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

Peacemaker’s ToolkitBut many terrorist movements or organizations do adhere to a set ofpolitical principles designed to attract followers. The publication of such adocument, however, is not always indicative of its desire for politicalaccommodation, or minimally, its willingness to engage in a dialogue. A closestudy of a terrorist movement’s founding document—as well as an investigationof how it was written and by whom—can provide substantive clues on itspolitical goals. Conversely, movements may claim that their founding chartersare no longer relevant or that they are willing to modify the radicalismcontained therein. Some such claims do indeed attest to a significant shift in aPAG’s political goals, but other claims may be little more than negotiating ploys.Considerable controversy has surrounded the issue of amending thePalestinian National Charter—the constitution of the PLO—which, interalia, denies Israel’s right to exist. At various times since 1998 the PLO’sleadership has claimed that clauses within the charter have been nullified orabrogated to meet American and Israeli demands. Other parties have notbeen convinced by these assertions. Former CIA Director James Woolsey hassaid: “Arafat has been like Lucy with the football, treating the rest of theworld as Charlie Brown. He and the PNC keep telling everyone they’vechanged the charter, without actually changing it.”A PAG’s political strategy, as well as its principles, should also beassessed. The latter may indicate a philosophical embrace of inclusivenessbut the former may point out that such inclusiveness is more rhetoricalthan actual. For instance, a mediator may conclude that it is not worth theeffort of engaging a group that extols democracy in the abstract but whosestrategy suggests that in practice, were it ever to win elections, it wouldpromptly abandon further elections.A mediator should also consider non-ideological goals. Movementsassociated with criminal activities such as narcotrafficking and smugglingmay have little to gain from a diplomatic settlement because their illegalactivities would be prohibited by a functioning system. However, in caseswhere their business is not incompatible with rule of law, it might bepossible to co-opt or reach an accommodation with movements that havetheir eye on the bottom line rather than those driven by political grievances.Figure 1 reproduces a chart, published by Conciliation Resources, of someof the other non-ideological indicators of a PAG’s readiness to engage in apeace process.24