2004: Partner NEWS Vol. 7 no. 1

Western Nations Tie Aid to Combating Terror

Recently the Danish Ministry of Foreign Affairs named Kenya and Niger as recipients of Danish development aid for combating terrorism in Africa.

By Dorthe Skovgaard Mortensen

September 11, 2001 was epoch-making in more than one way; the world’s only super power was attacked by terrorists, global insecurity increased and countries joined forces to combat the so-called “axis of evil”. Since the war against terror was announced, the eyes of the world have been recording every military step taken in Afghanistan and Iraq. Less media attention has been drawn to the silent war – the war that is being fought with development aid.

New thinking on development cooperation

By targeting the people (especially young radicals in poor countries) who are most vulnerable to terrorist agitation, development aid is perceived as an instrument to combat terrorism. While poverty reduction remains the principal goal in Danish development aid, prevention of terrorism now becomes one of five focal points. This new approach leaves not only Danida but also Danish NGOs with new challenges.

A research report made by Nordic Institute of Asian Studies for the Danish Ministry of Foreign Affairs recommends modifications to the existing modes of development cooperation. “Poverty reduction, as well as support for democracy, human rights and dialogue should target more consciously and intensively the constituencies of terrorism, with an emphasis on the deprived Islamic people and losers in the globalisation process”.

The research argues that the risk of terrorism and terrorist mobilisation will remain, as long as we have global inequality (economical and political), marginalization and injustice. The only way to fight terrorism is by reducing the economic gap between rich and poor that causes grievances amongst many deprived people in the developing countries. Secondly by supporting democratic structures, good governance, and respect for human rights, as well as empowering people to be active participants in a non-violent political environment.

In February this year the Danish government launched a new plan for development aid for combating terror. The plan has a dual approach. On one hand development aid will be used for short-term technical interventions to build the capacity of developing countries to meet the requirements of the UN’s Security Councils resolution 1375 on prevention of terror. This implies strengthening the judiciary, border controls, the controls over money transfer, migration, police and intelligence, etc. On the other hand development aid will be used for long-term efforts to create open, democratic societies governed by law in which the citizens can participate and where conflicts are solved by negotiations.

Opportunities and Pitfalls

The new anti-terror agenda creates a big opportunity for Danida and Danish NGOs to revitalise the obligation to combat poverty and inequality. It also provides an opportunity to strengthen the promotion of democracy and human rights, e.g. by revealing the current abuse of rights taking place in the name of counter-terrorism.

But the new agenda also leaves some pitfalls open. Lars Udsholt, Secretary General of MS raises the following concerns: “the new agenda bears a risk of transferring development aid from poor to better off countries, and neglecting the respect of human rights as well as suppressing democratic rights with a reference to the fight against terror”.

Lars Udsholts concerns are valid. The Danish development aid for combating terror in Africa could touch highly politicised and sensitive areas. Many African countries claim that the ongoing war against terror threatens their national sovereignty, while many populations and communities, especially Muslim, feel unlawfully attacked, stigmatised and left with frustrations and latent resistance. Therefore it is important that this new development approach is taking soft and non-escalating measures.

The way forward for anti-terror aid

It is the hope of MS that the ambition of the Danish government is more than a sporadic combating of terrorism. “The real challenge will be to utilize development aid as one among many initiatives, which positions Denmark at the center of an ever more globalised reality. Not as a passive audience, but as an active partner”, states Lars Udsholt, and the Secretary General does not reject cooperating with the Danish government on the anti-terror strategy. “MS has years of experience in supporting civil society in African countries. Countries where democratic forces have got much better conditions over the last decade. … MS wants to use its experiences in the forthcoming efforts to support democratic forces and growth of civil society”.

Many see events on the international scene since September 11, 2001 as the beginning of a global clash of civilisations. But maybe they should rather be seen as violent wakeup calls for dialogue and cooperation between western donors and Islamic organisations and institutions. Maybe they are wakeup calls that the new approach to development aid needs to take into account. In this alternative line of thinking the way forward for anti-terror aid would be to ensure that strategies to fight poor governance, conflict and terrorism are coherent, coordinated and consistent with human rights norms and standards. Likewise, it is important to empower deprived and marginalized people in relation to globalisation.