PKSOI Lessons Learned Report January 2019 | Page 17

Major Shortcomings of DDR Programs
in the Democratic Republic of the Congo
(Lesson #2699)
Observation:
Five major shortcomings contributed to the failure of Disarmament, Demobilization, and
Reintegration (DDR) programs in the Democratic Republic of the Congo (DRC) over the
2002-2009 timeframe, perpetuating security problems well beyond: (1) unrealistically short
timelines to accomplish stated goals, (2) inadequate funding, (3) an over-emphasis on
disarmament, (4) the failure of the DRC to enact meaningful Security Sector Reform (SSR)
and create competent security forces, and (5) the DRC’s troubled relationships with
neighboring countries, particularly Rwanda.
Discussion:
After several years of armed conflict in the DRC, combatant groups ultimately agreed to
peace terms on 17 December 2002. These terms called for the establishment of DDR
programs. DRC leaders, supported by various international actors, proceeded to create
four distinct DDR programs: a DDR-Reintegration and Resettlement program aimed at
repatriating foreign fighters, two national programs aimed at demobilizing various Congolese
rebel and militia groups, and one program that focused specifically on the province of Ituri –
an area plagued by violent rebel groups. After seven years’ time, however, these four DDR
programs failed to accomplish their objectives – with many ex-combatants resuming their
former livelihoods as fighters. The DRC’s DDR programs largely failed because of five
specific shortcomings:
1) Unrealistically short timelines to accomplish stated goals.
The DDR-Reintegration and Resettlement program – which targeted militant groups
including the Interahamwe (a Hutu paramilitary organization), groups of fighters formerly of
the Forces Armées Rwandaises (FAR / Rwandan Army Forces), and various other ethnic
militia groups – allowed only 90 days for the withdrawal of Rwandan fighters and for the
dismantlement of the Interahamwe and FAR groups within the DRC. 90 days was not
enough time for the DRC to train, mobilize and deploy its own security forces to oversee the
resettlement/repatriation process. Also, this short timeframe did not give the UN (MONUC)
enough time to prepare and deploy sizable formations to help implement this complex
process over an under-governed eastern region.
2) Inadequate funding.
The various DDR programs all suffered from inadequate funding. The DDR-Reinte-
gration and Resettlement program ran out of money halfway through its lifespan. For all
four DDR programs, the services planned/promised for demobilized combatants and their
families (financial support, food, clothing, shelter, heath care, and psychological counseling)
could not be delivered on a consistent basis due to funding shortfalls. Also, only $14 million
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