Global Facilitation Network for Security Sector Reform (GFN-SSR)

Demilitarising militias in the Kivus (eastern Democratic Republic of Congo)

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What are the major challenges in demilitarising militias in the eastern Democratic Republic of Congo (DRC)? This paper for the African Security Review analyses the militias currently active in North and South Kivu (the Kivus), in the eastern DRC.

The war in DRC officially ended in 2003 and a fragile peace has been established. Demilitarisation has been a complex process because it attempts to integrate security sector reform (SSR) with disarmament, demobilisation and reintegration (DDR). However, the Kivus are still plagued by endemic violence. This is rooted in the politicisation of Hutu-Tutsi ethnic divisions and autochthony – the perception of different groups as being “authentic” Congolese or outsiders.

The main spoilers to the peace process are dissident militias that have emerged outside the original peace agreement. These range from the highly organised Democratic Force for the Liberation of Rwanda (FDLR) to factionalised, informal groups such as the Mayi Mayi, and renegade elements in the Congolese national army (FARDC). Key aspects of the ongoing conflict in the Kivus are:

• Ethnic manipulation is used to secure control over economic resources. Land tenure in the Kivus remains the strongest factor in determining economic survival and contributes to the persistence of ethnic-based militias.
• There is a low level of impunity in the post-conflict reconstruction processes in DRC. This makes it easier for militias to flourish and creates incentives for them to resist demilitarisation.
• An open policy towards co-opting militia leaders from groups formed after the original peace agreement has resulted in a national army that is 70 per cent commanders and only 30 per cent soldiers. This creates problems for security sector reform.
• Disarmament and demobilisation have been overemphasised. Reintegration has been an afterthought, with no focus on political or social factors.
• There is a continuous flow of cheap small arms into the region. This is a major factor in perpetuating violence in the Kivus.

Despite the successful demilitarisation of a significant number of combatants across the DRC, the government and its international partners face serious problems with DDR in the Kivus. The most significant challenge lies in getting firm commitments from militia leaders to take part in demilitarisation and the process of integration into the FARDC. Tutsi groups and pro-Hutu Mayi Mayi are especially resistant because they want to continue defending their local populations. Specific policy recommendations to address the challenges of demilitarisation in the Kivus are:

• Government and the international community must cooperate to contain the rise of new militias. Firm deadlines should be set for dissident militias and rogue FARDC battalions to disarm and demobilise. Non-compliance should be met by offensive attack and exclusion from the political and economic benefits of DDR.
• An effective SSR strategy must focus on dealing with corruption within the FARDC administration and creating financial incentives to deter soldiers from criminal activity.
• Better reintegration programmes must be developed to provide ex-combatants with the financial and logistical support they need to reintegrate into civilian life.
• The government must manage its natural resources in a more transparent and effective manner.
• The international community must take a more proactive role in preventing illegal arms trafficking into the DRC.

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