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The Challenge of Terrorism to African Diplomacy top by Ambassador Doron M. Grossman Introduction The current wave of global terrorism has definitely come to be an influencing factor on our lives in recent years. The violence and aggression making part of this current global wave did not overpass the African continent, a continent all too familiar with domestic types of terror campaigns and intimidation. The issue examined by the EIIPD seminar is to what extent does terrorism became a challenge for the African diplomat, and part of his agenda. Diplomacy used to be the sole mechanism for facilitating international relations. Today it still maintains a place of honor, but is not an exclusive instrument for promoting cooperation between countries. As terrorism has taken a worldwide dimension, it seems more and more that diplomacy has a very significant role, not only becoming relevant where other international cooperation facilitators such as NGO's cannot contribute much, but also having its own unique contribution. Diplomacy is indeed part of the campaign, and is a main tool for governments confronting terrorism. This holds true for African diplomacy as well. Despite the fact that the current global situation is affecting the African continent as well, and although the eventual link between diplomacy and the challenge of terrorism may perhaps sound trivial, in reality the role of diplomacy in the campaign against terrorism is not always clear. It is for this reason that the EIIPD seminar addressing this issue is timely and appropriate. Dealing with this issue may enable to better understand how diplomacy is, how it could, or how it should be part of the campaign against terrorism, and also look at some recommendations for African diplomacy. When confronting terrorism, the governments of those countries directly concerned by terrorism generally prepare in first priority their military counter-terrorism capacities and their intelligence capabilities. Simultaneously, the role of Ministries of Foreign Affairs is to adopt the adequate foreign policy guidelines and then tune-in and guide the Foreign-Service staff members for the necessary action-plan to be taken. In the long-run however, diplomats will need more than that. It has already become crucial to prepare the diplomats for new tasks, and prime the official representatives in a more rigorous manner for this new global challenge that dawned upon the free world. The Relevance of Terrorism to the African diplomat Understanding the relevance of global terrorism to the African continent may help better understand the importance of the contribution and the unique role for African diplomacy. Many countries of African have in recent years suffered from atrocious acts of violence associated with the current global wave of terrorism (as opposed to sub-national terror, regrettably an all too common feature in Africa). In these horrific attacks many innocent civilians were lost. At the same time however, some countries of Africa provide safe-havens for terrorists, and at times have even sponsored, or still sponsor terrorist groups. This makes the issue an even more intricate and sensitive one for African governments. What should really alarm African governments is the indirect effect of terrorism on their economic development goals. The time, the means, and the energy needed for addressing terrorism is taking away the very same resources that African leaders urgently need for addressing other vital tasks that demand solutions, such as improving the life quality of under-privileged population groups, confronting and overcoming the HIV pandemic, the fight against poverty, economic development, etc. The world knows, understands and has shown willingness and readiness to help Africa in these challenges. Terrorism is definitely something that the continent can do without, and therefore helping eradicate it must be defined as a top priority in the work of African governments. It is of great relevance to the continent, and must be treated with great attention. In light of this, Africa's diplomatic contribution to the campaign against terrorism must be firm and unequivocal. In the development of recent years, which has taken global proportions, and where military solutions do not suffice, African diplomacy is needed in order to support and strengthen the efforts of countries which have faced terrorism. The contribution of diplomacy in the campaign against terrorism When examining the contribution of diplomacy in the campaign against terrorism, the case of Israel stands clear and is a very relevant case to observe. Israel has been confronted with terrorism in many forms ever since the early stage of its existence as an independent state. As a consequence, Israeli diplomacy was always in the frontline, active in attempting to explain and warn of the danger posed by terrorism to free societies and democratic governments, and also caution of the spill-over effect it would have, until eventually becoming a global phenomena. Unfortunately, in hindsight, this message turned out to be a grim reality. Since September 11th, 2001, when the danger to the free world took a new scale and became imminent, this form of diplomacy immediately became widely practiced. In the forefront was US diplomacy, which mobilized all its resources for one purpose: forging a global coalition against terrorism. The US diplomatic campaign to create a global coalition may be regarded as the classical case of the role of diplomacy in the campaign against terrorism, and soon thereafter others followed. On the 28th of September 2001, the United Nations adopted resolution 1373, which called upon all member states of the organization to take action against terrorism. African leaders followed suit, and on the 17th of October 2001 adopted the “Dakar Declaration”, thus adding Africa's voice to the call to mobilize, and adding Africa's say to what swiftly became a global diplomatic effort. Besides being instrumental in forging coalitions and alliances, there are other ways and means for diplomacy to render itself relevant and useful. In current global circumstances with respect to the campaign against terrorism, it is the responsibility of diplomats not only to encourage and help forge a united front and international cooperation, but also to assist their own governments in making the right decisions, and when needed, also to advise decision-makers of friendly countries and allies. The classical case once again being the case of Israel. Israel unfortunately needed a long and exhausting campaign in order to encourage member countries of the European Union and the European Commission, and also other countries, to add the "Hamas" to the infamous "Black List" of perpetrators of terrorism, a list established only late in 2001, following the September 11th attacks. This step eventually helped European countries revise their policies. A more recent example is the diplomatic action taken by the Dutch government and the call to place the "Hezbollah" organization on that list. The importance of such diplomatic action is in encouraging the establishment of needed legal frameworks of law enforcement for cases involving terrorism activists and for drying up terrorism financing sources. It also encourages taking firmer action and even imposing sanctions on sponsors of terrorism. The success of such a campaign depends without any doubt on the success and achievements of diplomatic action. A Nicolsonian[1] remark Part of a discussion about diplomacy in the era of terrorism needs to address what might be referred to as a Nicolsonian dimension, namely examining very practical issues relevant to the 21st century diplomat. Although some might automatically relate the word "diplomacy" with character traits, diplomacy has become a profession, and more than ever so in the 21st century. Furthermore, diplomacy is beyond any doubt a profession that requires talents and skills, and involves thorough training and preparation. The skills required of the modern age diplomat [1] In the spirit of Sir Harold Nicolson's illustrious narrative of the roles of the diplomat, as portrayed in his classic book "Diplomacy" (1939) are many, and are quite intricate and elaborate skills. One of the main abilities of the successful diplomat remains a unique gift to decipher, understand and interpret codes of conduct of other cultures, and it is his/her role and responsibility to interpret these "codes" and messages, thus helping decision-makers avoid mistakes that could lead to terrible disaster. Diplomacy, like other professions, evolves, develops and changes. If in the 19th century the saying was that if we don’t hear from our Ambassador in the next three years we will have to send a ship, today one would probably say that if we don’t hear from our Ambassador in the next three hours we will have to check his computer. But not only technology changes diplomacy. Changes in political systems enhance a new kind of diplomacy. A very clear example is African diplomacy. The African diplomats in the 1960's, in the 1980's, and in the year 2000 have different profiles. Circumstances change. Many political structures in Africa have changed, the regional-continental diplomacy has changed, and with that also the modus operandi of the African diplomat. This aspect is of great relevance to the discussion about the challenge of terrorism to African diplomacy, and it needs to be seen just how African diplomacy could or should adapt to this challenge. éUP A Changing Diplomatic Agenda Adapting to the new reality imposed by the age of terrorism means re-defining the diplomat's agenda and creating a new style which may be referred to as preventive diplomacy. Thus the agenda for the 21st century diplomat must include alongside traditional diplomatic roles, some new ones as well. The following description of six roles in no way aims to sum up the role of the diplomat, and is not intended to serve as an inventory list of the diplomat's tasks. It is rather an attempt to highlight some of the responsibilities which need to be emphasized in conjunction with this new challenge diplomacy faces. Role number one – Negotiating Reconciliation The traditional role of the diplomat most relevant is the role of the skilful negotiator. At times of crisis, such as the current one imposed by terrorism, and when military solutions do not suffice, it is the negotiator who can pave the way for settling disputes of international nature and promote reconciliation. This may be referred to as the constructive engagement approach, and is the ultimate and crucial test of the real "Diplomat", who is called to the flag during a global crisis that needs to be resolved with the aid of two factors: decisive action and staunch diplomacy. Role number two – Forging Alliances There seems to be a growing consensus that terrorism will only be defeated by solidarity and collective action. Therefore a major priority in diplomatic work is helping to forge and helping to strengthen alliances. The concerned countries will be stronger as a group, and more effective when showing a united front, unanimous and determined to confront terrorism. In July 2002, an academic article published in South Africa* commented that “Perhaps the biggest shortfall in Africa’s engagement in the global campaign against terrorism is the absence of an effective and efficient continental mechanism to support the required cooperation between states.” In the two years that passed, the African Union has emerged as the leading continental organization. The AU must be encouraged to join the international diplomatic front with vigor, by adopting an unambiguous stand and following it up with resolute actions. Role number three – Development Diplomacy * "Africa and Terrorism – Joining the Global Campaign", edited by J.Cilliers and K. Sturman.Published in Monograph no. 74, Institute for Security Studies, Pretoria, July 2002. terrorism exploits the miseries of under-privileged population groups. African development diplomacy becomes therefore all the more relevant and an important tool. By promoting development, diplomacy can contribute significantly to eliminating those social grievances that nourish and facilitate the base for terrorism. Role number four – The Continental Diplomacy The African bloc has in the past, and continues in the present to be active in multilateral diplomacy, not always succeeding in presenting a solid case. From an Israeli perspective, Africa's lack of ability to contribute as a continental bloc is due to an incoherent approach created when certain countries submit to political pressure, and end up supporting positions which do not manifest accurately their country's foreign policy. A frequent reoccurrence being the biased handling of the Middle-East conflict in African regional organizations. Years of adopting one-sided Middle-east resolutions at the Organization of African Unity (OAU) guaranteed that its contribution to the Middle-East peace process in nearly 40 years of existence would sum to nil. Astonishing as it may sound, until today the succeeding African Union refuses to acknowledge the fact that there are two sides to the Middle-East peace process (by addressing only the Arab/Palestinian position and ignoring Israel). With this one-sided approach, the AU renders itself a non-player in a major issue of international diplomacy. This is precisely the approach that urgently needs to be changed in order for Africa's continental diplomatic voice to be heard and to be of any relevance. As long as the AU will continue to be hostage, and submit to political pressure from a minority within, as was the case of the OAU, it would loose a great deal of its integrity and its ability to influence salient international issues. Global terrorism poses a great challenge to the AU. It is perhaps through peer review, and in some cases peer protection, that a way will be found for emerging with new standards of ethics and moral in the continental diplomacy. Africa's voice in the multilateral arena will have greater echo and more significance when that voice also carries moral responsibility, integrity, and adheres to a scrupulously constructive and non-biased approach. Role number five – Combating the Use of Non-Conventional Arms The September 11th 2001 attacks were followed by the Anthrax attack. It is difficult to estimate the current magnitude of this new form of terrorism, but it must certainly not be avoided, and the issue must not be put aside. When used by terrorists, the consequence of nuclear terror, biological terror or chemical terror will be of catastrophic proportions, and will not overpass Africa. Diplomatic efforts encouraged the relevant international organizations to play a vital role and take preventive action. If in former times the issue was perhaps of less relevance to Africa, today African diplomacy needs to be active and strengthen this important campaign. Role number six – Inter-Religious Dialogue The 21st century diplomat will need to assist in the campaign against the cynical attempt to deceive and mislead by trying to sell the idea that the fight against global terrorism is targeting Islam. Inter-religious dialogue is a tool that should be utilized more frequently In order to correct misinformation that leads to incitement. Here again, diplomacy can have a great contribution. Diplomatic Service Training – Adapting to the Changing Agenda Having reviewed some aspects of a changing agenda for diplomats, the subsequent point would be to review the topic of their preparation. There is no universal standard for recruitment and training of diplomats, and it differs from country to country. It seems already now that the training of the diplomat of the 21st century is far more sophisticated than in any other time in the past. The topic of training diplomats definitely deserves a longer and more elaborate discussion. As very general guidelines it would be recommended to address the following three points:
A final word Having reviewed the great importance of diplomacy in the campaign against terrorism, its contribution to this campaign, and the relevance to Africa, it has been proposed to re-define some of the priorities on the working agenda of the diplomat, and subsequently to review necessary modifications to diplomatic service training. As a final word it should be said that the current wave of global terrorism creates a tremendous challenge for global diplomacy, very much relevant to Africa. African diplomacy has a very significant role to play. The great African continent and all peace loving countries, and the campaign against terrorism would benefit greatly from the important contribution of a constructive African diplomacy. 4 November 2004 Addis Ababa
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