Photo: MINUSTAH

DISARMAMENT, DEMOBILIZATION AND REINTEGRATION (DDR)

AND TRANSITION PLANNING PROCESSES
Lessons Learned from Recent Transition Processes
 CONTENT
I. Background _________________________________________________________ 1

II. Sustained Political Engagement _________________________________ 4

How DDR teams strive to sustain political engagement in Haiti and Sudan ____ 5

III. Meaningful and Enabling Partnerships _________________________ 6

How DDR teams promote effective coordination and joint planning in transition __ 8

IV. Alternative funding in transitions ___________________________________ 9

V. DDR/CVR team post-transition __________________________________ 11

What DDR/CVR teams look like post-transition in Haiti and Sudan ___________ 12

VI. Conclusion ________________________________________________________ 13

Table of Recommended Actions to DDR Teams at Headquarters and Field Levels
During the Transition Planning Process ____________________________________ 14

DDR Components Transition Planning and Exit Strategy _____________________ 16

List of Acronyms ADB – African Development Bank
ASG - Assistant Secretary-General
BINUH - United Nations Integrated Office in Haiti
CARICOM - Caribbean Community
CPPF - Conflict Prevention and Peace Forum
CVR – Community Violence Reduction
DDR – Disarmament, Demobilization and Reintegration
DMS - Director of Mission Support
DPO - Department of Peace Operations
DSRSG – Deputy Special Representative of the Secretary-General
FBA - Folke Bernadotte Academy
IADB - Inter-American Development Bank
IFI – International Financial Institutions
MINUJUSTH - United Nations Mission for Justice Support in Haiti
MINUSTAH - United Nations Stabilization Mission in Haiti
ODA – Office for Disarmament Affairs
OROLSI - Office of Rule of Law and Security Institutions
PKO – Peacekeeping Operation
SDG – Sustainable Development Goal
SLF – State Liaison Functions
SPM – Special Political Mission
SRSG - Special Representative of the Secretary-General
TAM – Technical Assessment Mission
TWAM – Transitional Weapons and Ammunition Management
UN AFP - UN Agency, Fund and Programme
UNAMID - United Nations-African Union Hybrid Operation in Darfur
UNCT - UN Country Team
UNDP – United Nations Development Programme
UNIDIR - United Nations Institute for Disarmament Research
UNITAMS - United Nations Integrated Transition Assistance Mission
in Sudan
UNLIREC - United Nations Regional Centre for Peace, Disarmament
and Development in Latin America and the Caribbean
UNSC – United Nations Security Council
WAM – Weapons and Ammunition Management
WB – World Bank
 Across conflict-affected contexts, the United Nations pres-
I. Background ence has evolved over time in response to ever-changing
political, security and development dynamics at the coun-
try and/or regional level. To ensure the sustainability of
peace gains and complementarity of interventions, the Or-
ganization must guarantee effective coordination and co-
herence during transitions, particularly when planning the
drawdown or withdrawal of a multidimensional peace op-
eration.

In principle, the support provided by the UN should pro-

mote national capacities and ultimately lead to the hando-
ver of tasks to local actors. However, often the UN must
remain engaged to prevent escalation of violence and re-
lapse into conflict. In such conditions, UN transition is the
process through which activities performed by a peace op-
eration are gradually transferred to national authorities or
another UN presence such as the UN Country Team
(UNCT). It may also refer to the reconfiguration of UN pres-
ence from Peacekeeping Operations (PKOs) to Special Po-
litical Missions (SPMs). This process represents a key
milestone in the lifespan of a peacekeeping operation and
mission components, including Disarmament, Demobiliza-
tion and Reintegration (DDR) sections, as the UN footprint
significantly decreases following the transition process.
To ensure consolidation and sustainability of DDR gains
post-transition, including Community Violence Reduction
(CVR), DDR practitioners need to plan for transition as
early as possible. To this end, this paper outlines lessons
learned from recent transition processes and presents a
series of recommendations aimed at assisting practition-
ers to effectively prepare and contribute to transition pro-
cesses at the headquarters and field levels.

Transition is a complex process involving various national

and international actors and requiring a consistent and co-
ordinated approach. In February 2019, the Secretary-Gen-
eral’s Planning Directive for the development of con-
sistent and coherent UN Transition processes was ap-
proved. It aims to build on and complement the UN Policy
on Transitions (2013) and the Integrated Assessment and
Planning Policy, as well as address the existing policy gap
by providing operational guidance to UN Missions. This Di-
rective defines the Secretary-General’s expectations re-
garding the planning and management of UN Transitions,
covering issues related to the following: (i) early joint plan-
ning and financing, (ii) operational support, and (iii) staff-
ing. The SG’s Planning Directive served to guide the transi-
tion processes in Guinea Bissau, Haiti and Sudan, and will
inform upcoming transition processes in the Central Afri-
can Republic, the Democratic Republic of the Congo, and
Mali. The transition processes in Haiti and Sudan followed
highly distinct approaches due to their conflict dynamics,
and international pressure driven by donor fatigue and re-
source considerations.

1
Haiti
In Haiti, on 13 April 2017, the UN Security Nations Integrated Office in Haiti (BINUH),
Council, through its resolution 2350, re- thus completing the transition of UN pres-
quested the United Nations Stabilization ence into a special political mission.
Mission in Haiti (MINUSTAH), which was es-
tablished in 2004, to gradually drawdown This two-step transition was facilitated by
and withdraw by 15 October 2017. This res- clear objectives and expectations for the
olution also established a follow-on peace- stages of the transition process. The first
keeping mission, the United Nations Mission step was from a large peacekeeping opera-
for Justice Support in Haiti (MINUJUSTH), tion to a smaller peacekeeping mission
for an initial period of one year with a core (from MINUSTAH to MINUJUSTH). The sec-
mandate to assist the Government of Haiti ond was from a smaller peacekeeping oper-
to strengthen rule of law institutions. On 12 ation to a special political mission (from
April 2019, through its resolution 2466, the MINUJUSTH to BINUH). Moreover, it pro-
Security Council renewed the mandate of vided a well-defined two-year timeline for the
MINUJUSTH “for a final period of six months completion of the transition process. This
until 15 October 2019”, marking the end of enabled the mission components to make
15 years of peacekeeping presence in Haiti. headway in early planning from day one of
On 25 June 2019, the Security Council au- the establishment of MINUJUSTH.
thorized the establishment of the United

Sudan
In contrast, the United Nations-African Union Nations political strategy detailing options
Hybrid Operation in Darfur (UNAMID) has un- for a follow-on mechanism to UNAMID”. On
dergone multiple strategic reviews and suc- 3 June 2020, following a period of uncer-
cessive drawdowns since 2014. Efforts have tainty regarding UNAMID’s follow-on mecha-
been made to refocus priority activities nism, the UN Security Council, through reso-
based on new conflict dynamics and, most lution 2524, authorized the establishment of
importantly, to gradually prepare for the mis- the United Nations Integrated Transition As-
sion’s withdrawal. sistance Mission in Sudan (UNITAMS).

In 2018, based on a two-pronged approach, Unlike Haiti, the transition in Sudan followed
UNAMID was initially expected to maintain a more traditional approach. The gradual
military operations in the Jebel Marra area withdrawal of the peacekeeping operation
while focusing on peacebuilding activities in originally focused on the immediate hando-
the rest of the Darfur region. On 27 June ver of tasks to the UNCT. This process was
2019, given the new political context and as- then substituted and adjusted to transition
sociated challenges, the Security Council, into a special political mission. While the
through resolution 2479, requested “an as- concurrent presence of UNAMID and
sessment of the situation on the ground and UNITAMS improved coordination for transi-
recommendations on the appropriate tion, the short transition period and lack of
course of action regarding the drawdown of clarity on UNAMID’s closure created chal-
UNAMID” and “a joint African Union-United lenges in advancing the planning process.

2
Despite different contexts and approaches, As a follow up to the discussion initiated in
these recent transition processes demon- 2019 with Senior DDR Officers on transition
strated that DDR expertise remains relevant planning, the DDR Section held a virtual
after the closure of peacekeeping opera- meeting in December 2020 to take stock of
tions. These processes also called for DDR recent transitions in Haiti and Sudan. Ex-
practitioners to proactively promote early changes reflected on key points that DDR
planning and integrated processes to ensure practitioners need to consider while support-
the sustainability of DDR/CVR and weapons ing and planning for DDR/CVR/WAM contin-
and ammunitions management (WAM) uation and new horizons post-transition.
gains as well as continuity of efforts in the These discussions, coupled with wider DDR
post- transition settings. The continued pro- experience, contributed to the identification
vision of DDR expertise is critical, particu- of key aspects to be considered while plan-
larly in contexts where UN transitions take ning for future transition processes. These
place alongside significant political develop- key aspects are summarized in this docu-
ments, notably the signing of peace agree- ment under the following sections: (i) sus-
ment with armed groups. In such situations, tained political engagement, (ii) meaningful
operational gaps could potentially hinder the and enabling partnerships, (iii) funding op-
provision of technical support and delay im- portunities and bridging mechanisms and
plementation of an integrated DDR process. (iv) DDR/CVR/WAM team post-transition.

Haiti

2004 April 2019

Sudan

UN Missions' Evolution in Sudan 2007-2020

June 2020 Dec 2020

July 2007

U N A M I D U N I T A M S

3
 DDR is a highly political process with a security end state
II. Sustained that aims to create an enabling environment for peace-
building and long-term development. While the UN’s sup-

Political
port to DDR/CVR/WAM is critical during the lifespan of a
peacekeeping operation, the importance of allocating ad-
equate resources to sustain DDR/CVR/WAM activities

Engagement post-transition might be overlooked during the transition

planning process. For instance, transition planning teams
may lack understanding about the technical and opera-
tional requirements for DDR or may assume the existence
of sufficient DDR capacity among national and interna-
tional counterparts. In the absence of reliable capacities,
continued UN support on DDR/CVR/WAM activities will be
required. The recent transitions in Haiti and Sudan proved
that the closing of a peacekeeping operation does not pre-
clude UN support to DDR/CVR/WAM related issues, and
they revealed the need instead for ongoing support con-
sidering political and operational challenges.

To build a solid momentum for DDR/CVR/WAM, prior to

and during transition processes, DDR practitioners need to
reinforce coordination with relevant national, regional, and
international stakeholders to regularly discuss key
DDR/CVR/WAM goals, challenges, and achievements.
Promoting a common understanding of DDR/CVR/WAM
requirements and supporting joint planning with relevant
national, regional, and international counterparts and the
UNCT is critical for the continuation and sustainability of
DDR activities, particularly during the transition process.
Managing expectations with national authorities through
meaningful and systematic engagement is crucial to en-
sure clarity of both the process and outcomes of the tran-
sition process. Insufficient information and mispercep-
tions can severely undermine the planning process and
create obstacles for the provision of adequate support on
DDR.

The transition planning process must be aligned with na-

tional priorities, notably the signing the of a peace agree-
ment between the parties to the conflict. Regular consul-
tations and mutual updates among partners on challenges
and achievements during the transition process contribute
to developing and maintaining political support from na-
tional, regional, and international political actors. Moreo-
ver, the ability of DDR practitioners and relevant UN agen-
cies, funds, and programmes (AFP) to work hand-in-hand
with national counterparts and demonstrate program-
matic synergies constitutes the foundation for the imple-
mentation of an integrated DDR process. Effective coordi-
nation constitutes the basis for developing comprehen-
sive political strategies and the consolidation of political
support from national, regional, and international actors.
For facilitating effective coordination, practitioners must
be aware of the importance of building a network of strong
relationships in and outside the mission.

4
 This level of coordination enables partners post transition. In this regard, both UNHQ
to identify political issues that will persist and field DDR practitioners should work
post-transition and allows for a better as- closely with the Development Coordination
sessment of capacity gaps in addressing re- Office and the UN System on the ground
sidual DDR/CVR/WAM related issues. On the through the Resident Coordinator’s Office to
latter, the ability of both UNHQ and field DDR ensure joint advocacy for DDR/CVR/WAM.
practitioners to build a case for the inclusion The UNHQ may also provide technical assis-
of DDR/CVR/WAM related language in the tance to the Mission and national authorities
mandate of the UN’s new presence is key in at the strategic, policy and technical level on
ensuring political support and guaranteeing DDR/CVR/WAM in support of the transition
the allocation of resources for the continued process.
implementation of DDR activities during and

How DDR teams strive to sustain political engagement in Haiti and Sudan

Haiti
In Haiti, in 2017, based on its transition-oriented programs to align with national priorities, as out-
mindset from day one, MINUJUSTH was very con- lined by the Haitian President post-MINUJUSTH.
scious of the impending handover of CVR imple- The Mission seized multiples opportunities to give
mentation to the national authorities. Given this visibility to CVR initiatives and ensure overall sup-
context, MINUJUSTH/CVR Section built a momen- port, including high level visits. For instance, the
tum for CVR by advancing coordination with the Na- Section facilitated Mission Leadership’s visits to
tional DDR Commission and by conducting political CVR project sites. This allowed the Head of the CVR
advocacy through the provision of regular briefings Section to accompany the SRSG and brief the Hai-
to the mission leadership and key national and in- tian President on options for continuing the imple-
ternational actors. The Section managed to raise mentation of CVR projects to address gang vio-
awareness with the Special Representative of the lence. MINUJUSTH/CVR also facilitated visits of
Secretary-General (SRSG), the Deputy Special Rep- Government Officials to CVR project sites. The Sec-
resentative of the Secretary-General (DSRSG) and tion contributed actively to the official visit of
the Director of Mission Support (DMS) and also se- OROLSI/ASG, including meetings with community
cure political (and financial) support from embas- members and CVR implementing partners. All
sies and international financial institutions (IFI). For these high-level visits contributed to sustain politi-
example, the Inter-American Development Bank cal engagement on CVR related issues and facili-
(IADB) office in Port-au-Prince was essential for tated the inclusion of CVR language in key docu-
sustaining CVR efforts. This support allowed CVR ments.

Sudan
In the case of Sudan, in June 2020, in addition to as penholders of the draft resolution on UNITAMS,
actively participating in coordination mechanisms as well as members of the Group of Friends of DDR.
and thematic clusters, the DDR Section regularly Through this approach, the DDR Section in coordi-
briefed key members of the Security Council to nation with UNDP ensured that clear provisions on
keep them abreast of programmatic activities and DDR, CVR and WAM were included in the Security
operational requirements prior to the renewal of Council Resolution as part of a robust mandate.
UNAMID’s mandate. Once the Council signaled its Within the framework of the Group of Friends of
support towards the constitution of a follow-on DDR, the DDR Section also advocated for the mem-
mechanism, the Section engaged with the United bership of the Permanent Mission of Sudan to the
Nations Development Program (UNDP) to develop United Nations, thus creating an additional channel
a joint paper outlining key strategic objectives. The for sharing key messages and seeking political sup-
document was later used as a basis for briefing port on DDR.
Germany and the United Kingdom, in their capacity

5
 DDR processes are nationally owned and involve a broad
III. Meaningful range of partners. The ability of DDR practitioners to es-
tablish and nurture meaningful collaboration and enabling

and Enabling
partnerships with national actors and UN AFPs from the
beginning and throughout the lifespan of a peacekeeping
operation is critical in facilitating the implementation of

Partnerships the DDR process and sustaining DDR/CVR/WAM gains

post-transition.

From the establishment of a peacekeeping mission, DDR

practitioners must identify their key national, regional, and
international partners and promote local capacities to
carry on with the implementation of DDR/CVR/WAM re-
lated key activities post-transition. To promote effective
cooperation, DDR practitioners must ensure that regional
and international support are aligned with Government pri-
orities. Nonetheless, a lesson learned in Sudan is that
there was a disconnect between the federal government
and Darfur states authorities on local transitional priori-
ties, in which the mission played an important role in as-
sisting to bridge this gap. Fostering common understand-
ing and joint planning is essential to ensure coordinated
interventions and enable each partner to play a comple-
mentary role. DDR practitioners focus on building local ca-
pacity and promoting knowledge exchange as a basis for
the gradual, successful, and uninterrupted transition of re-
sponsibilities to government counterparts as well as UN
AFPs. It is also critical to encourage government officials,
regional and international counterparts to consider the in-
terlinkages between DDR and other related cross-cutting
areas, inter alia, youth and gender mainstreaming. Among
those linkages, the Sustainable Development Goals
(SDGs) have a key role to play, especially the goals on gen-
der equality (SDG 5), decent work and economic growth
(SDG 8), sustainable communities (SDG 11), and peace,
justice, and stable institutions (SDG 16).

Consultations with the UNCT are critical to identifying lo-

cations and types of projects in line with national objec-
tives and improving the allocation of resources before and
after transition. Due to the transition process,
DDR/CVR/WAM components may not have the human ca-
pacity to allocate financial resources to continue the im-
plementation of activities and ensure adequate coordina-
tion during the transition to the new UN presence. In this
regard, seed funding can play a major role.

Capacity-mapping exercises must be conducted at an

early stage to improve coordination and preparedness. Ef-
fective consultation with the UNCT needs to assess oper-
ational capacities, comparative advantages, and territorial
coverage. These aspects are central to the new division of
roles and responsibilities for the continued implementa-
tion of DDR activities. Such engagement also allows the
management of expectations about UN involvement be-
fore and post-transition.

6
 Partnerships with sub-regional organiza- private sector should also be considered as
tions may help identify entry points, foster an a potential partner. It can promote, among
environment for collaboration on a broader others, an enabling environment for conflict
scale, and facilitate a less UN-centric transi- resolution while offering important national
tion process that addresses regional (secu- perspectives.
rity) issues that have not been part of the
Mission’s mandate. At the same time, estab- Significant partnerships with civil society or-
lishing strong partnerships with IFIs, such as ganizations, including traditional and reli-
the World Bank (WB), the African Develop- gious groups as well as community-based
ment Bank (ADB) and/or the IADB, helps mit- organizations, foster ownership during the
igate the financial cliff often seen in transi- transition process. Capacity-building efforts
tion settings. In the case of UNAMID, the targeting communities and relevant local
DDR Section reached out to think tanks and and social actors will enhance trust in UN or-
academia, such as the Conflict Prevention ganizations and motivate their leadership to
and Peace Forum (CPPF), to organize a se- provide active support to transition pro-
ries of workshops aimed at fostering a cesses. Under this premise, the UNCT is en-
strong partnership between DDR and key na- couraged to implement projects through lo-
tional and international stakeholders. The cal implementing partners.

Photo: UNAMID

7 7
How DDR teams promote effective coordination and joint planning in transition processes

Sudan
Throughout UNAMID's transition process and delivery of a series of remote workshops, focusing
UNITAMS planning process, the DDR Section pro- on i) lessons learned, ii) consultations with national
moted coordination and technical cooperation with authorities, iii) analysis of capacities and joint
a series of actors within and outside the UN sys- programming. In support of UNITAMS mission
tem. Regarding UNAMID’s withdrawal, the Section start-up in 2020, additional technical support ave-
engaged with UN entities to assess their actual ca- nues have been leveraged, including through joint
pacity to assume key tasks and the effectiveness project between the Department of Peace Opera-
of innovative approaches such as the State Liaison tions (DPO) and the Office for Disarmament Affairs
Functions (SLF). Anticipating the establishment of (ODA) on “Effective WAM in a Changing DDR Con-
a new mission, the Section proposed conducting a text”. Under the technical assistance mechanism
Joint Technical Assessment to Sudan, aimed at re- established as part of the joint initiative, DPO and
viewing lessons learned from past DDR processes ODA in collaboration with the UN Institute for Dis-
and formulating recommendations for potential ar- armament Research (UNIDIR), facilitated a study on
eas of intervention. For this purpose, the Section the weapons and ammunition dynamics in Sudan,
engaged multiple entities, including UNICEF, the making concrete recommendations on WAM for
WB, African Union, European Union, UNDP, and the UNITAMS, the broad UN system, national authori-
Folke Bernadotte Academy (FBA). ties, and the international community.

Amidst the challenges posed by the COVID-19 pan-

demic, the DDR Section collaborated with the
Conflict Prevention and Peace Forum (CPPF) in the

Haiti
In recognition of the key role of Haiti’s neighboring DDR Context”. The TAM demonstrated the value of
country, the DDR Section engaged with the Perma- a holistic and coherent joined-up approach on DDR,
nent Mission of the Dominican Republic to explore CVR and WAM and led to the formulation of con-
possible good practices in reducing community vi- crete recommendations related to WAM, including
olence in the neighboring country. Through this en- the development of a national arms control frame-
gagement, the Permanent Mission facilitated coor- work in line with international standards and guide-
dination between the DDR Section and the Domini- lines. As a result, follow-up activities were devel-
can Republic President’s office in charge of the Na- oped, facilitating new partnerships between BINUH
tional Programme on Social Inclusion which pre- and the UNCT and relevant UN entities with WAM
sented some similarities with the CVR programme expertise. The follow-up activities include support
implemented in Haiti. MINUJUSTH DDR/CVR team from the United Nations Regional Centre for Peace,
established a solid partnership with the UNCT in Disarmament and Development in Latin America
Haiti by involving UN AFPs in the programming of and the Caribbean (UNLIREC) to the drafting and re-
CVR activities long before the launch of the transi- vision of a comprehensive national firearms law
tion planning process. The use of assessed contri- and the development of a WAM national action
bution to facilitate the implementation of CVR pro- plan. Additionally, a WAM baseline assessment is
jects by the UNCT enabled the UN AFPs to build planned to be conducted by the United Nations In-
their capacities and understand CVR programming stitute for Disarmament Research (UNIDIR) in
modalities. 2021. These efforts support the Government in the
implementation of the Caribbean Fire-arms Roadmap
This approach contributed to a smooth handover of adopted by all Caribbean Community (CARICOM)
CVR implementation role to the UNCT, while BINUH Member States in June 2020. This illustrates the
DDR/CVR team focused on their advisory role. In
catalytic aspect of using the assessed budget in
support of the transition from a peacekeeping op-
promoting joint planning and implementation of ac-
eration, MINUJUSTH, to a special political mission
tivities long before the transition starts and for set-
(SPM), BINUH, DPO and ODA deployed a technical
ting the UNCT on the right track to take over mis-
assessment mission (TAM) to Haiti in 2019, as part sion mandated tasks.
of the joint project on “Effective WAM in a Changing

8
 Ensuring sustained financial support to consolidate DDR
IV. Alternative gains and facilitate the implementation of CVR and other
DDR-related activities, such as WAM, appears to be an

Funding in
uphill battle for DDR practitioners. To address the usual
post-transition funding cliff, DDR practitioners’ proactive
and innovative approaches to resource mobilization are

Transitions essential. Promptly identifying funding gaps, mobilizing

donors’ commitments or exploring alternative funding
mechanisms, prove to be critical in sustaining the capacity
of national counterparts and UN AFPs to implement
DDR/CVR/WAM activities post-transition. DDR practition-
ers need to remember that funding during transition is less
predictable and the amount of available funds tends to be
significantly reduced.

9
 It is important to consider modalities that programmatic funding may be explored to
enhance integration with key national, re- initiate capacity building of key national part-
gional, and international partners who could ners and serve as seed funding for subse-
continue to support DDR/CVR/WAM initia- quent projects led by other international or-
tives. Achieving a continuation of certain ganizations. In addition, financing modali-
DDR activities may include regional organi- ties within the WB as well as the use of
zations, military components, or others. A Peacebuilding Funds as catalytic funding to
well-planned engagement of the Mission promote joint mission-UNCT activities dur-
and the national government with private ing the transition phase should be explored.
sector funding could also mitigate opera- Moreover, the gradual inclusion of
tional constraints. Prior to the transition, DDR/CVR/WAM objectives within other plan-
while funding streams are still available, DDR ning mechanisms such as the United Na-
practitioners should create a strategy, tions Sustainable Development Cooperation
through coordination with relevant national Framework and the Sustainable Develop-
institutions, civil society, UN AFPs that de- ment Goals pooled funds to draw on funding
fines peacebuilding priorities to be ad- allocations that may arise from those frame-
dressed post-transition and that determines works is essential for ensuring sustainability
future DDR/CVR/WAM initiatives to match of interventions.
defined priorities. The use of peacekeeping

In Haiti, in addition to coordinating with the Peacebuilding Fund Support Office, the DDR Section
in close collaboration with the MINUJUSTH/CVR Section, reached out to the WB and the IADB
to explore possible financial support to CVR related activities post-MINUJUSTH. The IADB
showed interest in providing the opportunity for CVR implementing partners to participate in
the IADB bidding process, thus offering them the possibility of accessing funding to continue
the implementation of CVR projects.

Photo: MINUSTAH

10
10
 V. DDR/CVR Along with the financial cliff experienced during most tran-
sition processes, the capacity gaps - between mandated

Team Post-
tasks and staffing allocated to the new UN presence - are
concerning. As technical and operational capacity de-
clines, new sources of instability may arise. Given these

transition challenges, effective planning and capacity mapping can

confer predictability in the transition process.

The potential capacity gap may also be accompanied by

recurrent transitional challenges from an organizational
perspective. It remains difficult to ascertain when condi-
tions are right for a transition to proceed and for a mission
to leave. To overcome these challenges, practitioners
must advocate for an adequate and mandate-driven foot-
print post-transition. Alternative approaches may include
tailored training, deployment of DDR Standing Capacity in
Brindisi and workshops aimed at increasing personnel ca-
pacities. Because DDR/CVR associated initiatives evolve
in response to changing contexts, overall capacities could
in turn be gradually expanded instead of starting with an
analysis of what the mission currently does and then seek-
ing to merely replicate it post-transition. The use of peace-
keeping programmatic funding may be explored to initiate
capacity building of key national partners and serve as
seed funding for subsequent projects, led by other interna-
tional organizations.

Haiti Sudan
DDR Staff Capacity in Haiti DDR Staff Capacity in Sudan
2009/2010 32 2009/2010 5

2010/2011 32 2010/2011 7

2011/2012 32 2011/2012 7

2012/2013 32 2012/2013 16

2013/2014 32 2013/2014 27

2014/2015 34 2014/2015 26

2015/2016 32 2015/2016 24
Transition

2016/2017 30 2016/2017 22

2017/2018 10 2017/2018 5

2018/2019 10 2018/2019 2
Transition

2019/2020 12 2019/2020 1 Transition

2020/2021 2020/2021 5
12

11
2 Staff 2 Staff
Members Members 11
 What DDR/CVR teams look like post-transition in Sudan and Haiti

Haiti
In Haiti, the acknowledgement by the President that funding was earmarked for the reduction of com-
dismantling gangs was one of the key national pri- munity violence in Martissant and La Saline and the
orities contributed to the inclusion of strong lan- reinforcement of national capacity on weapons and
guage on CVR and WAM in Security Council Reso- ammunition control. These projects facilitate the
lution 2476 (2019), i.e., "develop an inclusive ap- continuation of support to CVR and WAM in Haiti,
proach with all sectors of society to reduce com- and thus ensuring the maintenance of security ob-
munity violence, and in particular gang violence". jectives.
As a result, the SPM included a significant number
of CVR staff (12), and USD 4 million in peacebuilding

Sudan
In Sudan, efforts ensured political support from Se- transitional WAM (TWAM). Although considered a
curity Council members as well as national coun- priority task for the implementation of the peace
terparts to the level required for the implementation process as well as Sudan political transition, the
of the DDR process. This is reflected in UNITAMS’s DDR capacity in UNITAMS is restricted to five DDR
robust mandate (S/RES 2524) including through posts, thus limiting the type of support UNITAMS
the provision of technical support on DDR, CVR and can provide.

Photo: UNAMID

12 12
 The recent transition processes in Haiti and Sudan have
VI. Conclusion shown that there is no single blueprint for successful
transitions. DDR/CVR/WAM practitioners must bear in
mind that transitions present an opportunity for the full
operationalization of national ownership by local entities.
Practitioners' role is to empower national and local entities
through meaningful and enabling partnerships along with
other international partners from the beginning and
throughout the lifespan of peacekeeping operations.

Transitions offer the possibility for DDR/CVR/WAM

practitioners to redefine together with the national
instintutions priorities roles and responsibilities and to
consolidate DDR/CVR/WAM gains through new cooperation
modalities with national entities. DDR practitioners may set a
positive tone for broad collaboration with relevant national
entities through a transition of mindset on their roles from
a “mentorship” to an “advisory” role.

To build strong partnerships, DDR practitioners need to

ensure good communication and coordination with identified
key partners early on in the process. Also significant is the
sensitization of local partners, including community-
based organizations and structures already put in place to
clearly understand the changeover. Establishing and
nurturing a good understanding of key challenges and
achievements with national entities, UN AFP, regional
organizations and/or international, regional, and national
institutions is key to foster political buy-in and sustain
support for the implementation of jointly identified
priorities in line with government’s objectives. Close
coordination and regular communication between DDR
practitioners in peacekeeping operations and UNCT
through the chairmanship of DSRSG/RC/HC and/or
Resident Coordinators (RC) contribute to setting a positive
momentum for transition. This is accompanied by the need
to promote the systematic inclusion of DDR/CVR/WAM into
the Common Country Analysis and UN Sustainable
Development Cooperation Frameworks, as well as
Peacebuilding Funding eligibility processes if applicable.
Such coordination must help facilitate joint planning and
implementation as well as proactive identification of
capacity gaps and options to address them, including
funding shortfalls.

Early and timely engagement with several key actors is

critical to set a positive momentum toward effective
transition. These include Member States, particularly UN
Security Council resolution penholders, the Development
Coordination Office, relevant development actors as well as
IFIs, including the WB, to ensure a common understanding
of DDR/CVR/WAM challenges and required financial
support in facilitating the implementation of strategies
that are aligned with Government priorities.

13
 Table of Recommended Actions to DDR Teams at Headquarters
and Field Levels During the Transition Planning Process

Field Teams Headquarters Team

• Sensitize key national, regional and • Provide strategic, policy and technical advice
international stakeholders, including Mission and guidance on DDR/CVR/WAM to support
leadership, embassies, IFIs and UNCT, on the the transition process.
poligtical, technical and operational • Sensitize key Member States and stakeholders
requirements for DDR/CVR/WAM.
Sustained Political Engagement

on the strategic, technical and operational

• Reinforce coordination with relevant national requirements for DDR.
political actors to regularly discuss key • Ensure the inclusion of DDR/CVR/WAM related
DDR/CVR/WAM goals, challenges, and language in the mandate of the UN’s new
achievements. presence in a given country.
• Work together with national counterparts to • Reinforce coordination with relevant regional
secure the political buy-in of key actors. and international political actors to regularly
• Consolidate common understanding and joint discuss key DDR/CVR/WAM goals, challenges,
planning for the implementation of the DDR and achievements.
process. • Consolidate common understanding and joint
• Ensure the alignment of the Mission’s planning for the implementation of the DDR
DDR/CVR/WAM support to national priorities process. Prevent the spread of misperceptions
during the transition planning process. or wrong assumptions about the DDR process.
• Provide regular updates on operational • Promote the systematic inclusion of
challenges and achievements to prevent the DDR/CVR/WAM into the Common Country
spread of misperceptions or wrong Analysis and UN Sustainable Development
assumptions about the DDR process. Cooperation Frameworks as well as Peace-
• Manage expectations of partners by outlining building Funding eligibility processes when ap-
responsibilities during the transition to mitigate plicable.
potential misunderstanding.
• Promote synergies between peace operations • Identify key regional and international partners
and the UNCT, including through the integration and promote local capacities to carry on the
Meaningful and Enabling Partnership

of DDR/CVR/WAM into the Common Country implementation of DDR/CVR related key

Analysis and UN Sustainable Development activities post-transition.
Cooperation Frameworks. • Promote partnerships with regional
• Conduct regular consultations with the UNCT organizations to identify entry points and foster
to identify locations and CVR projects in line collaboration.
with national objectives and improve the • Promote partnerships with IFIs to mitigate
allocation of resources before and after financial cliffs and facilitate scaling up of key
transition. programmatic activities.
• Identify key national partners and promote • Conduct capacity-mapping exercises to guide
local capacities to carry on with the im- the transition planning process.
plementation of DDR/CVR related key ac-
tivities post-transition. • Ensure that regional and international support
are aligned with Government priorities.
• Support the development of local capacities
and promote knowledge exchange.
• Encourage government officials, regional and
international counterparts to consider the
interlinkages between DDR and other related
policies, inter alia, to youth and gender aspects.

14
 Table of Recommended Actions to DDR Teams at Headquarters
and Field Levels During the Transition Planning Process

Field Teams Headquarters Team

• Identify funding gaps as a basis for the mo- • Identify funding gaps, mobilization of donors'
bilization of resources. commitments or explore alternative funding
• Use programmatic funding to develop local mechanisms.
Alternative funding Opportunities

capacities and serve as seed funding for • Consider modalities and promote programing
projects led by international partners. that enhance integration with key national,
• Coordinate with potential donors and key regional, and international partners.
national actors to identify alternative funding
mechanisms.
• Engage local actors, notably the private sector,
to address potential funding gaps.
• Before the transition, create a strategy through
coordination with national institu-tions, civil
society, UN AFPs to define peacebuilding pri-
orities to be addressed post-transition and
determine future DDR/CVR initiatives to match
priorities.
• Lead the development of transition strategy for
the mobilization of resources.
• Advocate for adequate and mandate-driven • Identify options for expanding capacity
DDR/CVR Post-transition

DDR/CVR footprint post-transition. according to resources allocated to the new UN

• Bear in mind the shifting roles during the presence. Do not focus on analyzing the
transition from an operational/programmatic current needs of the mission to continue such
to an advisory support. operations during post-transition.

• Keep in mind that the primary aim is to assist • Begin planning and laying the ground for
national entities in building their capacities. transition as early as possible.
Primarely the government, with support from • Provide psychosocial support for
the mission, UNCT and billaterla and DDR/CVR/WAM practitioners involved in the
multilateral donors, will lead the implemention transition- those leaving and those staying.
of DDR/CVR/WAM initiatives post-transition.

15
 DDR Components Transition Planning and Exit Strategy

As discussed throughout this brochure, a necessary for a well-planned exit of the Mis-
pre-condition for a successful transition is sion’s DDR/CVR/WAM component. It should
early planning. Transition is an element of be primarily results-driven and less time-
the DDR/CVR/WAM component planning bound focused.
and should be formulated as early as possi-
ble in the planning cycle in the form of an exit Planning is a cyclical occurrence, and un-
strategy. foreseen events always happen; therefore,
an exit strategy will have to be both periodi-
The initial exit strategy should look at all cally reviewed, adjusted, and endowed with
tasks planned for the DDR/CVR compo- a contingency plan. The latter will have to ad-
nents, including DDR or DDR-related tools, dress a situation when the Mission or its
and decide at which point those tasks cease DDR/CVR/WAM component will have to
to be the responsibility of the Mission and transition out before the established bench-
are ripe to be handed over either to partners mark is fulfilled. This will likely have to in-
(e.g., the responsibility for reintegration after clude a handover of tasks that normally fall
demobilization and potentially following re- under the Mission’s purview before they are
insertion) or to the national authorities (e.g., ready for handover according to the main
responsibility for CVR projects). This hando- provisions of the exit strategy. A contingency
ver plan will take into account both the pro- plan needs to identify partners who could
gramme/project life cycle and partners’ take over such tasks, funding and non-finan-
readiness (including their will and capacity cial resources. The exit strategy and its con-
to take over). A good exit strategy should es- tingency plan need to be coordinated and
tablish benchmarks in terms of partner- agreed on with both national (including lo-
ships, funding, and political outreach cal) and international partners.

16