CREATING A TRAINING MODULE ON SMALL ARMS & LIGHT WEAPONS FOR OFFICIALS AND IMPLEMENTING AGENTS

Chapter 1

How to Undertake a Regional Training Module forImplementing Agents and Civil Society: Basic Module

Vision without action achieves nothing.
Action without vision just passes the time.
Vision with action can change the world.

Nelson Mandela

Introduction

For the purpose of the development of minimum standards and common regional training curricula and manuals for officers and key agencies to be utilized in the capacity building components of the Small Arms and Light Weapons initiatives applicable to affected regions, the creation of a regional training task force made of the Regional Focal Point and all National Focal Points is imperative. The Regional Training Task Force should focus on the requirements as embodied in applicable documents. As an example, these are the documents that the Great Lakes and the Horn of Africa Region would consider:
1. The United Nations Programme of Action to Prevent, Combat and Eradicate the Illicit Trade in Small Arms and Light Weapons in All its Aspects.
2. The Protocol Against the Illicit Manufacture of and Trafficking in Firearms, Their Parts and Components, and Ammunition.
3. The Bamako Declaration on an African Common Position on the Illicit Proliferation, Circulation and Trafficking of Small Arms and Light Weapons.
4. The Nairobi Declaration on the Problem of the Proliferation of Illicit Small Arms and Light Weapons in the Great Lakes Region and Horn of Africa.
5. The All Africa Conference on the Implementation of the UN Programme of Action on Small Arms: Needs and Partnerships.
6. Draft Protocol for the Prevention, Control and Reduction of Small Arms and Light Weapons in the Great Lakes Region and Horn of Africa. (As developed by the EAPCCO Legal Sub-committee, 26.6.01.)
A similar exercise can be done for any affected region, i.e. the Southern African or West African Regions, or countries in Asia or the Americas.

Background
Over the last six years, the issue of the prevention, combating and eradicating of the illicit trade in small arms and light weapons in all its aspects has acquired urgency in affected regions and internationally. For example, the effects of this problem in Africa has been noted by the Police Chiefs principally as first reflected by the Chiefs of Police in Southern Africa (SARPCCO Declaration of 1999) and then taken up by their counterparts in the Great Lakes Region and the Horn of Africa (EAPCCO Draft Protocol of 2001). The police chiefs call was integrated and introduced into key African commitments and Protocols such as the Nairobi Declaration of 2001, the SADC Protocol on Firearms and Ammunition of 2000, the OAU Ministerial Declaration of 2000 and, ultimately the United Nations Programme of Action of 2001.
In essence African countries are: "aware of the urgent need to prevent, combat and eradicate the illicit manufacturing of firearms, ammunition, and other related materials, and their excessive and destabilising accumulation, trafficking, possession and use, and owing to the harmful effects of those activities on the security of each state and the region and the danger they pose to the well being of people in the region, their social and economic development and their right to live in peace." ¹
The solution to this problem as presented in the debate from the African continent is that: "priority should be given to prevent, combat and eradicate the illicit manufacturing of firearms, ammunition and other related materials and their excessive and destabilising accumulation, trafficking, possession and use of firearms, because of their links with inter alia, drug trafficking, terrorism, trans-national organised crime, mercenary and other violent criminal activities², and that:
1. "in order to address the problem in a comprehensive, integrated, sustainable and efficient manner through ... the promotion of comprehensive solutions to the problem of the illicit proliferation circulation and trafficking of small arms and light weapons that include both control and reduction, as well as the supply and demand aspects are based on the coordination and harmonization of the efforts of the member states at regional, continental and international levels, and involves civil society in support of the central role of governments in this regard." ³
2. "the enhancement of the capacity of member states to identify, seize and destroy illicit weapons and to put in place measures to control the circulation, possession, transfer and the use of small arms and light weapons." ⁴
Initiatives, declarations and protocols on the African continent have largely earmarked law enforcement agencies for implementation, as clearly indicated in the OAU recommendations to: "strengthen regional and continental 4cooperation among police, customs, and border control services to address the illicit proliferation, circulation, and trafficking of small arms and light weapons. These efforts should include, but not limited to, training, the exchange of information to support common action to contain and reduce illicit small arms and light weapons trafficking across borders, and the conclusion of the necessary agreements in this regard. The majority of this cooperation is mandated in three areas:
1. Sharing of information.
2. Training and capacity building.
3. Co-ordination of joint operations and activities.
On the International Level: As regards to information sharing, capacity building and training the international mandates clearly state that:
1. Member states are encouraged to co-operate with Interpol in the identification of groups and individuals engaged in the chain of the illicit trade, share information and support current databases, such as IWETS, to facilitate investigation and prosecution.⁵
2. Member States, international and regional organisations [are encouraged] to enhance co-operation, the exchange of experience and training among competent officials, including customs, police intelligence and arms control officials.⁶
3. Requires the creation of regional programmes for specialist training on small arms stockpile management and security and related issues.⁷
4. States Parties shall co-operate with each other, and with relevant international organisations, so that state parties may receive the training and technical assistance necessary to enhance their ability to prevent, combat and eradicate the illicit manufacturing of and trafficking in firearms, their components and ammunition.⁸
On the Continental Level: For example in Africa, in the Bamako Declaration member states of the AU (then OAU) agree to address the problem in a comprehensive, integrated, sustainable and efficient manner through:
1. The enhancement of the capacity of member states to put in place measures to control the circulation, possession and use of small arms and light weapons.⁹
2. Strengthening of regional and continental co-operation among police, customs and border policing services to address the illicit proliferation, circulation and trafficking of small arms and light weapons, through interalia training and exchange of information. ¹⁰
On the Regional Level: For example in the Great Lakes region and Horn of Africa, States Parties to the Nairobi Declaration call on member states to strengthen sub-regional co-operation among police, intelligence, customs and border control officials in dealing with the problem.¹¹ States Parties further agree to:
1. Develop and improve National Training Programmes to enhance the capacity of law enforcement agencies to fulfil their roles in the implementation of the Agenda for Action.¹²
2. Establish inter-agency work groups involved in Law Enforcement Agencies to improve policy co-ordination and information sharing.¹³
3. Encourage effective utilisation of existing expertise from civil society and international agencies and bodies to address the problem of small arms and light weapons in all its aspects.¹⁴
4. Encourage regional co-operation for law enforcement agencies and other relevant international agencies and bodies, which should include capacity building, joint training and joint operations.¹⁵
5. It further urges the SRB and EAPCCO to ensure compatibility of training and facilitate joint operations between regional member states.¹⁶
6. In the Ministerial Declaration of the First Ministerial Review Conference of the Nairobi Declaration (August 2002) member states undertakes to enhance the capacity of law enforcement agencies to prevent, combat and reduce the illicit proliferation of small arms and light weapons through inter alia the following measures:
  1. Develop training curricula for law enforcement officials that should cover different levels of officials including senior management, detectives and firearms desk officers.
  2. Develop proposals for potential joint operations for weapons control and reduction.
  3. Urging EAPCCO and regional Interpol secretariats to ensure compatibility of training and facilitate the development of joint operations between regional member states.
7. The Draft EAPCCO Protocol on the control of firearms, ammunition and other related materials states that:
  1. State Parties undertake to improve the capacity of police, customs, border guards, the military, the judiciary and other relevant agencies to fulfil their roles in the implementation of this Protocol, and to coordinate national training programmes for police, customs, and border guards, the judiciary and other agencies involved in the preventing, combating, and eradicating the illicit manufacturing of firearms, ammunition and other related materials and their excessive and destabilising accumulation, trafficking, possession and use.¹⁷
  2. Undertake joint training exercises for officials, from countries within the region, drawn from the police, customs, and other relevant agencies, including the military, where it is involved in border control, and explore the possibility for exchange programmes for such officials within the region, and with their counterparts in other regions.¹⁸
Capacity Assessment
Almost all regional programmes of action have mandated the respective Regional Focal Point for Implementation with the task to assess the capacity of law enforcement agencies in the region that will be tasked with the responsibilities to implement. In the example of the Great Lakes Region and the Horn, the Co-ordinated Agenda for Action states:¹⁹
1. Analyse the assessment, determine areas where capacity is lacking or weak, and develop curricula for building the capacity and training those agencies to fulfil their responsibilities.
2. Negotiate or facilitate support from the international community to assist with the capacity building and training.
3. Issue guidelines for training to States Parties for inclusion in national training curricula.
The Regional Training Task Force should be mandated by member states to determine the terms of reference of the assessment for inclusion into its task of developing training curricula for the implementation of their respective regional 8programme of action. In the example of the Great Lakes and the Horn of Africa, the terms of reference were defined as follows:
1. Objectives of the Assessment: To assess the capacity of Law Enforcement Agencies in the Great Lakes and the Horn of Africa to implement the Nairobi Declaration to:
  1. Identify capacity requirements
  2. Make recommendations for training curricula to address the requirements
2. Classification of Law Enforcement Agencies: Law Enforcement Agencies are defined by the Co-ordinated Agenda for Action as:²⁰
  1. Police: Major Implementing Agency
  2. Customs: Major Implementing Agency
  3. Judiciary: Major Implementing Agency
  4. Immigration: Implementing Agency
  5. Military: Implementing Agency
3. Focus Areas: For the purpose of the assessment the Training Task Force proposes to assess the following aspects:
  1. Multi-disciplinary / Sub-regional Activities: The following multidisciplinary aspects should be assessed:
    1. Awareness of international, regional and sub-regional arrangements
    2. Provisions and capacity to participate in Joint Operations, such as:
      1. Relevant legislation
      2. Existence of inter-agency co-ordination mechanisms
      3. Functional joint planning mechanisms and procedure
      4. Existing joint training exercises and curricula
      5. Procedure and practice for Information Sharing among law enforcement agencies
      6. Existing Standard Working Procedure for joint operations
      7. Standing measures to ensure Inter-operability between different law enforcement agencies
    3. Provisions and capacity to participate in Cross-border Operations, such as:
      1. Relevant legislation
      2. Existence of cross-border cooperation mechanisms
      3. Functional joint planning mechanisms and procedure
      4. Existing joint training exercises and curricula
      5. Procedure and practice for Information Sharing with neighbouring states
      6. Existing Standard Working Procedure for cross-border operations
      7. Standing measures to ensure Inter-operability between different law enforcement agencies in neighbouring states
      8. Communication channels with neighbouring states
      9. Co-operation of the Interpol NCB with neighbouring states and the SRB
  2. Specific Issue Areas per Law Enforcement Agency: The following agency specific issues should be addressed:
    1. Specific Policing operational skills:
      1. Information gathering and analysis capability
      2. Specialised investigation of firearms related cases
      3. Prosecution of firearm related cases
      4. Recordkeeping procedure and practice
      5. Custody / Safe Storage / Stockpile Management of seized and captured stock, as well as own stock
      6. Dissemination of firearms related information to other law enforcement agencies and neighbouring states
      7. Source identification for the specific member state
      8. Final Disposal of exhibits, obsolete, seized and captured stocks
    2. Specific Custom skills:
      1. Information gathering and analysis capability
      2. Ability to search and the Identification of firearms and their components
      3. Ability to Verify documentation
      4. Interview techniques
      5. Ability to trace evidence in a revenue and customs environment
      6. Information Sharing with other law enforcement agencies
      7. Custody / Safe Storage of seized and captured stock
    3. Specific Immigration skills:
      1. Information gathering and analysis capability
      2. Document Identification and detection of false documents
      3. Identification of firearms and their components
      4. Verification of Documentation
      5. Interview techniques
      6. Tracing of evidence
      7. Information Sharing with other law enforcement agencies
      8. Safe handling and Storage of firearms
    4. Specific Judiciary Skills:
      1. Prosecution of firearm related cases
      2. Hearing of Firearm related cases
      3. Use of expert evidence during firearm related cases
    5. Specific Military Skills:
      1. Knowledge and application of the basic elements of national firearm and ammunition legislation
      2. Identification of Firearms and their components
      3. Search and interview skills
      4. Preservation of evidence
      5. Basic Recordkeeping procedure and practice
      6. Safe storage and custody of captured stock
      7. Co-operation with other law enforcement agencies
      8. Information sharing with other law enforcement agencies
Identifying target groups for training needs determination
It is important that a Regional Training Task Force identifies the Target groups and their training needs for implementation and develop training objectives, curricula and manuals to meet the identified needs. The target groups, needs, requirements and objectives identified by the Training Task Force would be all or some of the following:
- Political leaders and decision makers
- Senior Management
- Practitioners
- Civil Society
Political leaders and decision makers: Political leaders and decision makers are responsible for strategic direction giving, mobilisation of support and monitoring of progress of implementation on the regional and national level. As such they need timely information and feedback on the international, regional and national processes.
1. Classification: An example taken from the Great Lakes Region and the Horn of Africa:
  1. Sub-Regional Level: There are no Political Leaders on the Sub-regional Level. The only political decision makers on the sub-regional level are the East African Parliament.
  2. National Level:
    1. Ministerial Level: Cabinet Ministers, and specifically those responsible for implementation aspects such as Foreign Affairs, Internal Affairs, Security Ministries, etc
    2. Members of Parliament: Members of Parliament of the various National Assemblies
    3. Provincial/Regional Leaders: Political Leadership on the provincial/regional level such as Provincial/Regional Commissioners, etc
    4. District Political Leaders: Political Leadership on the District Level, such as District Commissioners, etc
    5. Urban Centres and Municipalities: Political leadership in these areas include mayors, etc
2. Needs: This target Group needs directed information packages and briefings to provide information on:
  1. The various international, regional and sub-regional instruments, their objectives and their implications in terms of national obligations and requirements
  2. Progress with implementation of the above mentioned in the regional and sub-regional context
  3. National objectives and implementation plans, progress and obstacles
  4. Monitoring and verification information to assist political leaders and decision makers with strategic management of the national and sub-regional processes
3. Objectives: To address the identified needs, political leaders and decision makers must:
  1. Have an understanding of the comprehensive nature of the problem and the international solutions proposed
  2. Have a thorough understanding of the international, regional, sub-regional instruments dealing with small arms and light weapons, its implications and requirements
  3. Have an understanding of the national policy and National Action Plan dealing with SALW, its implications and requirements
  4. Have a working knowledge of their involvement in mobilising political, popular and financial support for the sustainable implementation of the National Action Plan and activities
  5. Receive regularly updated information on progress and challenges with implementation on the regional and national level, such as harmonisation of legislation, etc
Senior Management: On the senior management level there are two sets of needs; information needs and technical expertise needs. Senior managers, such as the heads of departments, Police Chiefs, etc, include role players who are responsible for policy development, planning and monitoring of the implementation of national policies and action plans. As such need to have both the background information and the technical knowledge applicable to the topic.
1. Classification of the Target Group: The Task Force classified this group as follows (drawing on the same example of the Nairobi Initiative):
  1. Sub-Regional Level: On the Sub-regional level senior management include the senior personnel serving in sub-regional organisations and structures such as:
    1. Nairobi Secretariat
    2. East African Community
    3. IGAD
    4. Interpol SRB
    5. EAPCCO
  2. National Level: On the National Level senior management include senior civil servants such as:
    1. Principal Secretaries, Directors General, etc
    2. Heads of Departments, such as CID, Directors of operations, training, Immigrations, Customs, Intelligence, Internal Affairs, Refugees, Wildlife, senior military officers, etc
    3. National Focal Point co-ordinators
2. Needs: This target Group needs information, formal training and briefings to provide information on:
  1. Broader issues of arms management
  2. The various international, regional and sub-regional instruments, their objectives and their implications in terms of national obligations and requirements
  3. Information and training on specific issues such as stockpile management, recordkeeping, import and export control, legal reform and requirements, licensing, marking and tracing, etc
3. Objectives: To address the identified needs, Senior Management must have a:
  1. Thorough understanding of the comprehensive nature of the problem and the international solutions proposed
  2. Thorough understanding of all existing applicable arms initiatives and protocols dealing with Small Arms and Light Weapons
  3. Thorough understanding of arms management issues in their prevention, control and reduction aspects
  4. Thorough understanding of the nature, composition, commonalities and differences of existing regional cooperation structures including their mandates and their resources
  5. The ability to plan and direct Joint Operations and Cross Border Operations
Practitioners: The practitioners from every law enforcement, security or relevant agency responsible for implementation of national policy and action plans or enforcement of the law are the backbone of national effort to deal with the problem of SALW. As such they need to have both the background information and the technical knowledge applicable to enable them to fulfil their respective roles and responsibilities.
1. Classification of the Target Group: The Task Force classified this group as follows (the Nairobi Initiative example):
  1. Sub-Regional Level: Personnel serving in sub-regional organisations and structures such as:
    1. Nairobi Secretariat
    2. East African Community
    3. IGAD
    4. Interpol SRB
  2. National Level: Civil Servants responsible for the implementation of National Action Plans and related activities, such as:
    1. National Focal Point Members
    2. Members of Provincial/Regional Task Forces
    3. Members of Law Enforcement Agencies such as:
      1. Police
      2. Customs
      3. Immigrations
      4. Military
      5. Judiciary
    4. Members of other agencies, such as:
      1. Security/Intelligence
      2. Environmental Services
      3. Explosives department
2. Needs: This target Group needs training courses, formal training and seminars to provide information on:
  1. A working knowledge of the various international, regional and sub-regional instruments, their objectives and their implications in terms of national obligations and requirements
  2. Issue specific training such as; planning and execution of joint operations, cross border operations, collection and destruction, firearm identification and safe handling, communication and information sharing, firearm related case investigation, etc
  3. Specialised skills training such as location and destruction of arms caches and explosive devises, navigation and use of the GPS, basic air operations and drills, etc
3. Objectives: To address the identified needs, Practitioners must have:
  1. A thorough understanding of the comprehensive nature of the problem and the international solutions proposed
  2. A thorough understanding of all existing applicable arms initiatives and protocols dealing with Small Arms and Light Weapons
  3. A thorough understanding of arms management issues in their prevention, control and reduction aspects
  4. A thorough working knowledge of the National Action Plan
  5. A thorough understanding of the nature, composition, commonalities and differences of existing regional cooperation structures including their mandates and their resources
  6. The ability to plan and conduct Joint Operations as part of a multidisciplinary force
  7. The ability to plan and conduct Cross Border Operations as part of a multidisciplinary force with or in a neighbouring country
  8. A working understanding of civil society’s role and responsibilities in order to utilise the expertise, solicit support, get information and facilitate their participation in joint operations
Civil Society: Civil Society forms the backbone of support to national processes and implementation. They are responsible for research, technical and resource support to governmental processes and the implementation of national action plans. Their biggest role remain that of monitoring and verification. To enable them to engage in the process in a responsible and sustainable manner they need to be capacitated to interact and liaise with the official process, to communicate and disseminate information, to understand the international, regional and national process, provide technical support and enable accurate monitoring and verification practice.
1. Classification of the Target Group: Civil Society²¹ can be classified as the collective social entity where citizens interface with each other and with the state. It is normally thought to be composed of a range of organisations including:
  1. Social movements
  2. Professional and voluntary associations
  3. Grassroots organisations
  4. Non-governmental organisations
  5. Trade unions
  6. Co-operatives
  7. Academic and philanthropic organisations
  8. Community groups
  9. Gender and youth organisations
  10. Religious related organisations
  11. Independent media
  12. Informal sector
2. Needs: This target group needs training courses, formal training and seminars to provide information on:
  1. A working knowledge of the various international, regional and sub-regional instruments, their objectives and their implications in terms of national obligations and requirements
  2. Issue specific information such as; planning and execution of awareness programmes, firearm identification and safe handling, communication and information sharing, monitoring techniques, etc
3. Objectives: To address the identified needs, members from civil society must have:
  1. An understanding of the nature of the problem and the international solutions proposed
  2. An understanding of applicable arms initiatives and protocols dealing with Small Arms and Light Weapons
  3. An understanding of arms management issues in their prevention, control and reduction aspects
  4. A working knowledge of the planning and conducting of:
    1. A Work Plan
    2. Mobilisation of Resources
    3. Research and information gathering activities
    4. Public Awareness Programme
    5. Communication and Networking
    6. Workshops and seminars
  5. A working knowledge of the National Action Plan
  6. A working knowledge of Law Enforcement Agencies, their way of operating and liaison mechanisms
  7. Practical knowledge of:
    1. The relevant national firearm legislation
    2. Identification of firearms ammunition and explosives
    3. Reporting procedures
    4. Participation in Law Enforcement Operations

Notes

Protocol on the Control of Firearms, Ammunition and Other related Materials in the SADC Region. Par 3, page 1. and, EAPCCO Legal Sub-committee, 26.6.01; Draft Protocol for the Prevention, Control and Reduction of Small Arms and Light Weapons in the Great Lakes Region and Horn of Africa. Par 4, page 1.

Protocol on the Control of Firearms, Ammunition and Other related Materials in the SADC Region. Par 4,
page 1.

The Bamako Declaration on an African Common Position on the Illicit Proliferation, Circulation and Trafficking of Small Arms and Light Weapons. Par V.2.v

Ibid, Par V.2.vi.

A/CONF/.192/15.The United Nations Programme of Action to Prevent, Combat and Eradicate the Illicit Trade in Small Arms and Light Weapons in All its Aspects. Par. II.37, page 14 and Par. III.9, page 15.

Ibid, Par III.7, page 15.

Ibid, Par III.8, page 15.

A/RES/55/255. The Protocol Against the Illicit Manufacture of and Trafficking in Firearms, Their Parts and Components, and Ammunition. Art 14, page 6.

The Bamako Declaration on an African Common Position on the Illicit Proliferation, circulation and Trafficking of Small Arms and Light Weapons. Par V.3.A.ii), page 4.

Ibid, Par V.3B.iii), page 5.

The Nairobi Declaration on the Problem of the Proliferation of Illicit Small Arms and Light Weapons in the Great Lakes Region and Horn of Africa. Par iv, bullet 6, page 3.

SAEM/GLR.HoA/1. Coordinated Agenda for Action on the Proliferation of Small Arms and Light Weapons in the Great Lakes Region and the Horn of Africa. Par 4.2, page 3.

Ibid, Par 4.3, page 3.

Ibid, Par 4.6, page 3.

Ibid, Par 4.7, page 3.

Ministerial Declaration for Continued Concerted Action in the Great Lakes Region and Horn of Africa.
Par 2.b.(iii), page 5.

EAPCCO Legal Sub-committee, 26.6.01: Draft Protocol for the Prevention, Control and Reduction of Small Arms and Light Weapons in the Great Lakes Region and Horn of Africa. Article 4, page 5.

Ibid, Article 15, page 10.

SAEM/GLR.HoA/1. Coordinated Agenda for Action on the Proliferation of Small Arms and Light Weapons in the Great Lakes Region and the Horn of Africa. Par 4, page 5.

SAEM/GLR.HoA/1. Coordinated Agenda for Action on the Proliferation of Small Arms and Light Weapons in the Great Lakes Region and the Horn of Africa. Par 4, page 5.

SAEM/GLR.HoA/1. Coordinated Agenda for Action on the Proliferation of Small Arms and Light Weapons in the Great Lakes Region and the Horn of Africa. Par 3, page 5.