Counter-terrorism in West Africa needs greater police cooperation
Without the political will of West African states to increase cooperation and implement the relevant laws, counter-terrorism strategies are unlikely to succeed.
Published on 08 April 2013 in ISS Today
Southern Africa Regional Organised Crime Observatory Coordinator, ENACT, ISS Pretoria
The growing number of terrorist attacks and the multiplicity of terrorist groups in West Africa demand increased cross-border cooperation among law enforcement agencies. As first responders to crimes, police and other law enforcement officials play a crucial role in the operational aspects of the fight against terrorism. The challenge, however, relates to the limited practical cooperation among police in the region. Despite significant progress in terms of political integration and the free movement of persons and goods among members of the Economic Community of West African States (ECOWAS), the timely sharing of information and mutual legal assistance among police in the region remain serious problems.
The main obstacles to practical cooperation have been state sovereignty and the view that practical counter-terrorism cooperation, particularly at the police-to-police level, impinges on state privacy. This is even more pronounced with regard to cooperation between police and other law enforcement agencies such as gendarmerie, intelligence agencies, the army, customs, and port/border authorities. The relationship is often characterised by competition and mistrust, which hinder effective joint operations and information sharing. The problem is compounded by the lack of human and financial resources, interactive databases and adapted communication tools.
The general lack of cooperation on criminal matters extends to counter-terrorism. Since 1978, ECOWAS has adopted a number of legal instruments to promote inter-state cooperation on criminal and defence issues, including the 1994 Convention on Extradition; 1992 ECOWAS Convention on Mutual Assistance in Criminal Matters; 1982 Convention for Mutual Administrative Assistance in Customs Matters; 1981 Protocol on Mutual Assistance in Defence; 1978 Protocol on Non-Aggression; and the 1977 Framework Agreement of the Protocol on Non-Aggression and Assistance in Defence. The challenge therefore has never been the lack of legal frameworks but rather the absence of effective implementation of the existing legal regimes.
Recently, ECOWAS adopted a Political Declaration and Common Position Against Terrorism, which provides for a regional Counter-Terrorism Strategy and Implementation Plan to help member states tackle terrorism. While the Political Declaration and the Strategy specifically call for increased police cooperation, turning the provisions into action will require external support, particularly from international partners, as well as an analysis of best practices in other parts of the world. In particular, if the region is to take concrete steps towards effective police-to-police cooperation in a borderless community, ECOWAS members need to enhance cooperation with international institutions like the International Police Organisation (INTERPOL), which has a much longer history in fighting crime and provides a practical platform for coordination. Indeed, the unique role of INTERPOL in counter-terrorism was brought to the fore during the visit by Mireille Ballestrazzi, president of INTERPOL, to Nigeria on 26 March 2013.
The frequent attacks by Boko Haram in Nigeria represent a serious security threat to both Nigeria and the international community at large. In addition, terrorist groups such as al-Qaeda in the Islamic Maghreb (AQIM) and the Movement for Unity and Jihad in West Africa (MUJAO) continue to operate with impunity in the sub-region, carrying out kidnappings, bombings and suicide attacks against civilian and security targets. The porous borders and the vast ungoverned areas in the region have allowed various criminal networks, traffickers and terrorists alike, to form operational links and alliances that exploit and weaken states in West Africa.
It is in this context that INTERPOL could play a vital role in the fight against transnational crimes such as terrorism and drug trafficking. Through INTERPOL, police around the world can access criminal databases, investigative tools, targeted training and secure communication lines, among other crime-fighting tools that most West African countries cannot afford. For example, INTERPOL has a high-tech 24-hours-a-day seven-days-a-week global communication system (I-24/7) that enables police in different countries to communicate with one another, share critical information, facilitate mutual legal assistance and undertake joint operations. An effective use of the system could also provide capabilities for police to detect, investigate, intercept, prevent and/or prosecute terrorist acts. Moreover, the universal nature of INTERPOL enables it to concentrate on the technical and substantial aspects of cooperation among police, even among countries that do not have diplomatic relations.
INTERPOL facilitates cooperation among states at three main levels. At the national level, cooperation is carried out through the National Central Bureaus (NCBs), which have been established in all West African countries. At the regional or sub-regional level, cooperation is coordinated by the INTERPOL Regional Bureau for West Africa, headquartered in Abidjan, Cote d'Ivoire, to which all the NCBs are linked. Coordination is further reinforced through various regional task forces to initiate counter-terrorism responses in areas that are increasingly threatened by terrorism. For example, 'Project Baobab' is the task force specific to East, West and Southern Africa. Annual meetings of this project bring together experts to share data, analyse trends and deliberate on case studies. Through Project Baobab, officials are provided with a strong operational basis from which to conduct investigations. INTERPOL has also designed a programme to enhance the exchange of information between law enforcement officials in West Africa - the West African Police Information System (WAPIS) - that facilitates the flow of police data and improves communication among police forces.
At the political level, the West African Police Chiefs Committee (WAPCCO) has championed police cooperation in fighting cross-border crimes such as motor vehicle theft, arms smuggling, cigarette trafficking and drug smuggling. Much, however, remains to be done to improve collaboration on issues such as terrorism.
The main challenge is the lack of political will among West African states to operationalise police-to-police cooperation on counter-terrorism and to fully implement the relevant regional and international legal regimes. There have been exceptions in areas such as maritime security, where a number of countries have formed joint patrol operations. In the small arms sector too, some West African countries have shared vital information and collaborated in the pursuit and seizure of arms shipments. In terms of counter-terrorism, Nigeria has cooperated with Benin, Cameroon, Chad and Niger in the control and tightening of borders, but information sharing on the movement of terrorist groups across borders is not as developed.
Increased cooperation between INTERPOL and West African states would significantly contribute towards reducing terrorism in the region. For instance, West African states could benefit from the resources provided by INTERPOL if all information concerning terrorists were loaded on to INTERPOL's information database and updated regularly. Personal information such as the names, fingerprints, passport numbers and identity numbers of persons associated with terrorism is crucial in this regard. West African states could also benefit from the colour-coded notice system in identifying terrorists, as well as the training programmes and technical assistance presented by INTERPOL. Beyond this, INTERPOL could assist West African countries in developing common standards and following best practices. West African nations therefore need to work more closely with INTERPOL in addressing terrorism and related crimes. Cooperation with INTERPOL allows for a more coordinated counter-terrorism response that seeks to contain the threat of terrorism in the region.
Martin Ewi, Senior Researcher and Uyo Salifu, Researcher, Transnational Threats and International Crime Division, ISS Pretoria
