Afghanistan Peace and Reintegration Program (APRP) Training Package

Afghanistan Peace and Reintegration Program (APRP) Training Package

Scope APRP Program Overview Phase 1 Outreach Phase 2 Demobilization
Phase 3 Consolidation Governance Structures and Administrative Processes Case Studies

Key Documents PoA Presidential decree, 29 June 2010
Afghanistan Peace and Reintegration Program (APRP) – Program Document, 12 July 2010 GIRoA Joint Order, dated 29 August 2010 Reintegration The process by which insurgents (both fighters and groups of fighters) opt out of the insurgency and peacefully rejoin their communities. To do so they must renounce violence and agree to support the laws of GIRoA. Reintegration Firstly… reintegration is an Afghan Program and Afghan lead. Secondly ..It is a natural part of any COIN Strategy and planning for it and providing the means for conflict resolution can accelerate the road to peace. Reintegration is a normal process in the resolution of any conflict. Just historically occurred after kinetic victory. Thirdly….support of the IC is critical to long-term success in Afghanistan and THAT will not happen without some form of reintegration and reconciliation. Within it will be key to have grievance resolution and long-term community recovery. Key points to note at this stage are that Program is: Afghan owned and operated. Will accelerate peace. International Support needs to respect Afghan decisions. Reintegration ISAF: the process by which insurgents (both fighters and groups of fighters) opt out of the insurgency and peacefully rejoin their communities. GIRoA: at the operational level, effort focuses on local peace processes with the foot soldiers, small groups, and local leaders who form the bulk of the insurgency. Reconciliation ISAF: where the insurgent movement as a whole reaches an accommodation with GIRoA to bring the insurgency to an end. GIRoA: at the strategic and political levels, effort focuses on the leadership of the insurgency. This is a complex and highly sensitive issue that requires a subtle approach.

Understanding what Reintegration is NOT
Surrender Paying insurgents to stop fighting Ceding territory to insurgents Ceding political or security rights or authority to insurgents Compromising Islamic rights 4

What is APRP? The Afghanistan Peace and Reintegration Program (APRP) is an Afghan-led peace programme which aims to take insurgents out of the fight and return them to their communities with honour and dignity so that they can live peaceful, productive lives. The APRP is enabled through 3 phases: Social Outreach Demobilization Consolidation of Peace

CONSOLIDATION OF PEACE
Three Phase Process SOCIAL OUTREACH Strategic communications Negotiation and addressing grievances Sub-national and community outreach Covered in more detail in Module 2 DEMOBILISATION Biometrics, vetting, registration, assessment & transition assistance Weapons management and community security Detainee release Disengagement Training Covered in more detail in Module 3 Integration to ANSF / since this is only one of many routes – employment options pending the ANSF decisions CONSOLIDATION OF PEACE Community recovery Literacy, religious and vocational education and training Employment opportunities Covered in more detail in Module 4 6

Three Phase Process APRP requires a solid, continuous foundation of
OUTREACH + GRIEVANCE RESOLUTION DEMOBILIZATION CONSOLIDATION Does not pass vetting: Removed from APRP Social outreach & messaging Contact Negotiation & Dialogue Community Recovery: “Menu” of Options Transition Assistance Disengagement Training Registration Formal Vetting Weapons Reg Intent to Reintegrate Reintegration Declaration form signed Community Vouches for Insurgents Community does not vouch: Relocation - To date, outreach has begun, and initially focuses on ensuring distribution of GIRoA guidance. Over time, the combination of social outreach via Shuras etc, improvements in local security and increased partnering with GIRoA should build popular confidence in the government, as well as present an attractive alternative to fighting for members of the insurgency. - What I would like to do for you now is to describe how APRP would take-on a reintegration event. - In the field, an event begins with an insurgent making contact with GIRoA or coalition officials—either directly or via an intermediary. What ensues is a negotiation process whereby government officials at the community, district and province level, ICW ANSF and ISAF, discuss the nature of core grievances and desired outcomes. This discussion, which could require multiple meetings over a significant period of time, would result in each insurgent completing an intent to reintegrate form, where they declare in writing their intent to reintegrate, cease violence, and obey the orders of GIRoA officials throughout the process. Once signed (or thumb printed) by the insurgent, initial humanitarian needs can be addressed, and the demobilization and community assessment processes truly begin. - During demobilization, PPRC and DRC officials (assisted by JS mobile teams and ISAF if necessary) will gather biometrics, collect and register weapons, gather all necessary data, and take actions to place the insurgents on a restricted targeting list. These steps form the inputs for official vetting, with the ultimate goal to determine eligibility for APRP. Reasons for ineligibility may be: -- Outstanding criminal record – Jail?; Not an Afghan citizen – Deportation?; Recidivism – Jail?; Ineligible (not an insurgent)? With an official determination made, the community must determine if they will accept the insurgent(s). This step is key as it is deigned to prevent recidivism, and to provide a sense of honor/benefit to the returning insurgents. MoI is responsible for facilitating a relocation if necessary, due to an inability to overcome grievances for example. Vetting complete, the insurgent and GIRoA enter into a written agreement, or Reintegration Declaration, wherein the insurgent declares he renounces violence, will respect the Afghan Constitution, will sever all ties to AQ and terrorism. - With an agreement complete, PPRCs (supported by JS, ANSF and ISAF) will execute immediate short term projects IAW the community assessment mentioned earlier. Intent is to utilize the CDC-style format for community decision making. These projects are designed to bridge to longer term recovery efforts selectively applied from the “menu of recovery options.” Finally, reintegration of detainees is possible once CJIATF 435 (MoI as of Jan 2011) determines a detainee is eligible for release. While not all detainees will choose to reintegrate and join APRP, those that do will be required to complete the full process. Much of this coordination is still underway, as represented by the dashed line. Most importantly, I must reiterate the foundational requirement to provide security and address grievances to ensure a durable outcome. Grievance Resolution Security APRP requires a solid, continuous foundation of Grievance Resolution and Community Security

To reiterate, reintegration is a GIRoA led programme assisted and facilitated by UNAMA and ISAF/PRTs. High Peace Council Mission: The High Peace Council advises the President on matters of policy, directs the Joint Secretariat and provides outreach to execute the Programme. Organization: 70 representative leaders (includes 10 women), Prof. Burhaanuddin Rabbani, Chairman Composition: Elders, politicians, academics/scholars. Joint Secretariat Mission: provides the coordinating function to bring all strands of the Programme together and to enable issues to be resolved. It also provides technical and financial support and political encouragement to the provincial and district level. Organization: Min Massom Stanekzai Chair, Operations Cell, Policy Cell, Finance Cell, Support Cell, Special Staff (Legal, Strat Comm, Gender Advisor ) Composition: an inter-agency body with representation from the MOD, MOI, NDS, IDLG (the Directorate responsible for provincial government), ISAF and other GIRoA ministries as required. The point to emphasise and where previous attempts failed is that reintegration will take place at community level as a series of local peace processes, the district and provincial level reintegration structures are pivotal using the political community ‘amnesty’ on offer from GIRoA. They will attempt to deal with the atomised society by creating a multitude of individual peace processes. as they should enable coordination and decision making to take place below Joint Secretariat level. Support to the communities is primarily provided by District Governors through District Reintegration Shuras (names may differ on the ground) which should incorporate local elders and leaders, representatives of ANP, NDS, ANA and existing District Government institutions. ISAF and PRTs should be represented in the partnering role as observers to advise and assist. As well as supporting community level reintegration, these bodies provide the essential link between community and provincial governor. At provincial level, day to day reintegration activity is to be coordinated and executed by Provincial Peace and Reintegration Committees (PPRCs). These should be established by each Provincial Governor with representation from MOD, MOI and NDS, as well as from provincial development institutions, tribal and community elders, and religious scholars. The bottom up nature of this initiative demands local actors, ourselves and the Afghans to create local solutions 8 8

Provincial Peace & Reintegration Committee (PP&RC)
Objective: a PP&RC must be established to enable the APRP to be implemented at the provincial level. Lead: Provincial Governor Membership: Provincial Development Committee representatives Security committee Head of Provincial Ulema and religious scholars Tribal elders (should not exceed 21 members) Activities: Outreach and establishing dialogue Supporting grievance resolution Other activities in support of peace and reintegration Reintegration The process by which insurgents (both fighters and groups of fighters) opt out of the insurgency and peacefully rejoin their communities. To do so they must renounce violence and agree to support the laws of GIRoA. Reintegration ISAF: the process by which insurgents (both fighters and groups of fighters) opt out of the insurgency and peacefully rejoin their communities. GIRoA: at the operational level, effort focuses on local peace processes with the foot soldiers, small groups, and local leaders who form the bulk of the insurgency. Reconciliation ISAF: where the insurgent movement as a whole reaches an accommodation with GIRoA to bring the insurgency to an end. GIRoA: at the strategic and political levels, effort focuses on the leadership of the insurgency. This is a complex and highly sensitive issue that requires a subtle approach. 9

Provincial Reintegration Support Team (PRST)
Objective: Provide support to the Governor and PP&RC for APRP matters Membership: Chief Demobilization Program Officer Community Recovery Program Officer Communication Officer Information Management Officer Activities: Execute PPR&C decisions Implement APRP activities Draft project proposals in support of APRP to submit to Joint Secretariat Reintegration The process by which insurgents (both fighters and groups of fighters) opt out of the insurgency and peacefully rejoin their communities. To do so they must renounce violence and agree to support the laws of GIRoA. Reintegration ISAF: the process by which insurgents (both fighters and groups of fighters) opt out of the insurgency and peacefully rejoin their communities. GIRoA: at the operational level, effort focuses on local peace processes with the foot soldiers, small groups, and local leaders who form the bulk of the insurgency. Reconciliation ISAF: where the insurgent movement as a whole reaches an accommodation with GIRoA to bring the insurgency to an end. GIRoA: at the strategic and political levels, effort focuses on the leadership of the insurgency. This is a complex and highly sensitive issue that requires a subtle approach. 10

Strategic Communications
Objective To inform the communities about the program and the benefits of reintegration Why? Getting the word out will encourage communities to support the program, and encourage fighters to consider reintegrating. Activities Prepare advertising material to get the peace process message to the people and fighters Arrange media opportunities for each of the 3 phases

Outreach Objective To start a dialogue with communities and fighters leading to reintegration Why? Outreach is a good way to reconnect the Afghan people with their government. In reaching out to people you are extending your authority, building trust and creating peace. Activities Talking about APRP to the influential people you know Setting up Provincial Peace and Reintegration Committees Coming up with proposals to seek financial support Organizing events like shuras and jirgas Engaging media Facilitating communication efforts Listening to messages or signals being sent by those who might be interested to join the program Be prepared to meet people Be ready to discuss reintegration

Grievance Resolution Objective Understand why people fight and take it into account when offering fighters a way to lay down arms in dignity Why? If you pay attention to grievances and come up with ways to reconcile with your brothers, you are sowing the seeds of peace. Activities Conduct assessments Ask fighters why they fight Opening negotiation in good faith Getting help from respected mediators, elders, local leaders, NGOs Organize gatherings like jirgas and shuras Make good gestures towards those you want to open a dialogue with Organize procedures to address and resolve differences

Do’s Take every opportunity to talk about the program
Say “join the peace process” Embrace the people, they take the courageous decision to join the peace process, they are your brothers Build trust, confidence and respect Give a chance for upset brothers to come home in peace with honour and dignity Learn about the program and your role, it is a great opportunity to bring peace and prosperity to your community Seek advice and guidance from respected elders if you are uncertain how to proceed Identify whether reintegration is creating ‘losers’ who need engagement, reassurance and support Make sure the systems are in place so that the people going through reintegration can be managed well Help identify projects that can improve the life of fighters and their communities Share information about reintegration opportunities and cases so that you can get the support you need

Don’ts Don’t call reintegration “surrender” or say they are joining the government or “putting down their weapons” Don’t offer amnesty or immunity from GIRoA prosecution. Don’t support or be party to any agreement that cedes political authority or territorial control to insurgents. Don’t make promises of assistance or development support. Don’t compromise on Islamic principles. Don’t offer a direct reward or payment to insurgents for stopping fighting. Don’t ignore suspected abuse or corruption in the reintegration process. If necessary report it. Don’t do anything that is outside the law

Implementation Currently, Demobilization is managed by Joint Secretariat mobile teams travelling to the location where reintegration opportunities arise. This is not a permanent procedure. Provincial authorities need to take action now to develop their demobilization capability.

Demobilization (1) Registration : Provincial Reintegration Support Teams will arrange for registration to be conducted. This includes completing the “Intent to Reintegrate” form and “Individual Survey”. [See survey training brief] Biometrics: MOI is the lead agency for collecting biometric information. Vetting: Using the personal information collected by MOI, the following levels of vetting will be conducted: National vetting: MOI and NDS will conduct name checks against the national criminal database. Provincial vetting: MOI will conduct name checks against the Provincial databases. The PPRC will decide if they are prepared to vouch for the reintegrees. Community Vetting: The Community will decide if they are prepared to accept/vouch for reintegrees. If not, MOI will determine alternative arrangements. **Joint Secretariat Standard Operating Procedures are available which describe these activities in more detail. 19

Demobilization (2) Weapons Management : In contrast to DIAG, the APRP allows reintegrees to keep their personal weapons, however, these must be registered. MOI is responsible to register weapons. MOD will store heavy weapons (eg machine guns, RPGs). Security: MOI (assisted by NDS & MOD) will provide security. ANSF and ISAF will work closely to determine the security risks in each reintegration case and determine a course of action to mitigate these risks. Within this process, GIRoA guidance has laid out specific tasks for various ministries. For MoD, many of these tasks are supporting roles, with the exceptions being weapons storage and community/reintegree security. 20

Demobilization (3) Transitional Assistance Package: JS will support the Provincial authorities to provide a transitional package of food and provisions. A standard package has been prepared for national consistency. Disengagement Training: JS will support the Provincial authorities to provide disengagement training. This training will include: Citizenship package Peace package Justice and rights package Religious package Community planning and employment package Under development Within this process, GIRoA guidance has laid out specific tasks for various ministries. For MoD, many of these tasks are supporting roles, with the exceptions being weapons storage and community/reintegree security. 21

Do’s Ensure key components of negotiation and grievance resolution have been completed prior to commencing demobilization Register and return personal weapons Collect heavy weapons Ensure the security and safety of your staff and the reintegrees during the process Preserve the honor of the reintegrating insurgent, respect his dignity and avoid him losing face Follow the Joint Order and other documents that detail the program requirements. Ensure staff are trained to conduct and administer the APRP documentation

Don’ts Don’t wait for APRP to come to your Province. Be proactive.
Don’t rush into demobilization. Ensure the conditions have been created through negotiation and education Don’t take unnecessary risks or ignore security rules or procedures Don’t do anything that is outside the law Don’t take shortcuts

Consolidation Key Principles:
The consolidation phase aims to ensure that peace and reintegration are permanent. What will be offered in this phase for a community will be tailored to its particular needs and what can be accomplished there (security and capacity permitting): Communities will need to understand that what they will receive will not be identical to what other communities receive. 26

- APRP Program Document, July 2010
Community Recovery Recovery Options, which will be developed uniquely for each community, may include: Literacy training Vocational training Employment opportunities Development projects for the community National Community Recovery will involve all members of the community— not just ex-combatants - APRP Program Document, July 2010 27

Do’s Remember that for APRP to be successful, all three phases of the program need to delivered to reintegrees and their communities Engage with Provincial and District Development Councils to assist with determining development priorities and potential projects Remember that women need to benefit from APRP programs as well Remember that community expectations will need to be managed about what they can expect to receive

Don’ts Don’t make promises of support that exceed the principles of the APRP Don’t do anything that is outside the law

Finance

How to get access to funds
The APRP is an Afghan program, but the international community fully supports the government’s efforts and has pledged support for APRP activities. To get access to these funds, the PP&RC can suggest initiatives, which are then made into proposals by the PRST. PP&RCs will be authorized to approve projects up to $10,000. Larger projects will be referred to the Technical Committee of the Joint Secretariat for approval PRTs, ISAF and international partners may also be able to fund APRP projects.

Afghanistan Peace and Reintegration Program (APRP) Case studies
Also, Prof Rabbani letter. V1 3 Nov 10 32

Walk in – Kandak داخل شدن- کندک
یگ گروپ نفری به کندک مراجعه نموده و در خواست می نماید تا در مورد ادغام مجدد صحبت نمایند. شما آنها را چه مشوره می دهید؟ چگونه شما افراد را برای پاسخ دهی توصیه می نماید حکومت افغانستان باید چه کار نماید؟ چه گزینه های وجود دارد؟ چه عوامل وضعیت را پیچیده می سازد؟ A representative of a group of men approaches the kandak to ask to talk about reintegration. What do you advise them to do? How do you advise your men to respond? What should the Afghan government do? What are the options? What factors make this situation complex?

Insurgent Avoiding GIROA شورشی از حکومت اجتناب می نماید
نماینده یک رهبر شورشی به یک شماره آیساف که وی در کابل میدانست، زنگ میزند. این نماینده ادعا میکند که رهبر شورشی میخواهد با آیساف در مورد ادغام مجدد تحت پروسه صلح صحبت نماید، اما آن رهبر شورشی نمیخواهد که با دولت افغانستان گپ بزند. آیساف از تیم محلی پی آر تی در خواست میکند تا به این رهبر شورشی شماره تیلفون وزیر استانکزی( وزارت ادغام مجدد در کابل) را بدهد. رهبر شورشی آن را رد مینماید و نیز صحبت با ولسوال و والی را رد مینماید. چندین هفته میگذرد و رهبر شورشی بطور دوامدار شکایت میکند که آیساف وی را حمایت نمیکند. دولت افغانستان چه باید کرد؟ آیساف چه باید کرد؟ چه گزینه های وجود دارد؟ کدام فاکتور ها این وضعیت را مغلق میسازد؟ The representative of an insurgent leader calls an ISAF contact he knows in Kabul. The representative claims the insurgent leader wants to talk with ISAF about reintegration under the Peace Process (APRP), but that the insurgent leader does not want to talk with GIROA. ISAF asks the local PRT to give the insurgent leader Minister Stanekzai’s phone number (the Reintegration Ministry in Kabul). The insurgent leader refuses to call Kabul, and refuses to speak with the district and provincial government. Many weeks pass, and the insurgent leader continues to complain that ISAF is not supporting him. What should the Afghan government do? What should ISAF do? What are the options? What factors make this situation complex?

Pakistan Refugees Want to Join پناهندگان پاکستان می خواهند متصل گردند
یک گروپ از مردم اعلام میکنند که آنها پاکستان را ترک نموده اند و میخواهند به ادغام مجدد بپیوندند. آنها ادعا میکنند که ایشان ده سال قبل بمقصد زندگی به پاکستان رفتند، اما شورشیان آنها را مجبور ساختند که فرزندان شان جنگجو شوند و در حال حاضر آنها میخواهند دوباره به خانه هایشان برگردند. آنها وعده میسپارند که اگر معامله صورت گیرد، خانواده ها و فرزندان شان از پاکستان خارج گردند. آنها از دولت تقاضا زمین مینماید زیرا آنها مهاجرین اند و آنها تقاضا حمایت انکشافی میکنند. هزاران نفر از این مردم در پاکستان منتظر اند. دولت افغانستان جه باید کرد؟ آیساف چه باید کرد؟ چه گزینه های وجود دارد؟ کدام فاکتور های این وضعیت را مغلق میسازد؟ A group of people announce they just left Pakistan and want to reintegrate. They claim that they left 10 years ago to live in Pakistan, but the insurgents have been forcing their sons to become fighters and now they want to return to home. They promise to bring their sons and families out of Pakistan if a deal is made. They request that GIROA give them land because they are refugees, and they request development support. Thousands more of these people are waiting in Pakistan. What should the Afghan government do? What should ISAF do? What are the options? What factors make this situation complex?

Informal Reintegration ادغام مجدد غیر رسمی
در جریان جلسه روزمره با قریه دوستانه، پی آر تی محلی و نیروهای امنیتی همکار شان با بزرگان قریه بحث و گفتگو مینماید. بزرگان توضیح میدهند که قریه چندین شخص را که شورشیان را ترک نموده اند تا جنگ توقف نماید و آنها با مردم شان در فضای صلح زندگی نمایند، دوباره پذیرفته اند. با اینکه این قریه هیچگاهی از پروسه صلح و ادغام مجدد دولت افغانستان واقف نبودند دولت افغانستان چه باید کرد؟ آیساف چه باید کرد؟ چه گزینه های وجود دارد؟ کدام فاکتور ها این وضعیت را مفلق می سازد؟ During a routine meeting with a friendly village, the local PRT and their partnered ANSF have a discussion with the village elders. The elders explain that the village has accepted back several men who have left the insurgency to stop fighting and live peacefully with their community, however the village has never heard of the GIROA Peace Process / Reintegration Program (APRP). What should the Afghan government do? What should ISAF do? What are the options? What factors make this situation complex?

Uncertain Insurgents شورشیان مشکوک
استفاده یک نماینده که به ریئس پولیس محلی مراجعه نماید، یک گروه از شورشیان به ادغام مجدد علاقه نشان میدهند ولی آنها محتاط و غیر مطمین اند.یک سابقه طولانی بی اعتمادی میان روستا ها، حکومت محلی و گروه های شورشی وجود دارد. شورشیان سعی میورزند که متیقن گردند که مردم آنها را میپزیرند و نیروهای امنیتی افغان و آیساف آنها را هدف قرار نمیدهند. آنها بعضی فرصت های تغییر بعد از ادغام مجدد خواهند داشت. دولت افغانستان چه باید کرد؟ آیساف چه باید کرد؟ چه گزینه های وجود دارد؟ کدام فاکتور ها این وضعیت را مغلق میسازد؟ Using a representative who approaches the local police chief, a group of insurgents express an interest in reintegrating, but they are wary and uncertain. There is a long history of mistrust between local villages, local government, and the insurgent groups. The insurgents want to feel confident that the community will accept them back, that ANSF and ISAF will cease targeting them, and that they will have some sort of opportunity for transition after reintegrating. What should the Afghan government do? What should ISAF do? What are the options? What factors make this situation complex? 37

Other Frequently Asked Questions
Who can join the APRP? The APRP is a nation-wide program for all Afghan fighters who agree to renounce violence and ties to terrorist groups and to live peacefully with in the laws of Afghanistan. How will the APRP benefit peaceful and law-abiding Afghans? Under the APRP, everyone benefits because APRP recovery packages are for the entire community. For those Afghans living in communities where reintegration is not occuring, the benefits will come from living in a peaceful and stable Afghanistan. Other development programs will support these peaceful communities. What happens to fighters who want to reintegrate but cannot return to their communities? Communities will decide whom they have back through the PPRC. If a community refuses to accpet a former fighter, or the fighter does not want to return, the Joint Secretariat will find alternatives. This may involve temporary or permanent relocation or other options. 38

Can reintegrees join ANSF and ALP?
Once reintegrated former fighters have completed the program, they are citizens of Afghanistan, and may in some cases join the ANSF or ALP. But to do so, former fighters must be selected by their community and must pass through the same screening procedures as any other ANSF or ALP candidate. There is no guaranteed place in the ANSF or ALP for reintegrees. As a temporary security structure, ALP aligns with the principles of Disarmament, Demobilization and Reintegration ALP is not a primary tool for reintegration of former insurgents although it complements reintegration by supporting the provision of security for communities and individuals who reintegrate. Reintegration efforts may be enabled at locations where ALP is implemented, however, reintegration efforts do not dictate the location of ALP sites After successful reintegration, individuals are eligible for consideration by their communities for participation in ALP, undergoing the standard vetting process for accession and selection.

“Goodness comes from Peace”
“Happiness comes from Peace.”

Afghanistan Peace and Reintegration Program (APRP) Training Package

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