44854 CONFLICT CRIME & VIOLENCE No. 114/July 2008 The Security Sector and Poverty Reduction Strategies In conflict-affected countries, insecurity can worsen the incidence of poverty, undercut the delivery of basic services, and leave segments of the population chronically vulnerable. Because security provision is both a core function of the state, and a necessary condition for the delivery of other essential services, it should be an integral part of any strategy for recovery and development. Poverty Reduction Strategies ­ the standard tool for organizing medium-term economic and social policies for growth and poverty reduction--can be more effective if they adopt a strategic approach to serious security challenges. This note is based on "The Security Sector and Poverty Reduction Strategies", an Issue Note prepared as part of an analytical and technical assistance program conducted by the Social Development Department in cooperation with colleagues across the Bank and DFID-UK. The Issue Note discusses entry points for engagement in the security sector in countries where insecurity is a major contributor to poverty and vulnerability. It also explores the best ways of integrating security reforms into a poverty agenda, and the role the World Bank might play as an international partner.1 CONCEPTS AND DEFINITIONS Broadly, the security sector can be defined to include Why is security important for poverty reduction? all the actors and institutions with a role in ensuring Security is fundamental to people's lives and the security of the state and its people.2 Institutions livelihoods. Insecurity resulting from armed providing internal and external security vary between countries and may include a large number of non- conflict increases the vulnerability of poor people and is a key factor in the perpetuation of poverty state actors, particularly in conflict-affected countries. traps. Because violent conflict destroys physical However, a more formal conception of the security infrastructure and productive assets, it disrupts sector focuses on those actors with constitutional and economic activity, lowers investment, and legitimate responsibility for the provision of security increases unemployment. Health and education for the state and its citizens. According to the UN, these include: defense, law enforcement, corrections, services deteriorate, and social networks collapse. By perpetuating and deepening poverty, violent intelligence services and institutions responsible for conflict sows the seeds of its own renewal: poor border management, customs and civil emergencies. societies are more likely to return to violent Elements of the judicial sector responsible for the conflict. adjudication of cases of alleged criminal conduct and misuse of force, are in many instances also included. What do we mean by the Security Sector? There are Furthermore, the security sector includes actors that different understandings of what actors and play a role in managing and overseeing the design institutions constitute a country's security sector. and implementation of security, such as ministries, legislative bodies and civil society groups.3 1This note draws upon the legal and policy framework for the World Bank's in involvement in post-conflict situations and emergencies as outlined in Development Cooperation and Conflict (OP/BP 2.30, January 2001) and Rapid Response to Crises and Emergencies (OP/BP 8.00, March 2007). 2 OECD-DAC, Security System Reform and Governance, Guidelines and Reference Series, 2005 provides a definition for the security sector which includes: core security actors (armed forces, police, paramilitaries, intelligence and security services, etc.), security management and oversight bodies (executive and legislative authorities), justice and law enforcement institutions, and non-statutory security forces (rebel armies, private security companies, etc.). 3 United Nations Secretary General, Securing peace and development: the role of the United Nations in supporting security sector reform, UN doc. A/62/659 ­ S/2008/39, Jan. 2008, para. 14 1 Security is a priority for conflict-affected What is Security Sector Reform? Security sector countries: Both governments and people in reform (SSR) has been described as a process of conflict-affected countries overwhelmingly assessment, review and implementation as well as identify security as a priority, central to monitoring and evaluation led by national peacebuilding and development agendas. authorities that has as its goal the enhancement of effective and accountable security for the State Security is a core governance issue: There is a and its peoples without discrimination and with close relationship between governance and full respect for human rights.4 The overall security in many conflict-affected countries. objective of SSR is to create a secure environment Inappropriate and ineffective security structures that is conducive to development, poverty contribute to state fragility and violent conflict, reduction and good governance. SSR addresses which in turn undermine development. Poor three inter-related challenges facing all states: i) governance of the security sector itself is often at developing a clear institutional framework for the the heart of state fragility in conflict-affected provision of security for the state and its citizens countries. and includes all relevant actors; ii) strengthening the governance of the security institutions; and iii) Security is a public good citizens expect the building capable and professional security forces government to deliver: The provision of security that are accountable to civil authorities. Reform of is a core function of the State. It rests upon two the security sector is often a core element of both essential pillars: i) The ability of the State, peace-agreements and peace-building programs. through its development policy and programs, to The PRS can reinforce these peace-building generate conditions that mitigate the frameworks by integrating key priorities of vulnerabilities to which people are exposed; ii) security sector reform into the country's broader The ability of the State to use a range of policy national development framework. instruments at its disposal to prevent or address security threats that affect society's well-being.5 Security is also a necessary condition for the RATIONALE FOR INTEGRATING THE SECURITY delivery of other essential public services, such as SECTOR INTO PRSS health and education programs, normally key Security and the rule of law are essential public goods components of PRSs. Thus, in conflict-affected that help create the conditions for government countries, improving security is closely linked to accountability, robust private sector development, achieving other objectives of the PRS. and the participation of populations in social and economic development. Civil war is an extreme form of insecurity, but violent crime, which often lingers STRATEGIC AND OPERATIONAL ISSUES after a peace accord is reached, also functions as an Situating the PRS in conflict-affected countries impediment to economic growth, hitting poor people & fragile states: A growing number of conflict- disproportionately. For example, the 2005 World affected countries and fragile states are engaged Development Report on investment climates found in a PRS process. Many of their development that crime and violence against people and property partners, including the World Bank, may have blocked investment and increased the cost of doing suspended their operations during prolonged business. Crime and violence also undermines periods of conflict and instability. It is important strategies to strengthen social and human capital, to situate the PRS process in a larger framework diverting funds away from development and other of the international community's re-engagement productive activities.A successful PRS depends both and the country's normalization within the global on a reasonable level of security and on sound community. It is also important to ensure that management of security-related expenditures. Other the security aspects of the PRS be aligned with bases for including security reforms in PRSs: peace accords and peacebuilding strategies that 4 Ibid., para. 17. 5 OECD-DAC op cit 2005 2 are already in place. interact with dimensions of poverty and inequality is a critical element of analysis in designing and Linking PRS processes & security dialogue: SSR prioritizing public policy interventions under the is necessarily a political process, touching the PRS. interests of key actors in post-conflict and Linking justice and security sector reform: Well- transitional governments. The PRS can create a functioning security and justice sectors share relatively neutral space in which policy-makers, many goals, operate according to the same security providers and civil society - groups that fundamental principles and deliver services are often disconnected and lack mutual trust - can through many of the same institutions. Yet justice discuss security issues, including the and law enforcement institutions are often the interrelationships of poverty, insecurity, and responsibility of separate national authorities security sector reform. As in all reform from those responsible for national security. processes, it is important to identify champions, There may also be different international actors to support broad coalitions and to foster national providing support for rule of law and justice ownership of the process. reform from those engaged in security sector reform. Given that justice reform is often Timing and sequencing of PRS & SSR explicitly linked to security sector reform within processes: In terms of the timing and sequencing peace agreements and international cooperation of PRS and SSR processes, there are two baseline frameworks, these linkages should be reflected in scenarios. Under the first, the SSR is already the PRS. underway, or has been agreed to under a national peace accord or international peacekeeping Linking the PRS and security sector with mandate when the PRS is being developed. In this national budgets: Ultimately, poverty strategies case, it may be relatively more straightforward to are linked to budgets. With security sector issues integrate the key elements of an agreed SSR covered in the PRS, there is an important process into the PRS. Under the second scenario, opportunity to calibrate sustainable levels of the PRS is launched without any security reforms security sector spending in relation to other underway. Here, government needs to build in a government priorities. This is not a simple matter security sector strategy (which may or may not of reducing security expenditures to increase include reform).6 In practice, most countries fall social service delivery or other investments for somewhere in-between these two scenarios. poverty reduction. It may in fact be important to re-allocate or even increase security investments Linking poverty diagnostics with conflict to improve the sector's capacity to create analysis & security assessments: The PRS conditions conducive to poverty reduction. As in provides an important opportunity to link poverty other sectors, the key issue is thus not the level of assessments with conflict analysis and spending but rather the process by which security assessments.7 Violent conflict is more spending decisions are made, the quality likely in countries with high levels of poverty, (efficiency and effectiveness) of the spending in while insecurity in turn increases the vulnerability relation to the achievement of key national of the poor. Determining how the dimensions of security and poverty reduction objectives.8 insecurity in a particular country context (e.g. widespread criminal violence, regions of ongoing Integrating the security sector with PRS pillars armed conflict, flows of IDPs and refugees) & results matrices: Integrating security sector 6 However, it is important that the international community avoid pushing national stakeholders to undertake reform before they are ready or where reform spoilers constitute a significant risk to the success of the process. 7 See Issue Note on Poverty Assessments in Fragile and Conflict-Affected Countries, World Bank, July 2008. 8 The World Bank's policy on military and security expenditures is explained in a 1991 Statement by then General Council to the Board of Directors and later distributed as staff guidance. This Statement establishes that while the Bank seeks to influence the agenda on public expenditure in a way that can increase resources for development, it remains beyond the mandate and competence of the World Bank to determine the appropriate level of military expenditures for a member country or to impose conditionality related to military expenditures. However, it clarifies that the question of military expenditures may be raised as part of its policy dialogue and public expenditure reviews with the focus on assuring the maximum feasible allocation of resources to development activities. 3 priorities into PRSs pillars and results matrices · recognizing that national and international helps both donors and government move from actors will have different objectives for the short-term and ad hoc security-related projects to security sector and that reform is often a a more strategic engagement. The government contested process; must articulate objectives for the security sector · facilitating dialogue and collaboration among as well as assess the extent to which security national and international stakeholders; institutions show the necessary capacity and accountability in carrying out their respective · identifying key entry-points and appropriate mandates. To the extent possible, the PRS should timing for linking SSR and include clear and measurable indicators for the · PRS processes; security sector, ensuring that these are integrated · taking advantage of opportunities to link into PRS monitoring, evaluation and reporting dialogue on security sector and poverty mechanisms. reduction issues during PRS participation processes; Fostering national ownership & international coordination through PRS: By integrating · linking security sector issues to standard security sector strategies into the PRS, service delivery and governance frameworks; governments have an opportunity to articulate and national priorities for the sector through a · building upon and re-enforcing security sector participatory process. The PRS can thus provide priorities in existing frameworks such as a national framework for the international peace agreements, post-conflict needs community's support to the security sector. In assessments and transitional results practice, improvement of security and justice frameworks. systems in conflict-affected countries and fragile states has often been undermined by a lack of coordination between international actors, which CONCLUSION may have different agendas for the security This paper suggests that while the World Bank sector. Thus, to the extent that the PRS process may not have the capacity or mandate to engage can involve these different actors - including the with many technical aspects of the security sector, UN, regional organizations and bi-lateral donors - the Bank can support the integration of security in establishing a consensus around national sector priorities in national development security sector priorities, it can be an important strategies, such as the PRS. There are also tool for fostering both national ownership and important entry-points for World Bank international coordination. engagement in the sector, in coordination with its national and international partners, focusing on its EMERGING PRACTICE core areas of expertise such as governance and public finance management. Emerging practice is In addition to identifying operational and strategic highlighting the cross-sectoral nature of work in issues for the integration of security issues in this area, which will require new partnership with PRSs, the full Issue Note of The Security Sector other key regional, multilateral and bilateral and Poverty Reduction Strategies presents several players, country cases.9 These show a variety of as well as learning and collaboration across approaches in incorporating security sector issues. networks within the World Bank. The role of the World Bank has also varied across different cases. Key emerging lessons highlight This note is written by Tim Carrington and David Post based on the the importance of: Issue Note, "The Security Sector and Poverty Reduction Strategies". · The Issue Note was prepared by a team that include Stephanie supporting country analytical work that would Kuttner, Donata Garrasi, and Per Egil Wam, the Social Development explain the local dynamics of, and linkages Department, World Bank, July 2008. between, security, conflict and poverty; 9 The Issue Note includes country-case examples from Afghanistan, Burundi, Central African Republic, Democratic Republic of the Congo, Haiti, Liberia, and Sierra Leone. 4