THE DEVELOPMENT RESPONSE TO VIOLENT EXTREMISM AND INSURGENCY USAID POLICY BUREAU FOR POLICY,...

8/2/2019 THE DEVELOPMENT RESPONSE TO VIOLENT EXTREMISM AND INSURGENCY USAID POLICY BUREAU FOR POLICY, PLA

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BUREAU FOR POLICYPLANNINGANDLEARNING

THEDEVELOPMENTRESPONSE

TO

VIOLENTEXTREMISMANDINSURGENCY

PuttingPrinciplesintoPractice

USAIDPOLICY

SEPTEMBER2011


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USAIDTHEDEVELOPMENTRESPONSETOVIOLENTEXTREMISMAND

INSURGENCY

POLICY

SEPTEMBER2011


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MessagefromtheAdministrator USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgenc

MESSAGEFROMTHEADMINISTRATORPresidentObamasNationalSecurityStrategyandGlobalDevelopmentPolicybothstressthatsuccessfuldevelopmentisessentialtoadvancingournationalsecurityobjectives.Consistentwiththesebroaderstrategicframeworks,thispol-icyprovidesUSAIDwithaclearmandateandspecificguidanceonthedevelopmentresponsetoviolentextremismandinsurgency.Thispolicycomesatacriticaltime;develop-mentassistanceisincreasinglycalleduponasanintegralcomponentoftheinteragencyresponsetocomplexnationalsecurityanddevelopmentchallenges.InlinewithourUSAIDForwardreformeffort,thispolicyrep-resentsanongoingdrivetouseourlongexperienceandvastknowledgebasetoprovidecrucialthoughtleadershiptothedevelopmentfield.ThepolicyisnotdefinedsimplybyourinvolvementinrecentconflictslikeAfghanistanandIraq.ItbuildsupontheAgencysexperienceincountriesseizedwithviolentextremismandinsurgencyinotherpartsofAsiaand

theMiddleEast,aswellasAfricaandLatinAmerica.ClarifyingUSAIDsroleinthecontextofviolentextremismandinsurgencydoesnotcomewithoutcontroversy. Someholdstrongviewsonwhetherdevelopmentagenciesgener-allyandUSAIDinparticularshouldengageontheseissues.Programmingresourcestorespondtoviolentextrem-ismandinsurgencyrequirestheAgencytoassumegreaterinstitutionalandoperationalrisk.ButastheWorldBanksrecent2011WorldDevelopmentReportmadeclear,thecostsofconflictdevelopmentally,economicandhumanaresimplytoocostlytoignore.Bynotconfrontingwherewecanthosedevelopmentrelatedfactorsthatdriveconflictand,specifictothispolicy,violentextremismandinsurgency,wewillignoretheplightofmanyaroundtheworldingreatneed.

Alreadytoday,closeto60percentofStateandUSAIDsfor-eignassistancegoesto50countriesthatareinthemidstof,ortryingtopreventconflictorstatefailure.Thispolicyiscriticaltosupportingourstaffonthefrontlinesofourgreatestnationalsecurityanddevelopmentchallenges.OurAgencysrenewedemphasisonlearning,innovationandrisk-takingmeanswewillstudyandimproveourworkinexactlythoseareasthathaveprovenmostdifficult.

Withthispolicy,theAgencyanditsfieldMissionscannowrelyonaclearsetofcommonconceptsanddefinitions,engagementcriteria,andprogrammingprinciplestosupportandguideourwork,enhanceitsimpactandensurewedeliversustainableresults.Mostimportantly,itsimplementa-

tionwillbecharacterizedbyclosecooperationwithinteragency,international,andlocalpartnersaswecontinue

toaddressthesepressingglobalchallengeswhilelearningfromongoingefforts.

RajivShahAdministratorU.S.AgencyforInternationalDevelopment

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USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgency Acknowledgements

ACKNOWLEDGEMENTS

APolicyTask Team(PTT), chairedbyMelissaBrownfromtheBureauofPolicy,PlanningandLearning(PPL),producedUSAIDsPolicyonTheDevelopmentResponsetoViolentExtrem-ismandInsurgency.ThePTTconsistedofsevenindividualsselectedfromacrosstheAgencyfortheirrecognizedknowl-edgeandexpertiseontheseissues:

BrianBacon(BureauofPolicy,PlanningandLearning), LisaChandonnet-Bedoya(BureauforDemocracy,Con-

flictandHumanitarianAssistance(DCHA)/OfficeofConflictMitigationandManagement),

StaciaGeorge(DCHA/OfficeofTransitionInitiatives), AngelaMartin(AfricaBureau), CraigMullaney(OfficeofAfghanistanandPakistan

Affairs), Leah Werchick(DCHA/OfficeofTransitionInitiatives),

and OliverWilcox(MiddleEastandAsiaBureaus).

TheseUSAIDstaffworkedintensivelyandcollaborativelyinservicetothiscriticalpolicywork,andwillcontinuetoserveasimportantresourcesinthepolicysimplementation.ThePTTwaslaunchedinSeptember2010withaUSAIDEvi-denceSummitthatbroughttogetherrepresentativesfromtheinteragency,donor,andacademiccommunitieswhospecializeinviolentextremismandinsurgency-related researchandevalua-

tion.ThePTTconsultedwithUSAIDexpertsservingbothinWashingtonandthefield. OutsideofUSAID,thePTTcon-ductedconsultationsandbriefingswithkeyinteragencypartners, interestedCongressionalstaff, andexternalexperts.Theircontributionssubstantiallyimprovedandinformedthefinalpolicy.

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ExecutiveSummary USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgency

EXECUTIVESUMMARY

ThispolicyonTheDevelopmentResponsetoViolentExtremismandInsurgencyisthefirstofitskindproducedbyUSAID. Itspur-poseistoprovideapolicyframeworkthatUSAIDcanusetoimprovetheeffectivenessofitsdevelopmenttoolsinresponding

toviolentextremismandinsurgency,aswellasitscapacitytointeractconstructivelywithitsinteragencyandotherpartnersin

thesechallengingenvironments.ThepolicywillalsohelpUSAIDfocusmoretightlyoncapacitybuildingandsustainabilitywhicharecriticaltoourlong-termsecurityanddevelopmentgoals.ThepolicydefinestermsnecessaryforasharedunderstandingwithinUSAIDofthesechallengesanddifferentiatesatagenerallevelbetweenadevelopmentresponsetoviolentextremismandadevelopmentresponsetoinsurgency.Atthesametime,itacknowledgesthateachsituationisdifferentandthatthese

termsandthedevelopmentresponsewillneedtobedefinedandunderstoodintheirparticularcontextandguidedbyU.S.foreignpolicy.Buildingonagrowingknowledgebase,thepolicyidentifiesthosefactors,ordrivers,thatcanfavortheriseofviolentextremismorinsurgencyaswellasthosethatcaninfluencetheradicalizationofindividuals. Broadly speaking, these include structuralpush fac-

tors,includinghighlevelsofsocialmarginalizationandfragmentation;poorlygovernedorungovernedareas;govern-mentrepressionandhumanrightsviolations;endemiccorruptionandeliteimpunity;andculturalthreatperceptions. Simultane-ously,pullfactorsthathaveadirectinfluenceonindividuallevelradicalizationandrecruitmentincludeaccesstomaterialresources,socialstatusandrespectfrompeers;asenseofbelonging,adventure,andself-esteemorpersonalempowerment

thatindividualsandgroupsthathavelongviewedthemselvesasvictimizedandmarginalizedcanderivefromthefeelingthattheyaremakinghistory;andtheprospectofachievinggloryandfame.ThepolicyidentifieswhatUSAIDhaslearnedstrategicallyandprogrammaticallyabouttheroleofdevelopmentassistancetocounterthesedriversandaffectacountrysdevelopment.

InthecontextoftheU.S.GlobalDevelopmentPolicyandtheQuadrennialDiplomacyandDevelopmentReview(QDDR)onenhancingcivilianpower,thepolicyidentifieswaysthatUSAIDcanworkwithitsinteragencypartnersandamplifythedevelop-mentvoicewithintheUSG. Italsoemphasizestheimportanceoflocalpartnershipwithcommittedstakeholdersandenhancedengagementwithbilateralcounterpartsandmultilateralinstitu-

tions.Thepolicyaffirmstheimportanceofthedevelopmentdiscipline

to,andUSAIDsdistinctandcriticalrolein,addressingthesecriti-calnationalsecurityanddevelopmentchallenges.ThisincludesUSAIDsfocusonsustainabilityandbuildingownershipandcapacityatalllevels. Ifappliedcorrectly,adevelopmentresponsecanserveasaneffectivetooltoaddresstheseissues.Specifically,thepolicydirectstheAgencyto:(1)Considerkeyengagementcriteriaattheearliest

stageofprogramdevelopment,recognizingthatthedevelopmentresponseispartofabroaderUSGeffort.Thesecriteriainclude: anassessmentofthedriversofviolentextremismand

insurgency,hostcountry(governmentandpopula-tion)commitment,andpotentialdevelopmentresponses;

adeterminationofanappropriateandcriticalrolefordevelopmentassistance;

adeterminationthatanadequatelevelofsecurityexiststopermitimplementingpartnerstooperateandcommunicatewithUSAID;

identificationofrisksto the Agency, ourpartners andrelateddevelopmentinvestments,aswellasaplantomitigaterisk;and,

considerationofprogram,management,andresourceplans.

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USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgency ExecutiveSummary

(2)Applyacorebodyofprogramprinciplesatallstagesoftheprogrammingcycle.Thefollowingprinci-pleswillguideUSAIDsdesignandimplementationofdevelopment

programming

targeted

at

violent

extrem-

ismandinsurgency.TheseareinformedbyourknowledgebaseaswellasUSAIDsbroaderstabilizationexperience.ForAnalysis,Planning,andDesign Focusonthedriversofviolentextremismandinsurgency.

USAIDwillidentifyandprioritizedrivers,setclearobjectives,designafocusedsetofinterventions,andsystematicallyevaluaterelatedmeasuresofprogressandimpact.

Promoteinclusivecountryownership.USAIDwillengageawiderangeofcountrystakeholderscommittedtoaddressingtheseissues.

Exerciseselectivity.USAIDwillinvestwhereitcanachievethegreatestimpact,avoidprogramsthatcouldhaveadestabilizingeffect,andtargetresourcesdemo-graphically,sectorally,andgeographically.

Takeacoordinatedandintegratedapproach. Inclosecoordinationwithinteragencyandotherpartners,USAIDwillcoordinateandintegratesuchprogramswith

other

assistance

efforts.

Tailorandcoordinatecommunications.USAIDwill

effectivelycommunicatelocalownershipandpartner-shiptoachieveprogramobjectives.

Thinklocallyandbringanentrepreneurialapproach.USAIDwillspecificallytailorprogrammingtothelocalenvironment,scaleupsuccessfulapproaches,anddis-continueineffectiveinvestments.

Considertransnationalstrategies.USAIDwilltakeadvantageofappropriateopportunitiesforcross-bor-derorregionalprogrammingandcoordination,asthedynamics

driving

extremism

and

insurgency

often

crossnationalboundaries.

ForOperationalandManagementResponsiveness Flexibility,agilityandprocurementspeed.USAIDwill

increaseitscapabilitytoprocurerapidly,adjustascon-ditionschange,andexpanditsworkwithandthroughlocalpartners.

Intensiveprogrammanagement.USAIDwillensurestaffaretrainedandequippedtoprovidehands-onmanagementandoversightrequiredforresults.

Innovation,evaluation,andlearning.USAIDwillpro-moteinnovation,createmechanismsforon-goingreviewandadaptation,andactivelysharelessonslearned.

Informed

risk-taking

and

experimentation.

USAID

will

encouragestafftotakerisks,informedbythebestavailableinformationandmitigationpractices.

(3) EstablishandempoweraSteeringCommitteetooverseethepolicysimplementation,providetechnicalleader-ship andsupport, particularlyto Missions, drive USAIDknowledgemanagement,andsupportAgencyandinteragencyplanning,strategyandcoordination.Thispolicywillbefollowedbyimplementationguidelinesandasystematic

approach

for

knowledge

management,

staff

training

andmentorship.

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USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgency IntroductionandContex

INTRODUCTIONAND1 CONTEXTWheregovernmentsareincapableofmeetingtheircitizensbasicneedsandfulfillingtheirresponsibilitiestoprovidesecuritywithintheirborders,theconsequencesareoftenglobalandmaydirectlythreatentheAmericanpeople.Toadvanceourcommonsecurity,wemustaddresstheunderlyingpoliticalandeconomicdeficitsthatfos-terinstability,enableradicalizationandextremism,andultimatelyunderminetheabilityofgovernmentstomanagethreatswithintheirbordersandtobeourpartnersinaddressingcommonchallenges.

-2010NationalSecurityStrategy3Throughdevelopment,weseektoinvestincountrieseffortstoachievesustainedandbroad-basedeconomicgrowth,whichcreatesopportunitiesforpeopletoliftthemselvesoutofpoverty,awayfromviolentextremismandinstability, andtowardamoreprosperousfuture.

-2010QuadrennialDiplomacyandDevelopmentReview4Theevents,andaftermath,ofSeptember11,2001broughtintosharprelieftheimportanceofviolentextremismandinsurgencypracticedbyal-Qaidaanditsaffiliates.Thesephenomenacon-

tinuetoimpactpartsoftheMiddleEast,SouthAsia,andsub-SaharanAfrica,amongotherregions.Whileal-Qaidaanditsaffili-atesposethegreatestdirectthreattotheUnitedStates,violentextremismandinsurgencypracticedbyotheractorsandmoti-vatedbyotherideologiessuchastheFARCinColombiaarechallengesinnumerousdevelopingcountries.Thedriversandeffectsofviolentextremismandinsurgencyvaryacrosscontext.

Whileintertwinedwithpoliticalandsecuritydynamics,manyofthedriversofviolentextremismandinsurgencyaredevelop-mentchallenges. Indeed,factorssuchassocioeconomicinequalities,repression,corruption,andpoorgovernanceoftencreateanenablingenvironmentforradicalizationandviolentextremism.InformedbyUSAIDsdecadesofexperienceinconflict-affectedcountries,agrowingbodyofknowledge,evidence,andpracticeisemergingfromUSAIDsdevelopmenteffortstocounterviolentextremismandinsurgency. Itaffirmsthateffectivedevelopment

responsestothesephenomenatargetspecificfactorsinspecificsettingsbasedonsounddevelopmentprinciplesandinamannerconsistentwiththeUSGsbroaderpromotionofuniversalvaluesincludingdemocracyandhumanrights.Thispolicy,consistentwithUSAIDForwardprinciples,providesUSAIDwithguidanceonthedevelopmentresponsetoviolentextremismandinsurgencyby:

outliningkeyconcepts,drivers,anddevelopmentresponses;

elaboratingspecificengagementcriteriaandprogram-mingprinciples;and

identifyinginstitutionalenhancementstosupportUSAIDsdevelopmentrole.

ThepolicysintendedresultisthatUSAIDdesignsandimplementseffective,evidence-baseddevelopmentprogrammingtargetingdriversofviolentextremismandinsurgencywhilesystemicallylearningfromandadaptingitsapproaches.DevelopmentisoneofseveraltoolsofU.S.nationalpower.As

the2011NationalStrategyforCounterterrorismstates,Weareengagedinabroad,sustainedandintegratedcampaignthathar-nesseseverytoolof Americanpower-military, civilian, andthepowerofourvalues-togetherwiththeconcertedeffortsofallies,partnersandmultilateralinstitutions.Theseeffortsmustalsobecomplementedbybroadercapabilities,suchasdiplomacydevelopment,strategiccommunications,andthepoweroftheprivatesector.5 ImplementingthispolicyshouldalsoservetostrengthenUSAIDsinteragencyvoiceondevelopmentscontri-butiontoaddressingthesecriticalnationalsecurityissues.3 2010NationalSecurityStrategy,http://www.whitehouse.gov/sites/default/files/rss_viewer/national_security_strategy.pdf,p.264 QuadrennialDiplomacyandDevelopmentReview,http://www.usaid.gov/qddr/QDDR_FullReportLo.pdf, ExecutiveSummary,p.ix5 NationalStrategyforCounterterrorism, http://www.whitehouse.gov/sites/default/files/counterterror-ism_strategy.pdf,p.2


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KeyConcepts USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgency

2 KEYCONCEPTSWhileprecisedefinitionshaveeludedmanyexperts,thispolicydrawsonUSGelaboratedterminologyandUSAIDsownengagementwithexpertstodefineviolentextremismandinsurgency. Definingtermsisnecessaryforasharedunder-standingwithinUSAIDofthesechallengesandpotentialdevelopmentresponsestothem. Atthesametime,eachsitua-

tionisdifferent,andthesetermswillneedtobedefinedandunderstoodin theirparticular contextand guidedby U.S. for-eignpolicy.

Violentextremismreferstoadvocating,engagingin, preparing, or otherwisesupporting ideologicallymotivated orjustifiedviolencetofurthersocial, eco-nomicandpoliticalobjectives.

Insurgencyistheorganizeduseofsubversionandviolencetoseize,nullifyorchallengepoliticalcontrolofaregion. Itisprimarilyapoliticalandterritorialstrug-gle,inwhichbothsidesusearmedforcetocreatespacefortheirpolitical,economic,andinfluenceactivi-

tiestobeeffective. Insurgencyisnotalwaysconductedbyasinglegroupwithacentralized,mili-

tary-stylecommandstructure,butmayinvolvedifferentactorswithvariousaims,looselyconnectedinnetworks.6

Whileviolentextremismandinsurgencysharemanyofthesame drivers, they differin theirdegree of organization, supporbase,anduseofviolence.Violentextremism,forexample,oftemanifestsitselfattheindividuallevelandinhighlyinformal,dif-fusenetworks. Suchnetworksareoftentransnationalincharacter,whileinsurgenciesareoftendelimitedbygeography.Also,violentextremismcanexistinquitestableenvironments,aswellasinsemi-permissiveandnon-permissivecontextsassociatedwithinsurgencies. Incertaincases,violentextremismaninsurgencycanoverlap.

6 U.S.GovernmentCounterinsurgencyGuide, January2009,p. 2.

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KnowledgeBase USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgency

Culturalthreatperceptions.Thisincludestheoftendeeplyheld,existentialperceptionofdominationbyanothergroup,theWest,oranoppressiveinternationalorder.

Cultural

drivers

also

include

more

broadly

per-ceivedthreatstorelatedcustomsandvalues,including

genderrolesandeducation.Simultaneously,USAIDhasseenthatpullfactorsareneces-saryforpushfactorstohaveadirectinfluenceonindividual-levelradicalizationandrecruitment. Pullfactorsareassociatedwith

thepersonalrewardswhichmembershipinagroupormove-ment,andparticipationinitsactivities,mayconfer. Suchpotentialbenefitsinclude:

access

to

material

resources,

social

status

and

respect

frompeers;

asenseofbelonging,adventure,andself-esteemorper-sonalempowermentthatindividualsandgroupsthathavelongviewedthemselvesasvictimizedandmargin-alizedcanderivefromthefeelingthattheyaremakinghistory;and,

theprospectofachievinggloryandfame.Socialnetworkscomprisedofrelatives,friends,orneighborscanalsodrawotherssimilarlyaffectedbysocialmarginalizationorfrustrated

expectations

into

the

orbit

of

violent

extremist

ideas

andnetworks. Otherpullfactorsinclude:thepresenceofradicalinstitutionsorvenues,serviceprovisionbyextremistgroups,andextremistinvolvementinillegaleconomicactivity.GapsremaininUSAIDsunderstandingofviolentextremismandinsurgency.Thisincludestheroleofgender.Womenmayactasbothapotentialbrakeon,aswellasadriverof,violentextrem-ism. Somesuggestthatfamilyties,andwomensrolesinfamilies,createpsychologicalbarriersforhusbands,sons,orothermalerelativestojoinviolentextremistgroups. Othershaveasserted

thatwomen

may

serve

as

motivators

for

male

family

members

tojoin. Understandingtheroleofgenderatthelocallevelisfundamental.RespondingtoViolentExtremismandInsurgency9USAIDsresponsestoviolentextremismareoftenpreventiveaimedatpreemptingradicalizationbymitigatingspecificdrivers.Programmingusuallytargetsspecificgeographicareasand/orsub-populationsdeemedvulnerabletotheextremistappeal. Inmanycontexts,USAIDprogramminginthisarea issmall-scale

anddistinct,andoftenaccompaniesalarger,ongoingdevelop-mentportfolio.Developmentprogrammingdirectedatcounteringinsurgency,ontheotherhand,tendstobereactiveinnature,seekingtocon-

tainandreduceactivesupportforanongoinginsurgency. Sucheffortstendtobelarger-scale,morecomprehensive,andmulti-sectoral.Theyoftenareundertakenaspartofabroader,interagencystabilizationeffort.Ourcurrentunderstandingofdrivers,andexistingdevelopmentresponses,hasyieldedsomestrategiclessons. Atagenerallevel,notalldriversofviolentextremismandinsurgencyareappropri-atelyaddressedthroughadevelopmentresponse.ThesebroadlessonsechowhatUSAIDalreadyknowsaboutsounddevelop-mentprinciples,andrefinethedevelopmentresponsetoviolentextremismandinsurgency.Whilepreliminary,keylessonsinclude

Developmentassistancecandirectlyaddresssocioeconomicdrivers. Pushfactors,suchasmarginalization,frustratedexpectations,andunmetbasicneeds,oftenhavespecificdevelopmentresponsesthatcanaddressconcreteunderlyinggrievances. Pullfactors,particularlysocialnet-works,canalsobeaddressed,particularlywhentheyincludefacilitatingaccesstoeconomicopportunityandservices,aswellasenhancingthevoiceofmarginalizedpopulationsintheircommunitiesorsocieties. USAIDsexperiencewithintegratedyouthprogrammingoffersexamplesofcross-cuttingapproachesthatincludevoca-

tionalandtechnicaltraining,lifeskills,employment-searchsupport,andpositive,peer-group,civicengagement.

Politicaldriversarealsoresponsivetodevelopmentassis-tance.Whilegeneraldemocracyandgovernance(DG)approachesmayhaveindirecteffectsoncounteringvio-lentextremism,DGinterventionstargetingat-riskcommunitiescanbemoredirectlyeffective. Forexamplepoliceharassmentandintimidationcanimpactat-riskurbanandperi-urbancommunities.Thiscanbemitigatedbyactivitiessuchascommunitypolicing,NGOadvocacy,andmediacoverage. DGandotheractivitiescanalsodirectlyaddresspoorlyorun-governedareasbybuilding

9 Thispolicydoesnotdirectlyaddresscounter-terrorism (CT)approachesbasedonintelligence,lawenforcementandmilitaryassets;otherUSGdepartmentsandagenciesaregenerallybetterplacedtoengageinsuchCTprogramming. However,USAIDsdevelopmentresponsetoviolentextremismaninsurgencycontributestoCTgoalsbymitigatingthespecificdriversthatencouragetheuse,advocacyof,andsupportforviolence.

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USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgency KnowledgeBase

confidencebetweenlocalcommunitiesandgovernment.Forexample,assistinglegitimategovernmentactorstoorganizetown-hallmeetingsandconductsmall-scaleinfrastructure

projects,

as

in

some

parts

of

Afghanistan,

canincreasesuchinteractionanddemonstrategovern-mentresponsiveness.

Culturaldriversshouldnotbeignored.Whilelessamenabletoinfluencebydevelopmentassistance,thereareprinciplesthatshouldbeconsideredtoaddresscul-

turaldrivers,forexample,byrespectingindigenousand/orreligiouscustoms.Thesemightbeaddressed,inpart,byengagingindigenousreligiousleadersorothergroupsandsupportingalternativevoices. (Missionsshould

consult

with

USAIDs

Regional

Legal

Advisor

(RLA)orGeneralCounsel(GC)inadvanceofprogram-mingtoensurecompliancewiththeEstablishmentClauseoftheFirstAmendmentconcerningseparationofchurchandstate.)

Preventionisessentialandmoreeffectivethanmitigationofactivedrivers.Institutions,actors,andprocessesrelevant

toat-riskpopulationscanbesourcesofresilienceagainsttheinfluenceofviolentextremistnarrativesandprovideyouth,inparticular,withapositiveroleandvoiceincom-munitygovernanceanimportantoptionforturningapotentialsourceofinstabilityintoanasset. Oneexampleisthewidespreadexistenceoffadas,informalassocia-

tionsofyoungpeopleinNiger. Fadasprovideanon-violentoutletforexpressinggrievances,anetworkforaddressingneeds,andapositivemechanismforsocialrelationshipsandcollectiveaction. Insomecases,therewillbetensionsbetweensupportingthestatusquoofmoretolerant,buthierarchicaltraditions,andempower-ingyouthfulvoicesforchange.

Local,customaryauthoritiesarekeypartners. Giventheinstabilityininsurgencyenvironmentsinparticular,work-ingwithexistinglocalauthoritiesthatplaygovernanceroles(e.g.disputeresolutionandsecurity)isimportant.Acommonapproachinsuchacontextistobuildtheeffectivenessandlegitimacyofstateinstitutions. How-

ever,supportingtheprojectionofcentralgovernmentpresenceinplaceswhereithasbeenhistoricallyweakornon-existentmaybedestabilizing. Itmayactuallyweakencustomary,

local

authorities

(i.e.

tribal

leaders)

by

affectingtheirabilityand/ordesiretostandagainstinsurgents.10

Communicationsisadevelopmentassistancepriority.Giventheroleofperceptionsinradicalizationandrecruitment,mediaandcommunicationsarecentraltodevelopmentresponsestothedriversofviolentextrem-ismandinsurgency. Thisincludessupportforlocalmediadevelopmenttofosterindependentvoicesasacounterweighttoextremistones. Forexample,USAIDprovidedaninitialgranttoToloTVinAfghanistanin2002.Tolo

has

since

become

ahighly

influential

moderate

voice

inAfghanistanand,with45%marketshare,isAfghanistansmostpopulartelevisionstation.11 Providinginformationaboutdevelopmentactivities,whichismoreeffectivelydonebylocalcommunicationsnetworks,isanotherapproach. USAIDsprogrammingexperiencein

WestAfricaindicatesthatcommunityradiocanbeapar-ticularlycost-effectivemediumwithsignificantreach.

10Tribalism,GovernanceandDevelopment,September2010,ManagementSystemsInternational11AfghanMediain2010, pp.111-113,AltaiConsulting, researchconductedfromMarchto August

5

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USAIDsDistinctandCriticalRole USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgency

USAIDSDISTINCTAND4 CRITICALROLEOneUSGagencyalonecannotachievecriticalU.S.nationalsecurity objectives.The DepartmentofState(DOS), Depart-mentofDefense(DOD),USAID,andotheragenciesdrawon

theirrespectivestrengthstocreateanintegratedresponse.USAID

applies

the

development

discipline

to

its

worldwide

developmenteffortsaswellastoitsresponsestoviolentextremismandinsurgency. Itsstrengthsinclude:Developmentandtechnicalexpertise.USAIDhasdevelopmentexpertiseinareassuchasdemocraticgovernance,health,edu-cation,economicgrowth,agriculture,andothersectors. ManyUSAIDstaffareserving,orhaveserved,incountriesdealingwithviolentextremismand/orinsurgency.TheAgencyhasdevelopedexpertiseincommunity-based,multi-sectoralstabi-lizationprogramming. USAIDisincreasinglydrawinglessonsfrom

such

experience

to

apply

to

longer-term

initiatives.

For

example, USAIDapplieditsstabilizationexpertisein apilotprogramtohelptheColombiangovernmentconsolidateits

territorialgainsagainsttheFuerzasArmadasRevolucionariasdeColombia(FARC),andreducecocacultivation.Theprogramresultedinasignificantconsolidationofstatepresenceintar-getedmunicipalities,whichsaw,forexample,an85%reductionincocaanda56%increaseinelectoralparticipation.ThisapproachhasnowbeenadoptedmorebroadlybytheU.S.EmbassysColombiaStrategicDevelopmentInitiativeaswellas

theColombiangovernmentsNationalConsolidationPlan.Research,assessmentandprogramdevelopmenttools.USAIDhasdevelopedassessmentframeworksandprogrammingguidesrelatedtoconflictmanagementandmitigationandpolit-icaltransitionthatarealsoapplicabletoviolentextremistandinsurgencyenvironments. Morerecently,USAIDhasdevel-opedTheGuidetotheDriversofViolentExtremismandDevelopmentAssistanceandCounter-Extremism:AGuidetoPro-gramming,aswellastheDistrictStabilizationFramework(DSF),anintegratedcivilian-militarytoolnowusedinpartsof

Afghanistan.Theseandothertoolsoffersystematicwaysofanalyzingissuesrelatedtoviolentextremismandinsurgencyaswellascraftingdevelopmentresponsesbasedonlocalcondi-

tions.Fieldpresence,localstaff,andpartners.USAIDMissionsarelocaplatformsforU.S.,international,andlocalstaffwithcontextualknowledgeandlanguageskills,whomonitoron-the-grounddevelopmentsandengagegovernmentalanddirectnon-gov-ernmentalcounterpartsinprogramimplementation.Withlocal expertise andlong institutionalmemories, ForeignServiceNational staff is a particularly strong Agency field asset. Finally,ourimplementingpartnersadddepthtoourknowledgebaseandreachoutsidecapitals.Mobilizationmechanisms.USAIDhasuniquecapabilitiesfortar-geted,rapid-responsefieldanalysis,programdesignandimplementation.Thishasprovenparticularlyadvantageousinvolatileinsurgencycontexts. Recentprocurementreformsgiv-ingUSAIDMissionsaddedflexibilitywillfacilitatesmallergrantsforlocally-specificdevelopmentresponsestoviolentextremismandinsurgency.Focusonsustainability. Evenasitmanagesbothshort-termsta-bilizationandlong-termassistance,USAIDfocusesonsustainability. Althoughnotallstabilizationimpactswillrequiresustainedprogram support, manywill, particularlyto buildcapacityandsystemstostrengthenresiliencytoviolentextremismandinsurgency.Thisfocusonlonger-termcommit-menthashelpedUSAIDtoforgewide-ranging,lastingpartnershipscriticaltoeffectivedevelopmentprogrammingin

theseandothersettings.

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USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgency InteragencyIntegrationandCooperation

INTERAGENCY INTEGRATION5

AND

COORDINATION

AdevelopmentresponseisonlyonecomponentofbroaderUSGeffortstocounterviolentextremismandinsurgency.Insomecases,thesuccessofdevelopmentassistanceiscontingentonotherUSGassets,suchassecurityassistance,which

can

create

greater

stability

for

development

programs

totakehold.Inthefield,interagencyintegrationisincreasinglythenormunderChiefofMissionauthority. USAID,DOD,andDOSdevelopstrategiesandcoordinateprograms;eachbringsdiffer-entassetstoacommonmission.WhileperhapsmostrobustlydevelopedinsettingssuchasAfghanistan,Iraq,andColombia,suchintegrationisalsohappeninginlargelystablecontexts,suchas West Africa.Thebenefitsofintegration, particularlyfield-based,applynotjusttolarger-scale,well-resourcedMis-

sionscounteringinsurgency,butalsotosmall,finitely-resourcedeffortscounteringviolentextremisminlargelystablesettings.USAIDMissionshavedevelopedcloserelationshipswithDODcountry-levelcounterpartstojointlyplanandcoordinate. InAfghanistan,jointinterventionshavebeeneffectivewhenUSAIDisinvolvedinpre-operationplanningforquickmobiliza-

tionofdevelopmentresourcesalongsidemilitaryoperations.Inmanycases,coordinatingwhileidentifyingdistinctrolesthatmaximizeinteragencycomparativeadvantagesiskey. More-over,asUSAIDbuildsupitslearningcapacity,ourinteragencypartnerswillbesignificantresourcesfor lessonslearned, whichcancontinuetoinformeffectiveintegration,coordinationand/ordifferentiation.

PROVINCIALRECONSTRUCTIONTEAMS(PRTs): INTERAGENCYFIELDINTEGRATIONDesignedtooperateinsemi-permissiveenvironments,aPRThelpstostabilizeanareathroughitsintegratedcivilian-militaryapproach. Itcombinesthediplomatic,military,anddevelopmentalcomponentsofUSGagenciesinvolvedinlocalstabilizationandreconstructionefforts.ThePRTaimstoimprovestabilitybybuildinghostnationcapacitytogovern;enhancingeconomicviability;anddeliveringessentialpublicservices,suchassecurity,lawandorder,justice,healthcare,andeducation. USAIDwillworkwithitsinteragencypartnerstoassessthelessonsandbestpracticesassociatedwithPRTs.

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PolicyGuidance USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgency

6 POLICYGUIDANCEEngagementCriteriaRecognizingthatthedevelopmentresponseisonepartofabroaderUSGefforttoaddressthesenationalsecurityconcerns,

thefollowingserveasengagementcriteriathatUSAIDwillcon-siderpriorto,andreassessindesigning,implementingand,ifneeded,adjustingprogrammingintheseareas. Dependingoncontext,decision-makingmaybefield-based,Washington-based,orboth.

Assessmentofthedriversofviolentextremismandinsur-gencyandidentificationofpotentialdevelopmentresponses.AnalysiswillbeconductedincoordinationwithUSAIDregionalandfunctionalbureausinWash-ington,usinginput from theDepartment ofState, and

theengagement

of

other

interagency

partners.

Itwill

beinformedbyUSAIDanalyticandtechnicalguides.

Considerationofhostcountry(governmentandpopula-tion)commitmentandcapacitytoaddressthedevelopmentrelateddriversofviolentextremismandinsurgencyandforpossibleprogramresponses.

Determinationthatthereisanappropriateandcriticalrolefordevelopmentassistanceinpreventingormitigatingdriversofviolentextremismorinsurgency.Thisdetermi-nationincludesCountry Team leadership, particularlytheUSAIDMissionDirectorandAmbassador,aswellasWashington-basedinteragencyleadership.

Determinationthatanadequatelevelofsecurityexiststopermitimplementingpartnerstooperate,monitorpro-grams,andcommunicatewithUSAID.

IdentificationofriskstotheAgency,itspartners,andthedevelopmentinvestment(i.e.thatitcouldbeunderminedbydestabilizingelements),anddeterminationthatreason-ablestepscanbetakentomitigatethoserisks. Riskscanbephysical,programmatic,andfinancial.

Considerationofprogram,resource,andmanagementplansrequiredforimplementation.Thiswillbecon-ductedbyMissionleadership,andotherAgencyandinteragencystakeholdersatPostand/orinWashington,andwilloftenincludeUSAIDRLAsand/orGC,whomMissionswillengagepriortoprogramdesignforcom-pliancewithappropriatelegalstatutesandauthorities.

ProgrammingPrinciplesThefollowingprincipleswillguideUSAIDsdesignandimple-mentationofdevelopmentprogrammingtargetingdriversofviolentextremismandinsurgency.TheseareinformedbyUSAIDsknowledgebase,theU.S.GlobalDevelopmentPolicy,includingitsfocusontailoringdevelopmentstrategiesinstabiliza-

tionandpost-crisissituations,theUSAIDPolicyFramework2011-2015,aswellasUSAIDsbroaderstabilizationexperience.Here,stabilizationreferstotheprocessofmakingacountryor

territorylesslikelytodescendinto,orreturnto,astateofconflictorinstabilityandcontributingtoconditionsthatwilladvancesus-

tainabledevelopment.12USAIDpursuesstabilizationwhereviolenceisrecurrentandreachessignificantlevelsincludingwhereinsurgencyismanifest;stabilizationalsocanapplyinessentiallystablesettingswherevio-lentextremismistheissue. Stabilizationispartof,andnotseparatefrom,anoveralldevelopmentresponse. Operationally,

12Stabilizationisalsousedinconflictprevention,management,andmitigation, aswellaspost-conflictreconciliation andreconstructionbutisdistinctfromhumanitarianassistance. Stabilizationdoesnotimplypreservingthestatusquo. Political,socialandeconomictransformationcanbeunstable,butmayleadtomorepropitiousconditionsfordevelopment.

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USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgency PolicyGuidance

however,stabilizationgenerallyrequiresdifferentobjectives,bene-ficiaries,modalities,andmeasuresthanthosemoreorientedtolonger-termdevelopment. Butlinkingbothundertheframeworkofanoveralldevelopmentresponseiscriticalforcraftingeffec-tive,ultimatelysustainabledevelopmentprogrammingtocounterviolentextremismandinsurgency.Becausetheseenvironmentsareoftenfluidandcomplex,therearechallengesassociatedwithimplementingtheseprinciples.Thispolicyacknowledgesthosechallengesandidentifiesareasforfur-

theraction.Theywillbesubjecttoregularreviewandupdating.

FORANALYSIS,PLANNINGANDDESIGNFocusonthedriversofviolentextremismandinsurgency:Informedbylocalresearchandassessment,USAIDMissionswillidentifyandprioritizedrivers,setclearobjectives,designafocusedsetofinterventions,andsystematicallyevaluaterelatedmeasuresofprogressandimpact. Intheirassessments,Missionsshouldconsidertheroleofwomenvis-a-visdriversandanyrelevantdevelopmentresponses. Noteverydevelopmentalneedleadstoviolentextremismorinsurgency,andcommitting

largeresourcestocountriesaffectedbyviolentextremismand/orinsurgencyisnotasolutioninitself.In these contexts, analysisusuallymust be conductedin shorttimeframes. Inaddition,itcanbechallengingtoensurethatallstakeholderspointsofviewareincorporatedintoanalysiswhilealsoavoidingbiases. Moreover,operatinginsemiornon-permissiveenvironmentscanreducemobilityandlimitopportunitiesforspeakingtovariedaudiencesandunderstand-ingrealitiesontheground.USAIDwillcontinuetorefineits

toolsforrapid,on-the-groundanalysisthatinformsprogramdesignandimplementation.Promoteinclusivecountryownershipatalllevels:In

program

assessment,

design,

implementation

and

evaluation,

USAIDwillengageawiderangeofcountrystakeholdersfromthecommunitytothenationallevelwhoarecommittedtoaddressingthedevelopmentrelateddriversofviolentextremismandinsurgency. Countryownershipisakeyingredientofeffec-

tive,sustainabledevelopment.Thiscanincludehostgovernmentinstitutions,civilsociety,customarylocalauthorities,communitiesand/orlocalpopulationseachofwhichcanhaveanimportantroletoplay.

TOOLSFORASSESSINGDRIVERSTheDistrictStabilityFrameworkinAfghanistan. Toincreasetheeffectivenessofdevelopmentassistanceincounteringinsurgency,USAIDandtheCounterinsurgencyTrainingCenter-Afghanistan(CTC-A)developedtheDistrictStabilityFramework(DSF),acomprehensive,data-drivenframeworktoensurethatprogrammingiscontinu-allyinformedbyongoinganalysisofon-the-grounddevelopments. DSFassistsin(a)identifyingsourcesofinstability;(b)targetingactivitiestodiminishormitigatethedriversofinstability;and(c)monitoringandevaluatingoutcomesagainstspecificstabilityobjectivesinaparticulararea.TheDSFprocessisiterative,aslessonslearnedfromshort-

termactivitiesarefedbackintoanalysisandre-design. USAIDisimplementingDSFineasternAfghanistan. InSarkanidistrict,forexample,DSFallowedUSAIDtomoreeffectivelyaddressthebroadproblemoflackoflegiti-mategovernmentbydistinguishinggovernmentrepresentatives'inabilitytocirculateduetoinsecurity,versusalackofcapacity,andtailoringinterventionsbyvillage.FocusGroupsinYemen. SomeUSAIDMissionshavealsoreliedonlocalorganizationstoconductfocusgroupsandsurveystoinformbroaderanalysis. Suchanapproachallowsformoreopinionstobeaccessed,reducestheriskofbias,andprovidesreal-timedata. In Yemen,USAIDsupportedlocalresearcherstoorganizeandconductapproxi-mately20youthfocusgroupsandadditionalyouthstakeholderfocusgroupdiscussions.Theresultsofthatassessmentexercisedemonstratetheutilityofsuchappliedresearchforprogramdevelopment:youth,forexample,stressedseveraldriversofviolentextremismthatadultyouthstakeholdersdidnot.

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INCLUSIVECOUNTRYOWNERSHIP

InWestAfrica. USAIDprogramsinChadandMaliaredevelopingpartnershipswithlocalgovern-ment,religiousandtraditionalleaders,andnascentNGOs.Throughtrainingforlocalofficials,youthemploymentandcommunityimprovementprojects,keylocalactorsaredevelopingincreasedcapability

torespondtodriversofinstability.FATASecretariatinPakistan. USAIDcoordi-nates

overall

strategy

and

priority

areas

for

interventionwiththeFATASecretariatandtheUSGinteragency.Toencourageandensurecommunityinvolvement,USAIDworkscloselywithlocalgovern-mentrepresentativestoengagetheirconstituentcommunitiesinprojectselection,design,andimple-mentation. LocalandregionalgovernmentrepresentativeengagementiskeytoUSAIDssuccessinincreasingcommunityparticipationandbuy-in.

Inmany

places,

poor

governance

is

amajor

factor.

USAID

oftenengageswithgovernmentsthatlackthecapacityforfullcountryownership,evenifthereispoliticalwilltoaddressthedevelopmentchallengesfomentingviolentextremismand/orinsurgency. Inotherplaces,capacitymayexistbutdemon-stratedpoliticalwillislacking. Ultimately,USAIDmustleverage

andfurtherdeveloplocalcapacityrelatedtoservicedeliveryandgoodgovernanceprinciples,suchastransparencyandaccountability,torespondtodriversofviolentextremismand/orinsurgency. USAIDwillusecasestudyanalysistofur-

therunderstandhowbesttopromoteinclusivecountryownershipincounteringviolentextremismandinsurgency.Exerciseselectivity:USAIDwillmakechoicesaboutwhereitsinvestmentswillachievethegreatestimpact,avoidprogramsthatcouldhaveadestabilizingeffect,andtargetitsresourcesdemo-graphically,sectorallyandgeographically. Radicalizationandrecruitmentareoftenhighlylocalizedandconcentratedinspe-cificpopulationsand/orcommunities. Notalldriverspresentinagivencontextmaybeamenabletodevelopmentassistance.USAIDwilltakeintoaccounttheplansofotherUSGagenciesanddonorsactivelyengagedinspecificprogramstocounterviolentextremismandinsurgency. Conductingamappingexerciseisessentialtoidentifyareasofoverlapandpotentialareasforintegration.ThisincludesUSAIDsaccessto,andabil-itytouse,informationandanalysisgeneratedbyotheragenciesSelectivitycanbechallengingbecausemultipleimperatives(hostcountry,USG,unmetdevelopmentalneeds)oftenrequireUSAIDresponsivenesstoamuchbroaderarrayofneedsthan

targetedanalysismaysuggest.Tobetterguidedecision-making,USAIDwillusecasestudyanalysistoidentifybestpracticesassociatedwithapplyingtheprincipleofselectivityintheseenvironments.

SELECTIVITYVIATHETRANS-SAHARACOUNTERTERRORISMPARTNERSHIP(TSCTP)

TSCTP,amulti-countryinteragencyeffortthataimstocombatviolentextremism(VE)intheSahelregionofAfrica,involvesstrengtheningbothmilitaryandciviliansecurityforces,conductingoutreachcampaignsonnon-violenceand

tolerance,andconfidence-building,community-developmentprogramsforregionsidentifiedthroughinteragencyassessments.USAIDcontributionstothePartnershipinclude:theregionalPeaceforDevelopmentprograminNigerandChad;communitydevelopmentactivitiesinMali;andaresearchagendaexaminingthedriversofVEintheSahelandprovidingaframeworkfordevelopmentprogrammingtocounterVE. Inthiscontext,USAIDprogram-mingtargetsspecificcommunitiesandgroupswithintheseregionstomitigatethedriversthatcanleadtosupportforextremistideologiesandorganizations.

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STABILIZATION,COORDINATIONANDSUSTAINABILITYINAFGHANISTAN

Bothcivilianandmilitaryactorshaveusedcash-for-worktosuccessfullyachieveneartermstabilizationobjectivesinAfghanistan. Butthesustainabilityoftheseprogramshasbeenalong-standingconcernbytheAfghanGovernmentanddonors when shorttermjobsare notconnected topotentialfuture employment (i.e., clean-up campaignsorrefurbishingcanalsthatcommunitieswouldotherwisedothemselves).USAIDhasmadesustainabilityafundamentalobjectiveforcash-for-workactivitiesinstabilizationenvironments. Recog-nizingthatthegovernmentmustbeactivelyinvolvedintheimplementation,wehaveincreasedthecoordinationbetweenourprojectsandthelineministries,connectingtheprojectstosuccessfulruraldevelopmentprojectsthatarealreadybeingimplementedbyGIRoA.Toimprovehumanresourcecapacity,USAIDcash-for-workprogramsworkwithlocal

communities

through

job

skill

training

and

mentoring,

which

can

be

through

their

own

skilled

citizens

or

through

externalresources. ThroughacollaborativeGIRoA-ledcommunityconsultation,communitiesidentifychallenges,ownandresolvetheirproblems,andlinktocommunityandlocalgovernmentinstitutions.Thecommunityprojectsthatthecommunitydecidesuponnotonlyaddresssourcesofinstabilitybutalsosupportlonger-termeconomicgrowth(i.e.insteadofjustclearingcanals,communitiesarebuildingmoreefficientcanalstogetwatertonewfarmland).Thereisalsoawageanalysisthatmustaccompanyeveryapprovedprojectsoweavoiddistortionoflocaleconomies.

Takeacoordinatedandintegratedapproach:Aspartofearlyprogramplanningandincloseinteragencycoordi-nation,USAIDMissionswillestablishaplanforcoordinatingandintegratingprogramsdirectedatdriversofviolentextremismand/orinsurgencywithotherformsofassistance. Planningwillneedtotakeintoaccountrequirementsforlonger-termdevel-opmentprogrammingtoreinforceearlygainsandsustainability.ThisincludescaseswhereUSAIDconductsrapid,discreteactivitiesforstabilizationeffectsforexample,howalarge-scale,cash-for-workprogramcouldbettersupportmedium-termeconomicdevelopment.Stabilizationdoesnotalwaysprecedelonger-term,sector-basedapproaches;simultaneousimplementationmayberequired.

Whethersequentialorconcurrent,differenttypesofassistancemustbecontinuouslycoordinatedandstrategicallylinked.Criteriashouldbeestablishedearlyfortransitioningamongthedifferenttypesofassistance,basedoncontext-specificfactorssuchaspermissivenessoftheoperatingenvironment. Amini-mallevelofsecurityisrequiredforstabilizationandlong-termdevelopmenttotakehold.ThisplanningwillneedtobeconductedinclosecoordinationwiththeDepartmentofStateandotherinteragencypartners

toensureacommonunderstandingofeachothersoperational

INTEGRATIONINIRAQFrom2006to2008,USAIDpromotedstabilityincommunitiesmostaffectedbytheincreasingviolenceinthecountrybyprovidingjobs,training,andsmallgrantstoat-riskyouthwhomightotherwisebeattractedtotheinsurgency. Alongwiththesurge,

jointcivilian-militaryProvincialReconstructionTeams(PRTs)weredeployedthroughoutthecountrytoimproveU.S.engagementwithIraqis. Beginningin2009,USAIDbeganconsolidatingthegainsitachievedsincethesurge.USAIDcontinuestosupportprivate-sectordevelopmentandimprovingtheIraqiGovernmentsabilitytodeliveressentialservicestoitspeople. InApril2010,theIraqiGovernmentreleased

theNationalDevelopmentPlan. USAIDhelpedtheIraqiMinistryofPlanningformulatetheplan,animpor-

tantmilestonethatoutlinestheIraqisownprioritiesandvisionofhowtoachievethem.

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needs and capacities, particularly as relates to security. Percep-tionsofsufficientsecurityoftendifferamonginteragencypartners. Integrationandsequencingrequiresintensiveeffortand

management

by

USAID

and

implementing

partner

person-

nel;integrationfirstrequirescoordinationonastrategicandthenonanimplementationlevel. Agencystaffinghasnotcon-sistentlybeenconfiguredand/orsufficientlyresourcedtoaddressthisimportantrequirement, and specificguidancehasbeenlacking. USAIDwillreviewlessons,developguidelinesandreconsiderresourcerequirementstopromotecoordi-natedandintegratedplanninginbothWashingtonandthefield.Tailorandcoordinatecommunications:USAIDwilleffec-tivelycommunicatelocalownershipandpartnershiptoachieveprogram

objectives.

This

will

include

how

USAID

incorporates

hostgovernmententitiesintothepublicfaceofitsprograms,whetherthroughorganizingofficialeventsorcommunicatingto

themediathelocalcommunitysroleinaprogram. BrandingistypicallyoneelementofUSAIDscommunicationseffortsandisimportanttotransparency. Bystatuteandpolicy,USAIDwillgenerallybrandorco-brandUSAID. However,localcontextmaymakesuchbrandingorco-brandingcounterproductiveforadevelopmentresponsetoviolentextremismandinsurgency. Incoordinationwithinter-agencypartners,theAgencywillconsidercreativeornuancedmethodstobalancesecurity,political,andcommunicationsgoalssothatoverallprogramobjectives,suchasstrengtheninggovernancepresenceoramplifyingthevoiceofcommunityleaders,areachieved.WorkingwithGCandtheBureauforLegislativeandPublicAffairs(LPA),USAIDwillreview

TAILOREDCOMMUNICATIONSINCOLOMBIA

InColombia,USAIDworkswiththeColombianPres-identsCenterforConsolidatedandIntegratedAction(CCAI),whichleadsthedesignandoversightoftheGovernmentofColombias(GOC)counterinsur-gencyprogramintheregionalcapitalsthatserveasgatewaystoremote, neglectedregions.AllCCAI-relatedactivitiesarebrandedGOCinitiativeinorder

to build support fortheGOCinthose areas. Com-munitieshaveviewedtheseactivitiespositivelyand,

therefore,havebeenpositivetowardstheGOCforbringingthemtotheirrespectiveareas.

existingregulationsandcraftspecificrecommendationsrelatedtobrandingandmarkingwhenappropriateandnecessary.Morebroadly,theAgencywillseekinnovativeapproachestodevelopment

outreach

and

communications

in

these

environ-

mentsandcapturetheseapproachesincommunicationsstrategiesandplans.Thinklocallyandbringanentrepreneurialapproach:Informedbylocalactors,USAIDwillspecificallytailorprogrammingtothelocalenvironment, scaleupsuccessfulapproaches,anddiscon-tinueineffectiveinvestments. Everylocalityhasvaryingdriversofextremismorinsurgency,aswellasspecificresourcesandpoten-

tialpartnershipsthatcanmitigatethosedrivers. Successes

LOCALENTREPRENEURIALAPPROACHINCHAD

TheTSCTPprograminChadhasprovidedexten-sivetrainingandtechnicalassistancetofivenationalcivilsocietyorganizations,strengtheningtheirtechni-calandinstitutionalcapacity.OneexampleistheChadianAssociationofHerdersandNomads(AEN)whichhasdemonstratedasignificantleapincapacity,movingfromavolunteer-drivenassociation

toonethatincludesdedicatedfull-timestaff. USAIDpartnerssuchasAENprovidetrainingforcommu-nityleaderstosupporttheirroleinmobilizingcommunitymembersandfacilitatingparticipatoryproblem-solvingtoensurethatlocalinitiativesareappropriate,conflict-sensitive,andsustainable.

cannotautomaticallybereplicatedelsewherewithoutadjustmentfordifferentcontexts. Localactivitiesdonothavetobebig;smalamountsofresourcesatthecommunitylevelcanhaveasignifi-cantimpact. Bystartingsmall,riskcanbediversifiedandmitigated,allowingforexperimentalapproachesortestingnew,non-traditionalpartnerssuchasdiasporagroupsandprivatesec-

toractorswhomaybroadenUSAIDsreachandimpact.Anentrepreneurialapproachrequiresadifferentriskmanagementapproachandintensivemonitoringandevaluationeffortstolearnquicklyfromefforts,toexpandeffectiveinterventions,andlimitunsuccessfulprojects.Alongwithsupportinginformedriskmanagementandinnovativemonitoringandevaluationpractices,USAIDwillcontinuetoreviewanddisseminatebestpractices

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associatedwithalocallydriven,entrepreneurialapproachtorespondingtoviolentextremismandinsurgency.Considertransnationalstrategies:USAIDwilltakeadvan-tageofappropriateopportunitiesforcross-borderorregionalprogrammingandcoordination,asthedriversofviolentextremismandinsurgencyoftencrossnationalboundaries. Thiscouldincludecomplementaryprogrammingoneithersideofabor-der,oronecross-borderprogram. Sometimes,USGand/orhostcountrypoliciesoneithersideofthesamebordercouldbedifferentenoughtochallengetheexecutionofacoordi-natedapproach.TransnationalstrategiesrequirestrongcoordinationbetweenUSGandhost-governmententitiesinvolvedineachofthecountries. CoordinationwithUSGregional

actors

in Washington, Department

of

State Regional

Bureaus,aswellastheappropriateCombatantCommandisalsoessential. USAIDwillusecase-studyanalysistoexaminefurtherthelessonsandbestpracticesassociatedwithcross-borderorregionalprogrammingintheseenvironments.

WORKINGTRANSNATIONALLYINTHEHORNOFAFRICA

Counteringviolentextremism(CVE)programmingintheHornofAfricapromotesstabilityinastrategiccrossborderareathroughprovisionofcommunicationequip-menttolocalcommunitieswherepeacecommitteeshavebeenestablishedtoserveasafirstresponsetosta-bilizearegionaffectedbyviolentextremism,causedinpartbyal-Shabaabfighters.Thiscross-borderprogramisacriticalcomponentofanearly-warningandearly-responseapproachtothedriversofviolentextremism.

FOROPERATIONALANDMANAGEMENTRESPONSIVENESSFlexibility,agility,andprocurementspeed:USAIDwillincreaseitscapabilitytoprocurerapidly,adjustasconditionschange,andexpanditsworkwithandthroughlocalpartners.At

times,USAIDneedsmechanismsthatcanrespondinweeks,ifnotdays. Existing,pre-competedcontractingandgrant-makingmechanismsareexamplesofmorerapidprocurement. In

RAPIDPROCUREMENTCAPABILITY

Insituationswheretherearerapid-responseandprogram-start-uprequirements,USAIDsOfficeofTransitionInitiatives(OTI)pre-competedSWIFTcontractingmechanismallowsforamoremanage-ablecompetitionamongagroupofsevenorganizationsforspecificprograms. Onenewpro-curementcanbecompletedinanaverageoffourweeks,orevendaysifrequired. Inaddition,thecon-

tractrequirestheawardeetobeabletostartimplementingactivitieswithin48hoursofaward.

somesituations,exceptionstofullandopencompetitionmayberequired. Becausetheoperatingenvironmentisoftenhighlyfluid,flexibilityiscriticaltoallowforprogrammaticchange.USAIDwilldevelopavarietyofprocurementmechanismstoberesponsive,withflexibilitybuiltintoscopesofworkandoptionsforworkingwithavarietyoflocalandinternationalpartners.13 Contractingwithandprovidinggrantstomoreandvariedlocal partners, andcreatingtheconditionswhereaid isnolongernecessaryforthecountrieswherewework,isanobjectiveofUSAIDsImplementationandProcurementReform(IPR). Itisalsoanimportantelementofaneffectivedevelopmentresponsetoviolentextremismandinsurgency.AspartofIPR, USAIDwillcontinueto review itsprocurementpracticesandensurethatthereareoptionstoaddresstheneedforflexibility,agility,andrapidresponseinthesetypesofenvironments.Intensiveprogrammanagementandsystematicmonitoringandreportingofmeasuresofprogressandimpact:USAIDwillensurestaffisequippedtoprovidesubstantialdirectionandhands-onmanagementrequiredforresults,andthatprogramoversightisacloselysharedresponsibilitybetweenthefieldandheadquarters. Intensivemanagementandoversightrequirestafftimeandfieldvisits,whichMissionscan-notalwaysaccommodatewithlimitedoperatingexpensebudgetsand/orwhereUSAIDofficersmaynotbeabletodirectlyobserveprojectsgivensecurityrestrictions. Innovative13WorkingcloselywiththeappropriateandrelevantprocurementspecialistsinWashingtonandthefield.

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USINGDRIVERSBASEDRISKANALYSIS

SeveralUSAIDmissionsinAfricahaveusedtheprevi-ouslyreferencedGuidetotheDriversofViolentExtremismandDevelopmentAssistanceandCounter-Extremism: AGuidetoProgramming. Metricsderivedfromtheriskanalysiswereincorporatedintotraditionalandnon-tra-ditionalprogrammanagementtools,suchasbaselinestudies,mediaassessments,youth-ledcommunitymap-ping,andindependentpollingtoguideprogramimplementation.

MONITORINGINCHALLENGINGENVIRONMENTS

SomemissionssuchasIraq, Pakistan, andYemenhaveintroducedmulti-layeredmonitoringsystemsincludingindependentthird-partymonitoring,useofgeospatialinformationsystems(GIS)andphotography,interagencysupport,andlocalstakeholderengagement. Geospatialanalysis,inparticular,providesacommonlyunderstoodandpowerfulsystemsframeworktocollect,organizeandanalyzeplace-baseddata. Forinstance,spatialanaly-sisprovidesthecapabilitytolookattheeffectivenessofvariousaidprogramsandprojectsonstabilizationofdif-ferentcommunities.

usesoftechnology,includinggeospatialinformationsystems(GIS),canhelpovercomethesechallenges. Independent,third-partymonitoringandlocalstakeholderfeedback,whereappropriate,

can

also

be

useful.

Anotherimportantelementofmanagementandoversightisconsistent,appropriatecollectionof,andreportingon,measuresofprogressandimpactrelatedtocounteringdriversofviolentextremismandinsurgency.Whererelevant,USAIDwilltrackoutcome-levelindicatorsinthegeographicareasthatitspro-gramsaretargetingtomonitorwhetheritsactivitiesarehelping

toreducetheemergenceandseverityofviolentextremismandinsurgency. Learningfrominnovationsinthefield,USAIDwillcontinuetorefineitsmonitoringandevaluationplatformsand

tools,particularlywheresecurityisaconcern,toensuretheAgencyadaptsandretargetsitsprogramminginrealtime.USAIDwillalsoreviewitsoperating- expenseneedsrelatedtoeffectiveprogrammanagementandoversight.Innovation,evaluation,andlearning:USAIDwillpromoteinnovation,createmechanismsforself-critiqueandcontinuousadaptation,andsharelessonslearned.Arangeofmethodsareoftenrequiredtoensurereal-timeanalysisandlearninginclud-ingrapidappraisal,indicatorstiedtodrivers,andattitudeandbehavior-changemeasures.ThesemethodsrequireresourcesfromMissionsthatarefrequentlyunderstaffedand/orhavelim-itedbudgets. Inaddition,thestateoftheartforevaluatingactivitiescounteringviolentextremismandinsurgencyisstillnas-cent. USAIDwillfurtherresearchinthisfieldinthecontextofUSAIDsnewEvaluationPolicy.Thatpolicycallsforhigherstan-dardsofmethodologicalrigor,greatertransparencyaboutevaluationfindingsand,onaverage,dedicatingtoexternalevalu-ationatleastthreepercentoftheprogrambudgetmanagedbyanoperatingunit. USAIDwillexplorewaystoadaptitsreport-ingrequirementsandmonitoringandevaluationsystemstoenableresultsforecastinginshortertimeframesandprograms

LEARNINGBYEVIDENCESUMMITUSAIDsponsoredanEvidenceSummitinSeptember2010thatbroughttogetherrepresentativesfromtheinteragency,donorandacademiccommunitieswhospe-cializeinviolentextremismandinsurgencyrelatedresearchandevaluationtolauncheffortstoexaminemethodologiesforevaluatingprogrammingandtoinformthispolicy. Specifically,theSummitfocusedon

threeproblemareaswhereongoingdevelopmentprac-ticeandevidenceintersect:dampeningprocessesofradicalizationeitherattheindividualorsocietallevel;dis-ruptingtheformationofgroupswillingtoemployterrorandotherformsofpoliticalviolencetoachievetheiraims;andpromotingstabilizationonceaninsurgencyhasemerged.TheSummithighlightedUSAIDsownefforts

tolearnfromits engagementsinIraq,Afghanistan,Colombia,andtheSahelanddemonstratedwhatandhowtheagencyislearning,whilealsopointingoutmeas-urestheagencycantaketoimproveitspractices.

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USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgency

tobeadjustedaslocalcontextsevolve. USAIDsBureauforPolicy,PlanningandLearning(PPL)willdevelopspecificguidanceandhighlightgoodpracticesforevaluationsincomplexsettings,wherealackofabilitytomeasureimpact, shorttimeframes, andevaluatorsafetymaybeconcerns.Informedrisk-takingandexperimentation: SupportedbyimprovedAgency-widepracticesandinformedbythebestavail-ableinformationandmitigationpractices,USAIDstaffwillbeencouragedtotakerisks,adapttoincorporatelessonslearned,andbuildonsuccess. Thereisahighdegreeofphysical,psychological,programmaticandfinancialriskinherentintheseofteninsecureenvironments.TheseenvironmentscanputAgencyandimple-mentingpartnerstaffatphysicalandpsychologicalrisk,andAgencyresourcesandpracticeshavenotkeptpace. Program-matically,therearechallenges:itcanbedifficulttoidentifydriversandprogrammingoptions;thereremainsneedforexperimenta-

tionandnotallprogramswillsucceed;and,insomecases,takinganyorcertainactionsmaybecounterproductive.

PolicyGuidance

USAIDwillimproveitspracticesandresourcesdirectedattheserisks.TheAgencywillsupportstaffwithtraining,confidentialcon-sultations,physical-fitnessopportunities,andbenefits. Missionmanagerswillensurethatimplementingpartnersreceiveappro-priateresourcesandhavemethodsforpromotingstaffwell-being. USAIDwilldevelopflexible,creativestandardstodefineprogramsuccesstoincludedecidingnottoact,aswellasadapting,basedoncontinuouslearningofwhatdoesanddoesnotwork.USAIDwillalsoconsideradditionalmechanismstoverifythatintendedbeneficiariesareusingresourcesforintendedpurposes. Wherenecessary,MissionswillavailthemselvesofscreeningmechanismsavailablethroughUSAIDsOfficeofSecu-rity,andwillconsultwiththeRLAorGC,asappropriate. Thisensuresthatacontext-appropriatevettingsystemnotonlyaddressestheimpactonprograms,butisalsothoroughandmeetstheregulatoryandlegalrequirementsalreadyaddressedbyestablishedsystems.

MITIGATINGRISKIn-KindGrants:In-kindratherthancashassistancetolocalorganizationsallowstheAgencytoworkwithnon-tra-ditionalpartnerswhoeitherarenotformalorganizationsorwouldnotnecessarilymeetrequirementsforreceivingcashgrants. In-kindassistanceprovidestheAgencyamodalitythroughwhichtotakeariskbysupportingactorswhoarenewtoreceivingassistance,buthaveimportantideasthatneedtobesupported.InAfghanistan:A3(AccountableAssistanceforAfghanistan)isaUSAIDinitiativetopreventdiversionofassis-

tancebyextortionorcorruption. Somechangesincluderestrictingthenumberofsubcontracttiers;tighteningfinancialcontrolstoestablishauditingproceduresfor100percentoflocallyincurredprojectcosts;advocatingincreaseduseofelectronicfundstransfers;performingadditionalprojectoversightinhigh-riskareas;anddelegatingmoreoversightauthoritytoUSAIDfieldstaff.

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USAIDInternalChanges USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgency

7 USAID INTERNALCHANGESToadvancetheAgencysdevelopmentresponsetoviolentextremismandinsurgency,thispolicydirectsUSAIDtoimple-mentthefollowingchangessomeimmediately,othersover

time.FormalizeseniorleadershipinvolvementUSAIDseniorleadersandmanagerswillengageinrelevantpol-icy,strategy,andprogramdecision-makingandoversight,asappropriate. EachrelevantBureau/OfficewilldesignateoneDeputyAssistantAdministrator(DAA)/equivalenttoberesponsibleforrelevantstrategicandinteragencyengagementandforthispolicysimplementationatthoselevels. Similarly,MissionDirectorswillberesponsibleinthefieldastheyengageonprogramdevelopment,management,andrelatedopera-

tionalissues.Thispolicysengagementcriteriawillframeseniorleader/managerinvolvementontheseissues.EstablishandempoweranAgencySteeringCommitteeUSAIDwillestablishandempoweraSteeringCommittee.RelevantBureau/Officeheadswilldesignatestaffto,andsup-port theirserviceon, theSteeringCommittee,whichwill:

Overseethispolicysimplementation; Provide technical leadershipand support, particularly to

Missions;

DriveAgencyknowledgemanagement;and Support Agency andinteragencyplanning, strategy, andcoordination.

AnarticulationoftheSteeringCommitteesstructureandopera-tionwillfollowthispolicy. USAIDwillalsodesignateafull-timeSeniorPolicyAdvisortoserveacontinuouscoordinationfunctionontheseissues.

CraftnewpolicyguidanceUSAIDwilldevelopnewguidancetofacilitateprogramanalysisdesign,andimplementation,inaccordancewiththispolicy. Pri-orityactionissuesinclude:

Riskmanagementinhigh-threatenvironments; Procurementflexibilityforeffectiveandtimelyresponse

informed by on-goingefforts; and, Effectivecommunicationstrategies,includingupdated

brandingguidance.ExecuteappliedresearchagendaUSAIDwillcoordinateanappliedresearchagenda,anddisseminatefindings,asappropriate. Possibleresearchareasinclude:genderincounteringviolentextremismandinsurgency;useofmediaandcommunications;and,programmeasurementandevaluation.TheAgencywillmineexistingUSGandexternalinformation, research, andapproachesin itsresearchefforts.Designandimplementknowledge-management systemUSAIDwillsystematicallycollectanddisseminatecasestudiesandlessonslearnedcriticaltoengagementontheseissues.USAIDwilltrainstaffonthispolicy,relatedtoolsandthemostrecentfieldexperienceandlearning.TheAgencywillprioritize

trainingforseniormanagersoperatingintheseenvironments,fieldandWashingtonstaffwhodesignandmanageprograms,aswellasnewDevelopmentLeadershipInitiative(DLI)ForeignServiceOfficers.Whereappropriate,trainingshouldincluderelevantstudyoflanguage,culture,andpolitics. USAIDwilladaptpoliciesandsystemstoensurepersonnelreceivenotonlytrainingbutfieldmentorshipandtechnical support.

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USAIDPolicy/TheDevelopmentResponsetoViolentExtremismandInsurgency USAIDInternalChanges/Conclusion

TheAgencywillalsoseekcollaborative,USG-widetrainingopportunities.Thisincludes expanding Agency participationinForeignServiceInstitute(FSI)coursesandDODpre-deploy-mentprograms. USAIDwillseekgreaterinteragencyinclusioninitsowntrainings.StrengtheninteragencyleadershiproleUSAIDwillrobustlyparticipateinrelevantinteragencyprocesses. USAIDwillproactivelyengagethePresidentsNationalSecurityStaff(NSS),DOS,DOD,andotheragencies

tofurtheritsinteragencyintegrationontheseissues.TheAgencywillsystematicallyengageitsSeniorDevelopmentAdvi-sorstotheCombatantCommands,andthelattersUSAIDLiaison Officers, in these efforts. USAID will strengthen intera-gency

sharing

of

its

growing

technical

expertise

in

countering

thedriversofviolentextremismandinsurgency,andwilllearnfromhowtheinteragencyanalyzesandprogramsvis--vis

thesechallenges.Enhancebilateral,international,andnon-traditionalpartnerengagementIncoordinationwiththeinteragency,USAIDwillincreaseitsengagementwithotherdonoragenciesonthedevelopmentresponsetoviolentextremismandinsurgency.Whereappro-priate,USAIDwillmovebeyondinformationsharingtocountry-based,

joint

strategy

development

and

program

plan-

ning. Multilaterally,USAIDwillalsodrawonandsharebestpractices.The Agencywillengagenon-traditional partnersincounteringlocaldriversofviolentextremismandinsurgency.Diasporagroups,theprivatesector,andlocalreligiousleadersoftenpossessareachthatmakethempotentiallyeffectivepart-nersinamplifyingUSAIDslocalimpact.14

CONCLUSIONInformedby broaderUSG effortsincludingtheU.S. GlobalDevelopmentPolicyandQDDR,thispolicyservesasafounda-tiononwhichUSAIDwilldesignandimplementeffective,evidence-baseddevelopmentprogrammingtargetingdriversofvio-lentextremismandinsurgencywhilesystemicallylearningfromandadaptingitsapproaches.USAIDisindispensibletoanyUSGdevelopmentresponsetocounterviolentextremismandinsur-gency. ThepolicywillalsofortifyUSAIDsdevelopmentvoiceastheUSGdevisesandimplementspolicies,strategiesandprogramsinsupportofoursharednationalsecurityobjectives.

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