Day: April 11, 2011

Is it time to negotiate with Qaddafi?

Theatlantic.com published this piece of mine this morning:

Apr 11 2011, 9:50 AM ET

It’s time to look for a way to end the war in Libya, but dealing with the regime won’t be easy

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Louafi Larbi/Reuters

With self-appointed African Union mediators shuttling between Tripoli and Benghazi meetings with the Libyan government and rebel leaderships to try and end the war, the important question is whether the international community should be negotiating with the Qaddafis. The answer depends on what we are negotiating about and how well prepared we are to pursue our shared interests.

The subject of the negotiations must begin with the departure of Muammar Qaddafi and the rest of his family from Libya. Anything less than that would create a difficult fractious post-war situation in Libya, with a de facto division of territory between Qaddafi-held west and rebel-held east, and with Qaddafi continuing to control Tripoli. If, as former Congressman Curt Weldon proposed, Muammar were to step aside but his son Saif al Islam continued to play a role in the transitional structures, the probability of a successful transition would likewise be reduced to nearly zero.

The Qaddafi family will not give up power in Libya so long as it remains physically present. It has its own armed forces as well as security agents and controls the vast funds derived from Libyan oil exports over the past 42 years. Tens of billions squirreled away in U.S. banks have been frozen, but we can be certain more billions remain unfrozen elsewhere, or stowed in gold ingots in Tripoli. It is not even clear what “step aside” would mean for Muammar, since he has no official position in a Libyan state.

Since Qaddafi’s power does not depend on his position in the Libyan state, he and his sons could well maintain their military and political power even if they were to accept retirement to a desert tent. In any case, Saif al Islam, who was educated at the London School of Economics-educated and has spent much of his life enjoying Europe’s most luxurious hotel, would be unlikely to accept such a life out of power. Libya is quite unlike Egypt in this respect. Hosni Mubarak’s retirement to Sharm el Sheikh was acceptable to the protesters not only because Sharm is far from the maddening crowd but also because the army seemed prepared to guarantee the political transition. It was accepted by the protesters as loyal to the Egyptian state, not to Hosni Mubarak.

Even in Egypt, there are now profound doubts about what the army is up to. Mubarak’s return to the public sphere with a statement flatly denying corruption and the army’s harsh treatment of protesters in Tahrir square the last few days have left many wondering whether the counterrevolution is in full swing. But Libya has no army loyal to the Libyan state. This lack of institutional framework (no constitution, few ministries, no chief of state, not even a real rubber stamp parliament) would make the transition in Libya so problematic.

The ongoing violence contributes to this uncertainty as well. Under violent attack from security forces, the opponents of Qaddafi long ago gave up nonviolent protests for an ill-prepared military assault on his regime. Qaddafi has redoubled his efforts, ensuring that there will be many dead on both sides. Accountability for the violence will not come quickly, but it will probably not come at all if Qaddafi and family are allowed to remain in the country. Most Libyans simply won’t stop resisting if they remain.

So if we are negotiating about Qaddafi and his family departing from Libya, then how well prepared are we to pursue that objective?

Leverage in negotiations depends on what other options you have, should the negotiations fail. In this case, our best alternative to a negotiated solution appears to be to continue fighting. That is not a very good option. NATO will have increased difficulty finding legitimate targets, as Qaddafi’s forces park their heavy armor near schools and mosques and disguise their remaining vehicles to look as much like rebel vehicles as possible. Enthusiasm for the continued military effort is likely to fade. Neither the French nor the British — the leading forces striking Libya — will want to go on ad infinitum, and some of the others participating will likely want to quit even earlier.

Qaddafi knows all this. Like us, his best alternative is also to continue fighting. No one should be fooled by Saif al Islam’s London School of Economics degree or his smooth talk about transition to democracy. Qaddafi and his family give every indication of wanting to preserve their own power. It is hard to know for how long they can go on without running out of money, troops, or cronies, several of whom have already defected. But we can be certain that Muammar regards the issue as one of life or death and will therefore fight on until he finds a way out that enables him and his family to survive.

That is what we may very well need to put on offer: a way out, but one that will only be available if Qaddafi and family to take advantage of it soon. That is what the five AU “mediators” could usefully offer: a comfortable retirement, available only for a short time, in Mauritania, Mali, Congo, Uganda or South Africa. Of these, only Mauritania is not a state party to the International Criminal Court, which may eventually want to prosecute. Venezuela is another possibility, but it is also a state party to the ICC, and the Americans are unlikely to welcome Qaddafi as a resident of the Western Hemisphere. For those who worry that the ICC might never get hold of Qaddafi, remember Charles Taylor, who was allowed to retire to Nigeria only to later be captured and put on trial.

It appears doubtful that the AU delegation will take the kind of hard line required to get Qaddafi to leave Libya. It is much more likely that it will come back with a vague, wishy-washy offer from Qaddafi that sounds good on paper but enables him and his sons to remain in Tripoli making all sorts of trouble and preventing transition to a new, more representative regime. We should not be tempted. Compromised conclusions to NATO air wars in Bosnia and in Kosovo have proven frighteningly difficult and expensive to implement. Nor should we be tempted to put boots on the ground, as we know from Iraq and Afghanistan how painful that can be.

A satisfactory outcome in Libya will be one that vindicates Responsibility to Protect and allows the Americans to stand aside from the post-war reconstruction and leave it to the Europeans, whose energy interests give them motive and means to be helpful to the New Libya.

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Sudan on the eve of divorce, velvet or not

The Middle East Institute and the Fondation pour la Recherche Strategique are cosponsoring a conference today on “Protracted Displacement Challenges Facing Sudan:  What Scope for EU-US Cooperation.”  They wisely ignored their title for the first session and focused instead on the broader political and military dimensions of the situation a few months before Southern Sudan becomes a separate state on July 9.  I’ll try to give a quick summary of a rich set of presentations.

Jan Pronk, former Dutch Minister for International Assistance and former UN Envoy to Sudan,  offered 10 lessons from his experience:

  • Humanitarian assistance and military intervention are not sufficient; a political strategy is needed to prevent conflict.
  • The political strategy needs to be timely, early enough in the game to avoid escalation and establishment of facts on the ground that will be impossible to reverse.
  • The international community needs the political capacity to intervene early based on a UN Security Council mandate, but without having to go through UNSC procedures each time–this would mean a committee mandated by the UNSC but under the authority of the Secretary General.
  • Nothing works unless there is a common approach based on consensus that allows joint action, avoids sending conflicting signals and eliminates the possibility of divisive tactics used by the host country.
  • Such a comprehensive approach may have to be implemented step by step, but within an overall political framework.
  • We may have to occasionally step back and reevaluate, as we should have done after the Darfur Peace Agreeement, in order to avoid building our approach on a basis that is the wrong one.
  • Each UN organization has its own board, with even the same governments saying different things in different organizations; we need to unify the UN approach under a single person who provides common transport, communications, intelligence and security.
  • This requires that UN organizations delegate coordination to the field, where it is done best.
  • The referendum decision in Sudan needs to be implemented peacefully, but we cannot allow Khartoum to sell Southern Sudan independence as a substitute for Darfur cooperation.
  • The military efforts in Ivory Coast and Libya are important because they mean force is being used to protect civilians, but we need to think ahead, avoid collateral damage and put forward a political strategy that opens a back door for the “villains” to depart.

Former US Sudan Envoy Andrew Natsios offered 5:

  • Southern Sudan will be able to gain independence because it has armed itself well, but the North will continue to try to destabilize the South.  Darfur fighting has been fed by Libya, which is supporting the JEM.
  • Two new states will emerge July 9: the North will be majority Arab, the South will be a state with a big army 150,000 strong.
  • The government in Khartoum is weak and nervous, for good reasons.  Turabi is still dangerous and the North faces continuing problems in Blue Nile, Southern Kordofan, Beja and Darfur.  President Bashir is frightened even of his own army, which is largely kept out of Khartoum to prevent a coup (there are only 5000 soldiers in the capital).  The secret police, not the army, sustains the regime.
  • A unified approach among donors is obviously desirable, but difficult because of legal differences among the Europeans, Canadians and Americans.
  • There is still a need for a political settlement concerning the 500,000-1,000,000 Southerners still in the North, but large-scale conflict is unlikely in July because both North and South know it would disrupt the oil flow and bankrupt both their governments, something neither can afford to see.

Rosalind Marsden, EU Representative for Sudan:

  • The EU is trying to develop a comprehensive approach to Southern Sudan and is also looking at the North.
  • EU assistance to the referendum commission, and monitoring of the referendum, was successful.
  • There is a need to make arrangements still for the Southerners in the North and the Northerners in the South.
  • President Mbeki’s African Union effort is looking at these issues and others, but the time is short before July 9.
  • The positions on Abyei have hardened, agreements have not been implemented, half the population of Abyei town has left, and everyone is waiting for Mbeki’s proposals.
  • There are also delays and difficulties with the popular consultations in Blue Nile and Southern Kordofan, which are not likely to be completed before July 9.
  • For Darfur, the main game is the Doha negotiations, where the stakeholders conference is the next important step, but Khartoum’s intention of holding a Darfur referendum has complicated matters.
  • Insecurity is rising in Darfur, with the government conducting military operations and JEM under pressure from developments in Libya.
  • The US and EU need to speak with one voice, as they did on the referendum.  For this, a common assessment and agreement on benchmarks would help.  The Southern Sudan 3-year development plan, now being worked in Juba, will be an enormous step forward.

Nancy Lindborg, Assistant Administrator at AID, suggested:

  • Good donor coordination and contingency planning helped avoid problems at the time of the referendum, with UN DPKO helping to focus international efforts as well as cooperation with both North and South.
  • The big issues are still out there:  oil revenue, citizenship, currency, borders are unsettled.
  • The South is absorbing 320,000 returnees, many of whom are urbanized, into a society that is mostly rural, largely illiterate , lacking in infrastructure and with a high rate of infant mortality.
  • AID is focused on mitigating conflict, combating corruption, promoting economic growth (mainly via agriculture) and building the capacity of the Southern Sudan government to provide essential services.
  • The effort is shifting from relief to development, including urban planning, land distribution, small business and youth.
  • The next big issues will come from governance.

It would be hard to be optimistic based on this event, but at least officials are thinking hard and ahead about the requirements.  And it is comforting to know that there are such capable people still engaged.

But what they need in Juba is a stronger architecture for the international assistance effort, and stronger links to the host country’s own plans.  As things stand, conditionalities are never met because the Southern Sudanese can always donor shop elsewhere.  Nothing like the pillar structure in Kosovo or even the High Representative in Bosnia exists in Southern Sudan.  Even the UN effort is fragmented.  Donors need to get together on a common approach shared by the Southern Sudanese.

 

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