, in charge of international relations;
- Mr. Cyriaque GONDA, Minister of Communication, Civism, Dialogue
and national Reconciliation of the Central African Republic;
- Mr. Raymond Paul N'DOUGOU, Minister for the Interior of the
Central African Republic;
- Mr. Dieudonn - Stanilas M'BANGOT, Minister, Political Counselor
of the President of the Central African Republic;
- His Excellency Mr. Jean-Didier ROISIN, Ambassador, High
Representative of the Republic of France to Gabon, for the Chair of
the European Union;
- Mr. Albert AKENDENGUE, Special Representative of the President of
the Republic of Gabon to the Peace mission in CAR;
- Mr. GANI ARE, Political Counselor of the Special Representative of
the United Nations Secretary General in the Central African
Republic;
- Mr. Djovi GALLY Special Envoy of the Secretary General of
Francophonie in the Central African Republic;
- His Excellency Mr. Thierry MATHISSE, Ambassador, Head of
Delegation of the Commission of the European Union;
- Mr. Jean-Jacques DEMAFOUTH, President of the People's Army for
Restoration and Democracy (APRD);
- Mr. Jean-Jacques LARMASSOUM, Representative of the People's Army
for Restoration and Democracy (APRD);
- Mr. Djarnib GREBAYE, Representative of the Union of Democratic
Forces for the Rally (UFDR);
- Mr. Henri POUZERE, Representative of the Union of the Resourceful
Forces of the Nation (UFVN);
- Mr. MAMERT SINARINZI, UNDP/DDR Expert;
- Mr. Corrado SCOGNAMILLO, UNDP/DDR Expert;
- Commander Joseph GAUDEUILLE, Director General for Disarmament;
- Commander Jules KOGBIA, National DDR Expert;
- Mr. KHALIFA ABUDIB, Adviser at the Libyan Embassy to Gabon, as a
Representative of the Economic Community of Sahel States (CEN-SAD);
- Admiral Hilaire MOKO, Commander of the Multinational Force of
MICOPAX;
- Mr. Marcel Marcel MOKWAPI, Expert of the Economic Community of
Central African States;
- Mr. Jacques Didier Lavenir MVOM, Expert of the Economic Community
of Central African States.

(End Text)

REDDICK