Talking to Groups that Use Terror.pdf - United States Institute of Peace

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IntroductionThese three manuscripts are the source of much of the material in the followingchapters. The order in which that material is presented and some of thewording, however, is new, with large and small sections of the three manuscriptsbeing interwoven to create a handbook that—the editors hope—offersa broader but no less insightful perspective on negotiating with terrorists thanthat provided in any of the three individual manuscripts. This handbook alsopresents ideas and examples culled from other sources; as indicated in theendnotes, two books, John Darby’s The Effect of Violence on Peace Processesand George Mitchell’s memoir of mediating in Northern Ireland, Making Peace,were particularly useful.While the authors deserve the credit for much of the insightful advice offeredin this handbook, none should be held responsible for a particular idea orobservation, which he may or may not have provided and to which he may ormay not subscribe.In answering such questions, this handbook draws on the experiencesand expertise of both mediators and negotiators. However, mediation andnegotiation are not the same thing—the former intended to resolve aconflict, the latter often seen as another means of waging that conflict—and some of the advice in the following chapters is more applicable to oneendeavor than to the other. Generally speaking, mediation receives thelion’s share of attention.The applicability of advice also has much to do with who or what ismediating or negotiating. A government may have less freedom ofmaneuver in dealing with terrorist organizations than an intergovernmentalorganization (IGO), and an IGO may be less flexiblethan a nongovernmental organization (NGO) or an individual.The decision of the U.S. Supreme Court in June 2010 to uphold a lawthat makes it illegal for any American to offer a terrorist entity “materialsupport” of any kind, including training and advice—even advice intendedto direct it toward peaceful and legal activities—further complicates thepicture. 5 A U.S. negotiator can negotiate and a U.S. mediator can mediatewith a group designated as terrorist on the State Department’s andTreasury Department’s lists, but the negotiator or mediator cannot offeradvice—which offers some but limited room for diplomatic maneuver!Exactly how this judicial reaffirmation of these legal restrictions will playout in practice is uncertain. Chester Crocker, who orchestrated thenegotiations with the ANC over Namibia, anticipates that these laws will11
Peacemaker’s Toolkitdeter external mediation efforts by individuals and organizations based inor supported by the United States and the twenty-seven members of theEuropean Union (which also has a list of proscribed organizations), andhe noted that there are forty-seven terrorist groups on the StateDepartment’s List of Foreign Terrorists and hundreds more on theTreasury Department’s lists. 6 Certainly, one can expect those countries—such as Switzerland and Norway—that do not have to navigate such bansto play more prominent roles in trying to bring PAGs into peaceprocesses. 7 As the reader will discover, this handbook provides not onlyoptions for talking to terrorists but also, at least in some instances,guidance on which actors can even consider such a course of action.The Peacemaker’s ToolkitThis handbook is part of the series the Peacemaker’s Toolkit, which is beingpublished by the United States Institute of Peace.For twenty-five years, the United States Institute of Peace has supported thework of mediators through research, training programs, workshops, and publicationsdesigned to discover and disseminate the keys to effective mediation.The Institute—mandated by the U.S. Congress to help prevent, manage, andresolve international conflict through nonviolent means—has conceived of ThePeacemaker’s Toolkit as a way of combining its own accumulated expertisewith that of other organizations active in the field of mediation. Most publicationsin the series are produced jointly by the Institute and a partner organization.All publications are carefully reviewed before publication by highlyexperienced mediators to ensure that the final product will be a useful andreliable resource for practitioners.Other titles in the series include• Managing a Mediation Process• Managing Public Information in a Peace Process• Timing Mediation Initiatives• Working with Groups of Friends• Integrating Internal Displacement in Peace Processes and Agreements• Debriefing Mediators to Learn from Their Experiences• Conducting Track II Peacemaking12
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Page 18 and 19: Step 1Assess the Potential for Talk
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Page 47 and 48: Peacemaker’s ToolkitDecide How to
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Page 60 and 61: Step 4Foster Commitment to theProce
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Step 4: Foster Commitment to the Pr
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Peacemaker’s Toolkitsovereignty.
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Peacemaker’s Toolkitconscious of
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Peacemaker’s Toolkit➤➤➤➤P
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Peacemaker’s ToolkitSome PR techn
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Peacemaker’s ToolkitA deadline fo
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Peacemaker’s Toolkitnegotiations
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Step 6Protect the Process from theE
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Step 6: Protect the Process from th
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Step 6: Protect the Process from th
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ConclusionThis handbook has focused
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Conclusionbetween PAGs and governme
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Notes12. Dudouet, Mediating Peace w
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AcknowledgmentsThe editors are grat
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Peacemaker’s ToolkitClingendael.
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Peacemaker’s ToolkitNancy Zirkin,
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