alternative approaches: land-based strategies to countering piracy off the coast of somalia
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C I V I L - M I L I T A R Y F U S I O N C E N T R E
Alternative Approaches Land-based Strategies to Countering Piracy
off the Coast of Somalia
Amber RamseyKnowledge Manager
This report outlines some recommended alternative land-based strategies that could be utilised to develop greater resistance to pirate activities by Somali communities and reinforce existing grassroots efforts to highlight its negativeeffects. Related information is available at www.cimicweb.org. Hyperlinks to source material are highlighted in blue andunderlined in the text.
he United Nations recently adopted Resolution 2015 , which calls for tougher international measures in thefight against piracy off the coast of Somalia. As stated by Voice of America (VOA) , while internationalpatrols have played a major role in preventing successful pirate attacks in the Gulf of Aden and the Indian
Ocean, various other methods have also proven to be effective, including the implementation of Best ManagementPractices (BMPs ) and on board deterrents such as armed guards. However, according to Dr. Martin Murphy,senior fellow at the Atlantic Council ’s Ansari Africa Center , deterring piracy also requires a land-based solutionwith grassroots support . He explains, “[i]t’s the kingpins that are driving this and the economic circumstances thatare driving it that we really need to tackle”. The International Expert Group on piracy off the Somali coast,commissioned by the Special Representative of the United Nations Secretary General to Somalia in 2008, notedthat “piracy off the Somali coast is only one manifestation of the tragic events the country has experienced foralmost 20 years. ” The Expert Group was created as part of initial efforts to help guide a coordinated internationalresponse to Somali piracy. The final report released by the International Expert Group indicated that theinternational community should propose solutions that could be “locally driven and supported” , as the piracy issuemust be addressed within Somalia. The experts further explained that “piracy [off the coast of Somalia] will not besuppressed without providing coastal populations with alte rnative occupation and revenue”, adding that “[i]n order to eradicate [piracy] and prevent it from arising again, we need the reconstruction of Somalia as a fully respectedmember of the community of Nations.”
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ANTI PIRACY
November 2011 Comprehensive Information on Complex Crises
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Both the International Expert Group final report and the Contact Group on Piracy off the Coast of Somalia(CGPCS ) Working Group 4 Concept Paper suggested during the initial stages of the international response toSomali piracy that information campaigns educating the public on the hazards of piracy and its effects on the localeconomy could be a successful means of deterring piracy on land. Additionally, Dr. Murphy suggests that a
national development policy directed towards the community and clan level would also be a successful deterrent.He advocates a bottom-up strategy, guided by the communities themselves, in areas where local governance andsecurity allow for effective development work. These efforts have already been undertaken by a number of localorganisations and Somali communities, but require sustained international support to create a more comprehensivestrategy that will reach a larger portion of the population.
Roots of Modern-Day Somali Piracy
According to the International Expert Group ’s initial findings, piracy in Somalia is rooted in a number of socio-economic factors; mainly poverty, hunger and civil insecurity along the coastline. While Somali piracy gainedinternational attention in 2008 it is widely believed to have developed in response to the illegal and unregulatedexploitation of Somalia’s fishery resources by foreign vessels, which became prevalent after the fall of dictatorSiad Barre in 1991. According to Somali fisherman, these actions severely constrained the ability of coastalcommunities to make a living and caused many former fishermen to turn to piracy. Captain Faisal Azim, GeneralSecretary of the Bangladesh Merchant Marine Officers’ Association (BMMOA ), in his article entitled ‘TheGrowth of Somali Piracy ’ claims that many pirates sought to protect their territorial waters in the absence of aneffective national coastguard and the disintegration of the nation’s armed forces.
Abdi Ismail Samatar , Professor of Geography at the University of Minnesota, in an article he wrote for al Jazeera in September 2011, categorised Somali pirates into four main groups based on their objectives and motivations . The groups he identified included political pirates, resource pirates, defensive pirates and ransom pirates. Politicalpirates, he says, were members of the Somali National Movement, which was active from 1981 until the fall of theSiad Barre regime in 1991. They warned ships to avoid Somali ports 1 and seized three ships 2 transporting goods tothe country in 1989/91. Stig Jarle Hansen of the Norwegian Institute for Urban and Regional Research (NIBR )
suggests that these attacks could be defined as the first piracy incidents in modern Somali history. However,according to Professor Samatar, the SNM sought to weaken the Siad Barre regime rather than to achieve personalgain and were no longer a threat to shipping after Barre’s downfall .
Professor Samatar further categorises the illegal activities of foreign vessels during years of unrest in Somalia 3 asresource piracy. He then claims that defensive pirates developed in response to these illegal activities, or the belief that foreign fishing fleets were taking advantage of the situation on land to exploit the country’s vast fishingresources and to dump unwanted (toxic) materials in Somali waters at a low cost (USD 2.5/tonne vs. USD1000/tonne in Europe 4). Al Jazeera reported in 2008 that after the Indian Ocean Tsunami of 2004, allegationsemerged that nearly 10 million tonnes of nuclear and toxic waste had been dumped in Somali waters ,5 causing anarray of cases of respiratory infections, ulcers, abdominal hemorrhages and unusual skin infections among theinhabitants of the northeastern coastal areas of Somalia. 6 Nick Nuttall, a United Nations Environmental
1 Stig Jarle Hansen of the Norwegian Institute for Urban and Regional Research (NIBR ) indicates that the SNM hijacked ships andtook their goods to prevent them from reaching government-controlled areas.2 Anti-Shipping Activity Messages (ASAM ) lists a total of three ships hijacked by the SNM from 1989-1991.3 Mainly from 1991-20044 Nick Nuttall, a United Nations Environment Programme (UNEP ) Spokesman.5 The United Nations Environmental Programme (UNEP) planned to do a proper, in-depth scientific assessment on the magnitude of the problem, but high levels of insecurity prevented an accurate assessment . 6 While this issue is still hotly debated a recent UN Report indicates all statistics dealing with Somali fisheries and related activitieshave restricted utility based on the difficulty in gathering current data.
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Pirates who hijaked the Ukranian vessel MV Faina
in 2008 told al Jazeera that the ransom would “ gotowards cleaning up the waste ”. A piratespokeman for the group also indicated that theransom was a means of “reacting to the toxicwaste that has been continually dumped on theshores of our country for nearly 20 years”.
Programme (UNEP ) spokesman told reporters, “S omalia has been used as a dumping ground for hazardous wastestarting in the early 1990s, and continuing through the civil war”.
Today’s ransom pirates are believed to have developed inthe wake of the struggle of Somali fisherman to extractsome form of payment from foreign vessels for theexploitation of Somalia’s resources. C riminals took advantage of the support from Somali communities fortheir own financial gain and a highly lucrative industrydeveloped. Unfortunately, according to Professor AbdiIsmail Samatar, actions and statements made by Somalipirates have made it incredibly difficult for experts tocategorise pirates motivated by personal gain and those motivated by historical factors such as overfishing.Moreover, he says this has helped ransom pirates garner a certain level of support from local communities thatstill hold strong greivances over years of perceived foreign exploitation.
Local Contributing FactorsA 2009 Assessment Report commissioned by Norwegian Church Aid (NCA ) on piracy in Puntland identifiedseveral factors that affect Somali perceptions of piracy. In particular, respondents noted the negative consequencesthat piracy had on their communities, including drug abuse, pre-marital sex, theft, and inflation (caused by theinflux of ransom money). Nevertheless, the survey also found that piracy proceeds led to a construction boom insome parts of Puntland, creating much-needed income for local Somalis.
As stated by Patrick Lennox, Ph. D., author of the Canadian Defence and Foreign Affairs Institute (CDFAI ) reportentitled, “Contemporary Piracy off the Horn of Africa ”, the most crucial enabling factor for piracy is sanctuary.“Without sympathizers, protectors, financiers, and indeed customers, pirates would not be able to function ”, heargues. Lennox adds that Somali piracy is sustained by the existence of safe havens on shore, from where piratescan launch attacks and seek refuge. One major factor that is believed to influence many Somali communitiescontinuing to condone piracy is the adherence to pirate policies and guidelines , which reportedly stipulate that20% of ransom proceeds are to be given to the poor and others on shore that have assisted the pirates in theirefforts, says Mohammed Adow, the author of an article in al Jazeera from June 2009. 7
The same article also noted the draw for Somali youth to participate in pirate activities . According to MohammedAdow, “[t]he pirates ranks have been swollen by many of the regions youths – drawn by the potentially huge
profits of one of Somalia’s most successful, if unconventional, business enterprises.” The International ExpertGroup on Somali piracy also discussed the high rate of unemployment among young people in Somalia in 2008.They suggested that it had forced many of the country’s youth to join militias and other armed groups , includingpirates, in order to earn a basic income.
In her Council on Foreign Relations (CFR ) special report entitled, “Somalia: A New Approach ”, Bronwyn E.Bruton claims that public tolerance of pirate activities could also be affected by the overwhelming use of force byforeign navies. Pirates are believed to already hold some local support based on grievances over Somali fishermanbeing harassed by foreign fishing vessels . One local fisherman interviewed by the Integrated Regional
Information Networks (IRIN) argued that these vessels are now being protected by the navies of their countries. Hefurther claimed that foreign navies often mistake Somali fisherman for pirates and occasionally open fire on them,adding that the international community is only “talking abo ut the piracy problem in Somalia, but not about thedestruction of our coast and our lives by these foreign ships. ” Meanwhile, the German magazine Der Spiegel
7 Somalia Report also suggests a “strict set of rules and regulations ”.
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Bargal Volunteer Anti-Piracy Defence Force. S ource: Somalia Report
spoke with several individuals imprisoned for piracy in Hargeisa, Somaliland, many of whom insisted that theywere merely fisherman who had been wrongly accused. The article notes that Somalis who do not return fromfishing trips are often believed to have been killed by foreign warships. This belief creates a desire for vindicationamong the fisherman’s family members and enforces the belief that Somali pirates are in a legitimate fight against
foreign vessels.
Another contributing factor that may support the positive perception of Somali pirates among their communities isthe perception that they have helped promote the resurgence of Somalia’s fishing resources. T he head of a localconsortium of 500 fisherman in Berbera, Somaliland, Yussuf Muhammed Ahmed, told Der Spiegel that pirateshave supported the economic potential of Somali fisherman by pushing foreign fishing fleets further from shoreand allowing Somalia’s fishing resources to rebound . He insists that catches are much higher now than they werefive years ago and believes that this is a direct correlation to the fact that fewer vessels are operating in Somaliwaters.
Changing Perceptions
Today, Somali pirates have successfullyinvoked long-standing local grievances overillegal fishing and waste dumping in Somalia’sterritorial waters to create an enablingenvironment for attacks on foreign vessels,claims CFR democracy and governancespecialist, Bronwyn E. Bruton. However, thisatmosphere seems to be changing, with moreSomalis turning away from pirates andcondemning their acts. According toMohammed Adow, in the town of Eyl innorthwestern Puntland, widely considered the
pirate capital of Somalia, local religious leadershave united in the fight against piracy. Adowclaims that they hold meetings in the town squarecondemning the negative impacts that piracy has on Somali communities.
Somalia Report also identifies the town of Bargal 8 as another example of effective grassroots efforts to counterpiracy. 9 The article claims that local elders and religious leaders are beginning to build resistance to piracy amongcommunity members. One method being utilised in Bargal involves signs being posted that say “STOP” with anexplanation that pirate money is considered haram (forbidden) and against Islam. Similar to the efforts in Eyl,Bargal leaders have attempted to create a unified front against pirates. According to Somalia Report , the alliancestarted when a group of local townspeople decided that they were fed up with thefts, drinking, rowdy behaviourand the unwanted attention pirates were bringing to the area. The group created a list of demands and presented
them to the pirates, later establishing a local police force to keep pirates out of town with 80 volunteers. 10
Recent actions taken by Somali elders in response to the kidnapping of two Danish Demining Group (DDG ) workers in Puntland have also shown increasing attempts by local leaders to negotiate the release of hostagesbeing held in their regions. According to a press release from the Danish Refugee Council (DRC ), the organisationthat runs DDG, efforts to secure the release of the two hostages have been supported by Somali traditional leaders ,
8 Bargal is known as a piracy safe haven and most of the local men are fishermen.9 Somalia Report notes that almost all main coastal towns along the eastern coast of Puntland and Galgudug are known as piratehavens.10 The authors noted that pirates have similarly been turned away from towns up and down the coast of Puntland.
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influential clan member s and elders who condemn the act as “contradictory to Somali values where honor isobliging Somali people to treat guests with respect and dignity”. A statement released by DRC in the name of local leaders called on “elders, youth, women’s groups, religiou s groups, the local administration and whoever canmake a positive contribution to stand up for the release of these humanitarian staff .”
Approaches to Countering Piracy
The United Nations, research groups and non-governmental organisations (NGOs) active in Somalia haveidentified several strategies for undermining local support for pirate activities. Several specific areas have beenidentified for such efforts, particularly the coastal regions of Puntland, but also other areas known to harbourpirate groups. Various actions have been suggested by these groups to develop greater resistance against piratesthroughout Somalia. These include providing support for existing efforts by clan elders and religious leaders toinform their communities of the negative impacts of piracy; utilising media outlets in Somalia and abroad topromote the message that piracy is being dealt with strongly and is against Islamic teachings; improvingalternative livelihood options for those most vulnerable to being recruited by pirates; and building trust in coastalcommunities by showing that efforts are being made to rebuild S omalia’s fishing industry and prevent theexploitation of its fishery resources.
A speech given by Puntland’s President H.E. Abdirahman Mohamed Farole in October 2011 at Chatham House inLondon noted efforts being made by the semi-autonomous state of Puntland to launch community engagementprogrammes to rehabilitate pirates and to prevent piracy recruitment. President Farole requested internationalassistance in continuing and expanding such efforts throughout Puntland. He also highlighted the need to “explorealternative livelihoods for coastal communities affected by piracy and illegal fishing, such as vocational trainingschools, job opportunities for youth, and reviving fishing industry activities disrupted by piracy and illegalfishing” . According to President Farole, a successful framework for countering piracy would combine communityengagement programmes, economic development, and military might.
Similarly, the September 2011 meeting of the International Contact Group on Somalia, under the chairmanship of the United Nations Special Representative of the Secretary-General for Somalia, Augustine Mahiga, stressed theneed to address the socio-economic root causes of piracy and to tackle the issue through a comprehensiveapproach. The report indicated that local institutions are considered by the United Nations Political Office forSomalia (UNPOS ) to be the most informed and well placed to address the root causes of piracy.
The CGPCS Working Group 4 , in its first meeting in January 2009, also addressed the subject of a communicationstrategy to reach out to various audiences, including the Somali community. One way of addressing the rootcauses of piracy identified by the CGPCS was through partnering with international and Somali civil societyorganisations, particularly in the areas of youth and child protection, and community development. The mainstrategies identified by various local and international organisations active in land-based strategies to counterpiracy are further discussed below.
Religious Leaders and Community Elders Local public awareness campaigns have sought to highlight the social, economic, and political costs of piracy,with many local elders or religious leaders taking the lead in these efforts. According to the International ExpertGroup 2008 workshop on Somali piracy, religious leaders were among the early opponents of pirates. The ExpertGroup claimed that religious leaders have repeatedly advised people not to be attracted by the wealth that piracyoffers and declared that any marriage to a pirate would be considered against Islamic law. They thenrecommended that non-political but influential actors in Somali civil society, the Somali Diaspora and the SomaliChambers of Commerce in the UAE and Kenya be enlisted to support the idea that piracy is “unpatriotic anddestructive ”. Local religious leaders and clan elders were later identified by CGPCS Working Group 4 (WG4), as a
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Possible Alternative Livelihood Options
1) Fisheries : provision of fishing gear and bettersecurity guarantees from Puntland authorities.
2) Small Scale Trading : provision of Micro-Credit and training for those seeking toengage in petty trade.
3) Artisanal Crafts : metal work, mechanical
engineering, electrical work, carpentry andtailoring.4) Animal Husbandry : provision of livestock.
Source: Norwegian Church Aid
potential avenue of information dissemination. According to the WG4 Concept Paper, clan chiefs are an importantsupport base that can help highlight the risks associated with piracy in their areas.
Religious leaders and community elders were also identified by NCA as those best positioned to sway publicopinion and to draw Somali youth away from piracy. Most noteworthy in the findings of the 2009 NCAassessment survey was that 95% of respondents 11 believed piracy is forbidden under Islamic teachings. Religiousleaders were recognised by NCA as having spearheaded local efforts against piracy by utilising Quranic teachingsto dissuade youth from joining pirate gangs. According to NCA, religious leaders retain strong credibility inSomalia and with a planned and concerted effort they could successfully dissuade a large number of youth frompiracy. 12 However, despite being identified as powerful players in various grassroots efforts against piracy, a lack of resources has prevented religious leaders from fully implementing these efforts into a comprehensivecampaign.
Information Campaigns
Radio Broadcasts were also identified by CGPCS WG4 as a highly effective means of disseminating informationto the Somali public. The creation of a dedicated radio station, or dedicated time on a local radio station to discusspiracy-related topics was one recommendation offered in initial discussions. However, geographic coverage of Somalia’s major media sources, which are mainly located in big cities, has been identified as one constraint to thismethod. Therefore, support for local media to expand coverage to largely unexplored areas has been highlightedas a possible intervention in the search for land-based solutions to piracy. Several local radio stations are highlyregarded and could be supported in such outreach efforts (see Annex A). One example of this approach is that of Radio Daljir , a Bossaso-based radio station, which was cited by Bronwyn E. Bruton for its effectiveness inhighlighting the negative aspects of piracy.
According to WG4, the perspective of the Somali civil society is that outreach activities should specifically targetSomali youth. One recommendation offered by NCA was for the collaboration of the media and religious leadersto organise talk shows engaging Somali youth about the Islamic stand on piracy. Meanwhile, WG4 memberssuggested that a broad understanding of the consequences and action taken against pirates would be an effectivedeterrent for many vulnerable youth, and therefore efforts should be made to publicise the success of internationalmilitary intervention as well as alternative options.
Alternative Livelihoods
The UN’s International Expert Group additionallyrecommended during its 2008 workshop that improvedemployment opportunities be introduced in Puntland andother coastal communities. To achieve this goal, severalareas of intervention were recommended, including:developing the fishing industry; building up coastalinfrastructure through labour-intensive job creation,vocational training for youth; support to youth groups;engagement with the diaspora; and support topastoralists. In support of this recommendation, 87% of the 2009 NCA survey respondents agreed that if incentives and alternative income opportunities wereprovided for Somali youth, they would abandon piracy.
11 The survey targeted 250 individuals in the coastal towns of Eyl, Qarhis and Garowe over a 20-day period.12 As noted in the NCA survey , a campaign undertaken by religious leaders in Eyl in May 2009 saw at least 200 pirates renouncetheir activities.
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Four Critical Anti-Piracy Messages
1) Piracy is haram , or against religious teachings2) Piracy has eroded Somalia’s cultural and
traditional values3) Piracy has destroyed Somalia’s international
reputation and standing
4) Piracy increases the chance of death orimprisonment
Source: UNODC
Trustbuilding
The development of the Somali fishing and pastoral industries is an additional approach suggested by Bronwyn E.Bruton as a means to overcome concerns over illegal fishing in Somali waters. According to Bruton, the Somaligovernment and international fishing companies must cooperate to achieve the most effective development of Somalia’s fisheries and the Somali fishing industry as a whole. Moreover, greater emphasis needs to be placed onthe policing of foreign trawlers in Somali waters alongside efforts to support fisherman in rebuilding theirlivelihoods.
What’s Next?
The UK Government, during a speech delivered by Foreign Office Minister, Henry Bellingham, to the BritishChamber of Shipping in October 2011, announced that it will commit GBP 2 million (approx. USD 2.8 million)towards community engagement and economic development projects in the coastal regions of Somalia. The fundsare part of an attempt by the UK to create long-term solutions to current socio-economic gaps within Somalia.Projects will include media messaging focused on the dangers of piracy including the fact that one third of piratesnever come home. According to Bellingham, this message will be coupled with UK-supported programmes tocreate viable alternative livelihood options for those most vulnerable to being recruited. Moreover, the UKgovernment indicates that a new push will be made to involve international partners in the efforts being made onland alongside the semi-autonomous state of Puntland and the United Nations.
The United Nations Office of Drugs and Crime (UNODC ) also announced the development of a new anti-piracyadvocacy campaign , as part of the organisations’ on -goingcounter-piracy initiatives in Somalia and the Horn of Africa region. The campaign was recently presented byWayne Miller of UNODC at an international conferenceon piracy in London . According to the presentation, the
goal of the campaign is “[t]o make piracy unappealing”.Partners will include authorities in Puntland, top-levelclerics, clan and traditional elders, members of the Somalidiaspora and media outlets. The three-prong advocacystrategy seeks to (i) highlight the negative aspects of a career in piracy, (ii) highlight the positive careeralternatives, and (iii) use a multimedia communications strategy to change public perceptions on piracy.
Conclusion
As shown above, it is evident that more is being done on the ground in Somalia to focus on the underlying issuesthat affect piracy off the coast. Many international governments, Somali officials, UN agencies, NGOs and civilsociety groups are attempting to come together to create a viable strategy that will offer alternatives to the
dangerous and demanding life of a pirate. As further discussed, Somali civil society is considered to be in the bestposition to address the issue of piracy and to help break down support among Somali communities. Yet, asidentified by Norwegian Church Aid, resources for such efforts have been scarce and many attempts have failed tocome together towards a comprehensive strategy. Most recommendations for alternative approaches to piracysuggest that international efforts to fight piracy should be further aligned with on-going efforts by religiousclerics, village elders, civil society groups and the media within Somalia. As suggested by NCA, a comprehensivestrategy is the only way that land-based approaches will be truly effective in creating an environment wherepirates are no longer accepted and Somali youth begin to see viable and appealing opportunities elsewhere in theircommunities.
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Annex A. Somalia Radio Stations
Radio Station Area of OperationSBC-Somali Broadcasting Corporation Garowe, Qardho, Bosasso (Puntland)Radio Garowe Garowe (Puntland)BBC World Service Arabic Mogadishu (Somalia)Radio Free Somalia SomaliaTusmo Radio Mogadishu (Somalia)Horn Afrik Mogadishu (Somalia)Shabelle Media Network Mogadishu (Somalia)Radio Daljir Galkayo (Puntland)Radio Badbaado Abudwak (Galgudug)Dalmar Media Somalia
Radio Hargeisa Hargeisa (Somaliland)Radio Nugaal Garowe (Puntland)Radio Somaliland SomalilandRadio Banadir Broadcasting Mogadishu (Somalia)