Lessons from Rwanda IV: force discipline is essential

In any multinational mission, it helps if there is a clear chain of command and all the national forces are singing from the same song-sheet. Sadly, that all too often fails to happen. UK and Canadian and Dutch troops in Southern Afghanistan have taken the brunt of the fighting there because other NATO nations refuse to deploy their forces to the South, to engage in peace enforcement or (in the case of the Germans) to leave their compounds after dark.

One particular problem is when national contingents contact their home nations to seek clarification of (or over-ride) the orders of their commanders. This, and some simple cowardice, hamstrung UNAMIR’s efforts in the opening day of the Rwandan genocide:

“[Brigadier General] Henry [Anyidoho, deputy force commander of UNAMIR,] was totally frustrated with the Bangladeshi troops. Their APCs [Armoured Personnel Carriers] were either mysteriously breaking down (we later found out that the crews were sabotaging the vehicles by placing rags in the exhaust pipes) or they couldn’t be reached (a confirmed tactic by some of the crews was to move a short distance from the headquarters, shut down the radio and return later, claiming they had been held at a roadblock.) Those who actually arrived at the place to which they had been sent exhibited a lack of zeal in pursuing their missions.

“A mob of angry locals, fired up by extremists, were blocking the entrances to the Amahoro Staduim complex [which was the UNAMIR force HQ and main base, and] to which thousands of Tutsis and moderate Hutus were attempting to flee. Henry kept urging the Bangladeshi [contingent of UNAMIR] to clear the area, but their commander was not responding to his orders and was seeking direction from Dhaka. The couple of APCs that had returned to the stadium were sitting idle while Kigali Sector was pleading for them to respond to calls for help from other UNAMIR personnel and Rwandans at risk. I ordered Henry to inform the Bangladeshi commander that he was contributing to the potential deaths of Rwandans and UNAMIR personnel and that he would be held accountable. That night I found out that he had received direct orders from his chief of staff in Dhaka to stop taking risks, stay buttoned down, close the gates and stop carrying Rwandans in the APCs. He did exactly as he was ordered, ignoring the UNAMIR chain of command and the tragedies caused by his decisions.” (Shake hands with the Devil: The failure of humanity in Rwanda, Lt. Gen. Romeo Dallaire, pp243-4)

Lest the reader think that this was a problem among the developing nation’s troops alone, however, Dallaire was equally scathing of aspects of the Belgian forces that were his most capable troops. Upon arrival the Belgian Para-Commandos, fresh from Somalia, were caught “bragging at the local bars that their troops had killed two hundred Somalis and that they knew how to kick ‘nigger’ ass in Africa” (p112). Later, during a visit from the Belgian army’s inspector general and the commander of the Para-Commando Brigade from whom the troops were drawn, Dallaire “broached the serious deficiencies in leadership, discipline and training of the Belgian battalion… Belgian soldiers were often frustrated by the patient negotiations required of peacekeepers… They saw themselves as the crème de la crème, as vastly superior soldiers to their UNAMIR colleagues. They seemed to view the mission as a sort of Club Med assignment…

“There had been dozens of incidents of disciplinary infractions. The Belgians were constantly being caught out of bounds in nightclubs that had been restricted for their own safety. They drank on patrol and got into barroom brawls…dancing and drinking in… the local hot spot, with their personal weapons… The Belgians often refused to salute or pay proper respect to officers of other contingents, especially officers of colour. There were Belgian soldiers who went absent without leave to Zaire and got up to heaven knows what until they were detained by the authorities…
“At the beginning of February, on of my Belgian patrols had roughed up [a senior Rwandan army officer and leading hard-liner, and later a] group of Belgian soldiers in civilian dress forced their way into the home of one of the heads of the extremist CDR party… assaulted him in front of his family… and, just before they left, one of them aimed a gun at his head and warned him that if he or his party or the local media ever again insulted or threatened Belgium, Belgian expatriates or the Belgian contingent of UNAMIR, they would return and kill him.” (ibid. p182-4)

Later, these men would order the murder of ten Belgian prisoners.

These contingents were not uniformly terrible: he describes both the Bangladeshis and the Belgians as “immensely impressive” for an operation they conducted before the conflict began (p195); Colonel Luc Marchal, the senior Belgian officer and Kigali sector commander, “understood and lived the mission” and stayed on for an extra six months following Dallaire’s personal request to the Belgian defence ministry (p205-6); and the Belgian troops who died during the mission “were and remain heroes of Rwanda” (p240).

But all too often a failure to treat the mission and its commanders with the same military professionalism that soldiers and officers would automatically show in a national operation hamstrung the mission, undermined the safety of UN personnel and abandoned Rwandans to their fate.

Paddy Ashdown goes to Crete

A little light holiday reading kept me entertained during the long, hard hours lying by the pool or on the beach in Elounda, Crete. I needed something to take my mind off the unending, unforgiving sun. So I took with me a copy of Paddy Ashdown’s Swords and Ploughshares.

Paddy is an interesting writer, though clearly not a great one. He uses the clipped sentences and direct speech of the soldier, yet at times he drifts into mawkish sentimentality (usually when writing about meetings with Bosnian villagers), a habit which the Economist suggests he may have “picked up during his two decades in Britain's third party, the Liberal Democrats.” (Sentimental? Us?!). His writing is also at times a little careless, a flaw which should have been corrected by his editors. In fact, a firmer editorial hand would have been useful all round; several of his anecdotes appear more than once. And there is no shortage of anecdotes – like many military men, he has plenty of good stories to share, perhaps, suggests the Economist, because he has kept the best back for a future set of Memoirs (Ashdown Diaries vol. 3, anyone?).

Nonetheless, it is a compelling book. Lord Ashdown has impeccable first hand experience of conflict prevention, peacekeeping and post-conflict reconstruction. He was involved (unsuccessfully) in efforts to avert a war in Macedonia (which mercifully proved successful in the long run). In the 1960s he fought in the Indonesia-Malaysia confrontation, and in the past few years he was the UN’s proconsul in Bosnia. He explains early on that Swords and Ploughshares is not intended to be a blue-print for the “seamless garment” of prevention, intervention and state-building, but that is clearly what it is. How To Keep The Peace by Lord Ashdown. There’s a new sheriff in town, and that town is Norton-sub-Hamdon.

Ashdown’s justification for intervention is straight forward. While honouring state sovereignty should be the norm, intervention has always and will always occur, and for good reason. Even “internal” conflicts have external effects; threats to international peace and security. When an egregious regime or state collapse leads to mass bloodshed and displacement, the international community must act.

Where his basic justification is simple, his outline for implementation is detailed. It needs to be. The primary legitimising mechanism for intervention should be the United Nations (as it has the legal power to act), but where the UN is stymied by obdurate veto-wielders there are places for regional bodies or “coalitions of the willing” to act instead. International law has a common law basis; law is set as much by precedent as by agreement. Some interventions legitimise themselves, as was the case in Kosovo (which at the time, he noted at the book launch at the London School of Economics, was probably illegal in a strict reading of the law).

However, the UN should never become involved in actual peace-enforcement. It is hopelessly bad at war-fighting, so while it may have a role in permissive environments (Cyprus, Sierra Leone now), in non-permissive environments (East Timor, Sierra Leone in 2000) it should leave the fighting to the professionals (Australia, the UK).

Having to fight is a sign of failure. The international community needs to identify and move to avert conflicts much earlier. Usually, it is not until the villages are on fire that the press, and so the public, and so politicians take an interest in conflict. But by then it is too late – the refugees are already washing up on our shores and the costs of restoring peace to the country will be far higher. Far more effort needs to be devoted to preventing conflicts before they occur. This is the time for soft power, for massive amounts of development aid and offers of mediation, institution building, confidence raising and whatever help we can offer. But in the background a threat must lurk: if the offer of help is spurned and conflict does break out, action will be taken to restore peace.

Where armed intervention is required, the actual war-fighting phase will be brief and may not require much manpower. But the subsequent occupation will need enormous amounts: compare the 60,000 NATO troops that successfully occupied Bosnia, a country of 4 million, in 1997 with the 200,000 that have unsuccessfully occupied Iraq, a country of 27 million, since 2003. The first and most important priority must be to ensure security on the ground. Only once the security of the citizens is assured can any post-conflict normalisation and state building take place. The second priority then must be the rule of law; people must know that the police and judges are incorrupt, that criminals will be prosecuted, and that their families and their property are safe. After that economic reconstruction is the next step. Only much later come elections.

This is an interesting and crucial point. As Ashdown notes, as liberals we see democracy as vital, and democracy is synonymous with elections. But in fact elections are only one aspect of democracy, and one of the most easily corrupted. In post-conflict environments elections are all-too-easily captured by the former war-leaders (a leading UN policing expert once told a conference that I attended that the players in the post-conflict stage are usually not the former faction leaders, but their quartermasters – those who have the money, the networks and the knowledge necessary to transfer easily into politics). In fact, elections can be very divisive and so undermine the peace. They can also leave former warlords in power. In fact, elections should be left as late as is decently possible (in post-war Germany, elections did not take place for four years).

Once the conflict phase is over, the state can be rebuilt. Not, note, the nation. Nations cannot be built by outsiders; they must grow organically through a shared culture and sense of community within and among the people. But the international community can help rebuild the structures of the state: a functioning economy; public services; an impartial civil service not appointed by politicians; businesses free of political interference; a simple tax code; a law code that is fair, but that reflects local principles; media freedom; swift and proper justice, etc. This will be a long haul – politicians from intervening nations do neither their own people nor those on whose behalf they have intervened any favours by pretending that the boys will be home before we know it. Some presence may be necessary in a country for a generation. That is why it is better to prevent these problems before they occur.

Ashdown cannot stress often enough the importance of seeing the whole process as a “seamless garment” (he repeats the phrase so often I can be forgiven for using it twice!). Planning for the post-conflict phase should take place as the same time and on the same footing – indeed, with the same people – with planning for the war. The fact that force may be used to end a conflict must be a clear part of the prevention process (threat). And all of it needs a clear narrative from the very beginning. To generalise: “The international community will not tolerate this behaviour, if it continues these will be the consequences, if necessary we shall intervene with force to restore peace, and when we do so we will aim to ensure that this country can function independently as a viable state, in which all its citizens can enjoy peace and security. If at any time those conditions are met, the international community will acknowledge that this country is a functional member of the community and will leave the government alone to run its country in the interests of all its citizens.” The narrative should not simply reflect our prejudices, however: parliamentary democracy may be a wonderful thing, but it is up to the people to construct their own system of government; a market economy is a sign of freedom, but it must develop from the freedom that is given to people rather than be imposed by outsiders.

There’s a lot more to it, of course. In fact, Ashdown makes it sound deceptively easy (though I’m sure he would be appalled at the suggestion). He comes from a long tradition of Liberal internationalists who believe that there are universal laws that bind all mankind. It is a fine line between such high-minded visionaries and the fanatical saints that would impose their view of goodness upon the world. Ashdown himself notes that of the major international interventions that have taken place since World War II, half have gone sour. He thinks we need to do better. The truth is, we may not be able to; it may be that international intervention is so fraught with problems that we can never hope to get it right every time. But if anything can be done to improve our strike rate, Ashdown has probably put his finger on it. It would be well worth future interveners – liberals and saints alike – picking up a copy.