GABON/CAR: FRAMEWORK AGREEMENT ON CAR DDR PROCESS

UNCLAS SECTION 01 OF 06 LIBREVILLE 000567 SIPDIS LONDON AND PARIS PLEASE PASS TO AFRICA WATCHERS 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 LIBREVILLE 00000567 002 OF 006 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. LIBREVILLE 00000567 003 OF 006 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 LIBREVILLE 00000567 004 OF 006 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 LIBREVILLE 00000567 005 OF 006 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, LIBREVILLE 00000567 006 OF 006 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. 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