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

Peacemaker’s ToolkitWhen such a back channel is exposed, it can prove embarrassing togovernments that claimed not to negotiate with terrorists, but the use ofintelligence officials is less politically risky than formal ties.Engage in Covert TalksDiplomats or other senior government officials can convey the seriousnessof a government’s commitment to talks more convincingly than otherinterlocutors. Similarly, a mediator or senior member of his or her teamcan underscore a readiness to start substantive talks by meeting in personwith the representatives of a PAG. However, a government—or mediator—may have many powerful reasons not to want to make such personalcontact public, not the least of which is the danger of provoking afirestorm of condemnation for sitting down with a group that is currentlymurdering its political enemies and members of the public. In suchcircumstances, covert talks may be the only practicable option.In 1972, even though the British government officially foresworenegotiations with the IRA, senior British officials met with IRA members,including Gerry Adams, who was transported from prison for the talks.Covert talks, however, are dangerous in themselves, because they runthe risk of being discovered—or, more likely, being revealed. Members ofthe government who are uneasy about the talks may leak details of theirexistence to the media. And the terrorist group may itself publicize theexistence of the talks if they do not generate the results the group hadhoped they would. Remember that at this stage of the conflict, mutualdistrust is very high and violence is likely to be ongoing. Indeed, the secrettalks often take place at the same time as each side tries to improve itsbargaining position via military action. 19Talk with Political WingsIf direct talks with terrorists are too difficult to arrange or too morallyor politically objectionable, mediators and negotiators can work througha political wing of the PAG. Sometimes, indeed, governments help tocreate such wings. Governments can knowingly allow a group to form anovert political wing as a way of engaging the organization. Governmentscan then negotiate directly or indirectly with these political figures withless risk.50