4TH National Civil-Military

Dialogue:
Assessing and Dealing with National Security
Challenges

Held July 1 4, 2013, at Best Western Plus Ajuji

Hotel, Apo, Abuja

THE REPORT
Summary of Conclusions and
Recommendations
Organizer: Institute of Governance and Social Research
(IGSR), Jos, Nigeria.

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CONCLUSIONS OF THE 4TH NATIONAL CIVIL-MILITARY
DIALOGUE: ASSESSING AND DEALING WITH NATIONAL
SECURITY CHALLENGES, HELD AT BEST WESTERN PLUS
AJUJI HOTEL, APO, ABUJA, BETWEEN JULY 1-4, 2013

A. INTRODUCTION

The Institute of Governance and Social Research, a non-

governmental organization based in Jos, organized the 4th
National Dialogue on Civil-Military Relations, which was
sponsored by the Office of the National Security Adviser to the
President, between July 1-4, 2013.

The Dialogue was kick-started with a well-attended Opening

Ceremony on July 2, 2013 under the Chairmanship of His
Excellency, Chief Ernest Shonekan, former Head of State of
the Federal Republic of Nigeria. In attendance were General
Yakubu Gowon, former Head of State; General Ibrahim
Babangida, former Military President; Distinguished Senator
David Mark, President of the Senate; Rt. Hon. Aminu
Tambuwal, Speaker, House of Representatives; His Eminence,
Alh. Sa'ad Abubakar, Sultan of Sokoto, who was represented by
Alhaji Hassan Ahmed Danbaba, Magajin Garin Sokoto; Col.
Sambo Dasuki (rtd.), National Security Adviser; Alhaji
Muhammad Goni, former Governor of Borno State; Alhaji
Adamu Ciroma, former Minister of Finance; Dr. Ogbonnaya
Onu, former Governor of Abia State; Professor Sam Oyovbaire,
former Minister for Information; Professor George Obiozor,
former Nigerian Ambassador to the United States of America;
and Professor Alaba Ogunsanwo, former Nigerian High
Commissioner to Botswana; Giles Lever, Deputy High

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Commissioner, British High Commission Abuja; Representatives
of the Embassy of the United States of America; General A.O.
Ogomudia (rtd.), former Chief of Defence Staff; Major-General
G.O Ejiga (rtd), former Commander of OAU Forces in Chad;
among several other dignitaries.
Participants were drawn from the military, including a number
of retired Generals and other officers; members of the civil
service, academia, judiciary, civil society, labour, media,
women groups, other security agencies, and interest groups.

The dialogue was organized in the form of RoundTables, with

lead discussants, designed to foster close interactions around
the following sub-themes:

Situational Analysis of Civil-Military Relations.

Insurgency/Terrorism: Towards Causality.
Managing and Controlling Insurgency and Terrorism.
Intelligence and the Management of Insurgency and
Terrorism.
The Media and Civil-Military Relations.
Counter-Terrorism, Intelligence and Strategic
Communication.
JTF/STF Operation -Collateral Damage and Civil-Military
Relations.
Planning for the Future: Towards Prevention and
Management of Insurgency.
Recommendations on Prevention, Management and
Resolution of Insurgencies.
Next Steps: Follow - Up and Implementation Strategies.

B. OBJECTIVES

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The over-arching objective of the dialogue is to evaluate the
current state of civil-military relations in the light of the
current challenges of insurgencies in Nigeria with a view
to making policy recommendations on the prevention,
management and resolution of conflicts which lead to
insurgencies. Specifically, the objectives of the dialogue
include:

bringing together various stakeholders in the

country to brainstorm security challenges;
creating platform for wider debate on Civil-Military
Relations;
sharing experiences on good governance in the
Security Sector and establishing bases for enduring
democracy;
building on the old platform for widening interaction
and bases of mutual understanding between military
and civilian sectors of the society; and
establishing frameworks for peace-building at lower
levels of government.
C. OBSERVATIONS AND RECOMMENDATIONS FROM THE
4TH NATIONAL DIALOGUE.

1. Civil-Military Relations
Observations

the increasing presence of the military among civilian

populations, especially since May 1999 when it became
involved in Military-aid to Civil-Authority (MACA) or in
internal security operations, has led to wider areas of
conflict between the military and civilians. While some
civilians often feel that their human rights are violated by

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 the role of the military in Internal Security Operations
(ISO), some have argued that the military often feels that
criticisms of their human rights records are impediments
to the effective execution of their functions;
the absence of an intermediary force between the military
and the police has resulted in the excessive exposure of
the military to internal security operations in the 28 States
of the Federation. One of the unintended consequences of
this is the intermittent tension and rancour between the
military and the civilian population, precisely because the
training of the military is not designed for policing duties;

the prolonged use of the military for ISO could be

detrimental to democracy and military professionalism.
The challenge therefore is how to ensure that the military
remains within the sphere of its constitutional role while
retaining the capability to respond effectively whenever
the need arises for any brief assistance to the police in
cases of civil disobedience;
the uncontrolled spread and diffusion of Small Arms and
Light Weapons (SALW) to youth and sub-state actors have
threatened the State monopoly of the instruments of
violence. These groups often act with impunity, using
these weapons to terrorize the population and create/or
exacerbate, in the process, humanitarian crises. Efforts by
the military to recover these weapons often brings them in
to sharp confrontation with these purveyors of the
instruments of violence;

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 in spite of all the necessary measures taken by the
military to minimize collateral damage, there is a seeming
lack of awareness by the civilians that in asymmetrical
warfare collateral damages are inevitable. This is probably
why the military often gets blamed for human rights
abuses in ISO, especially when the insurgents live within
civilian population in urban areas;
the tension between the civilian population and the
security agencies is often over-played in the media. This
often exacerbates the general misperception, mutual
suspicion, and widens the communication gap between
the military and civilians;

the effectiveness and efficiency of the military should be

important to the civilian population because, quite often,
the militarys failure in the battlefield could threaten the
very existence of the polity;

while the military has the duty to protect the State from
external aggression, every member of the society expects
members of the military to maintain a sense of
professionalism, commitment to the preservation of peace
and security, and loyalty to civilian authority;
in a democracy, some of the most critical decisions of
political leaders are about peace and national security,
and the military usually has a role to play in such
decisions by informing the policy-makers of the military
realities on the ground and the strategic goals that must
be taken into account; and

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 the roles of the military and civil populace in the process
of nation-building are complementary. They are partners in
socio-economic development. Thus, constant dialogue
between the two sectors of the society is important for
mutual understanding.

Recommendations

a.The visibility and long exposure of the military in ISO could

be minimized by establishing a Federal or National
Guard or Republican Guard to serve as a buffer
between the police and the military. The military can thus
be gradually withdrawn to the barracks, while the National
Guard takes over. This Special Force can have Special
Weapon and Tactic Team (SWAT) comprising marksmen,
Bomb Specialists, paratroopers, demolition experts,
trained negotiators and psychologists as well as non-lethal
equipments for managing civilian crowd

b.The Federal Government should ensure the adoption of

intelligence-driven approach by Security Agencies,
especially the Joint Task Force/Special Task Force. This
could help to reduce the alleged occasional over-reaction
of security agencies in their operational areas.
c. The Federal Government should support the National
Committee on the Control of Small Arms and Light
Weapons (NATCOM) to conduct a comprehensive survey of
SALW in circulation and make recommendations on how to
curb them.

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d. The National Assembly should commence legislation on
the Reserve Forces of Nigeria Bill; the Security
Services Welfare Infrastructure Bill; the Armed
Forces (Secondary Roles) Bill; and the Disaster
Response Corps (Establishment Bill).

e. Strategies should be evolved to bridge the

communication gap between the military and the civil
population.

i. The military should adhere to the rules of engagement

for its members involved in providing internal security.
In cases of allegations of human rights violations, such
allegations should not only be investigated but
decisions taken on the report of investigation for
purposes of confidence-building between the military
and the civilian population.
ii. It is also important that prior to the deployment of the
military, the relevant stakeholders are sensitized about
their roles.

f. There is a need for strategic information and mobilization

of civil population in order to secure the support of local
population against insurgency.

g. The importance of inter-agency cooperation among the

security agencies, (especially between the police and
military) cannot be over-emphasized.

h. There should be a mobile, competent and strong military,

capable of protecting the country:

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 i. All appointments of military officers should be based
on merit; and
ii. Politicians should not interfere in decidedly military
matters.
i. Need to revisit the security architecture of Nigerias
internal security, with a view to redesigning the Nigeria
Police, State Police and Local Authority police.

2. Insurgency and Terrorism: Towards Causality

Observations

the apparent failure of governance in most parts of the

Federation - as typified by high levels of
unemployment, lack of infrastructural development,
corruption, lack of quality education for the
Nigerian youths, weak state institutions and the
collapse in family values - combine to exacerbate
insecurity in Nigeria;

corruption and the ostentatious life-style of many political

elites and their cohorts amidst the abject poverty of
people, have eroded traditional values, and provide the
necessary impetus for armed insurgency among many
young people, especially, as the gap between the have
and have-nots widens;

the security agencies, particularly the Nigerian Navy and

the Nigerian Immigrations Service, seem largely
constrained and unable to effectively patrol and monitor
the nations maritime domain and borders. This has

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 consequently led to the infiltration and involvement of
foreigners in insurgency in Nigeria;
inadequate logistical support, poor and largely outdated
technological equipments, in addition to the
uncooperative attitude of political leaders combine to
protract the war against insurgency;
the failure of the political leadership to bring to justice
criminals alleged to be sponsors of insurgency against the
State, demonstrates a lack of political will to fight the
menace. It gives the wrong signal to potential insurgents;
the centralization of power in the 1999 Constitution rather
than their devolution, is often referred to as a major
source of tension in the Nigerian Federal system; and

challenges in socio-economic sector and political

differences - inequality in the distribution of resources,
lack of avenues for the aggrieved to express grievances
and get appropriate responses have all contributed to a
baggage of frustration among groups;

Recommendations

It was recommended that:

a. The military should adopt multi-track approach in

counter-insurgency operations in order to integrate and

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 synchronize all stakeholders in order to achieve the
strategic objective.

b. Leadership needs to demonstrate a combination of

diligence, positive work ethics, respect for human
life, and social justice to effectively tackle security
challenges.
c. There is the need to revisit the whole educational
system inculcating our cherished traditional
values and peace studies through their curricula
d. The remuneration of Political office holders should be
made less attractive such that public office attracts only
those who want to render service. In addition:
i. there should be a conscious effort by the leadership
to drastically reduce the cost of governance, and
invest savings in the productive sector of the
economy; and
ii. government should demonstrate sincerity and
effectiveness in its anti-corruption crusade,
ensuring that there are no sacred cows.
e. There is need to appropriate more funds to security
agencies to enable them acquire necessary equipments
and establish new platforms to improve security
situation.
f. The Nigeria Police needs more and adequate fund
for it to carry out its functions. Not only should
funds be budgeted, all funds due to the police should be
released to it annually. In addition, special attention

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 should be given to the training and retraining of officers
and men of the Police Service.
g. The Federal Government should review criminal justice
laws; the laws should be revised and updated.
h. There should be structures and programmes put in place
to help in rehabilitating and reintegrating ex-insurgents
into normal civilian life.
i. Government should bring to justice all those alleged to
be responsible for promoting and/or sponsoring
insurgency in the country.
j. Far reaching measures such as employment
opportunities, economic empowerment, quality
education and massive infrastructural
development should be put in place to help attenuate
the socio-economic causes of conflict.
k. The promotion of joint exercises, training doctrines and
programmes among all the security agencies, including
the Police, would enhance inter-agency cooperation in
the field against insurgents.
l. There should be an effective integration of Almajiri
Quranic system of education into the formal Primary
educational system in order to ensure they receive
necessary skills to fit into the socio-economic sectors of
the society as well as prevent their vulnerability to
indoctrination and extremism.
m. The Government should create grazing reserves and
cattle ranches in each state in line with modern practice

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 to tame the perennial violent clashes between farmers
and cattle herders.
n. Government should establish National 911
Emergency Response Centres integrating all Security
Agencies, Military, Hospitals, NEMA, Mobile Telephone
Operators and others in partnership with and managed
by private (civil society) and government agencies.
o. There should be a National Security Policy as guide
to all military and civilians.
p. Internal Security Operations should be as short as
possible, with time line in order to be efficient and
effective.

3. Intelligence and the Management of Insurgency and

Terrorism

Observations
the absence of a national biometric data base on vital
registration, and forensic laboratory, has often frustrated
investigation and prevention of crimes in Nigeria;
there is low level of mutual confidence between the
security services and the civil populace is established;
it is good news that the youth in Borno have formed a
Joint Task Force (JTF). Government should ensure that
there are programmes for the youth after peace returns,
so that they do not become new monsters;
insurgency/terrorism is new in Nigeria, but the country
has risen to the occasion after the initial shock. It is now
important to assess how we move forward, having learnt
from the past;

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Recommendations

a. Confidence building measures should be put in place

to assuage the fears of the host community and help gain
and protect sources of information. A witness
protection policy should be put in place by all services
the Nigeria Police. The Security agencies must enhance
intelligence through partnership with communities.
b. There should be capacity building for all national
Intelligence Agencies which must include mandatory
training, use of research and new scientific techniques
and skills as well as the modernization of equipment and
methods of intelligence gathering. Periodic inter-agency
intelligence Training Workshops would be also useful for
establishing a collegiate basis for information-sharing.
c. Given their spread, use and capacity, modern mobile
telephony should be integrated into the security
architecture of Nigeria, while being conscious of the
dangers of leakages.
d. Bilateral and multilateral co-operation in border
intelligence gathering should be enhanced to check the
incidence of trans-nationally organized crimes.
e. Human and electronic policing of the borders are very
important, inspite of the current difficulties in doing so.
f. All Joint Task Forces must be given adequate logistical
support.

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 g. Deliberate emphases on joint operations between
military/civil authorities, such as joint secretariat, Joint
Operations Rooms etc are very essential.
h. A programme for the de-radicalization of terrorists
through counselling, rehabilitation, and the empowerment
of defecting terrorists.

4. The Media and Civil-Military Relations

Observations

the role of the media is crucial to the existence of the

Society.
the Government seems to have a wrong appreciation of
the role of the media in the Society;
Government is not comfortable with the professional
duties of the Media, especially when it is critical of the
Government and the Security Agencies;
the ownership of the Media in Nigeria is controlled by the
politicians and lop-sided in favour of the South-
South/South-West and this has implications for the position
taken by particular media houses;
the conflict between the Political Class and the Security
Agencies is reflected in the media marked by
misperception, mutual suspicion and ignorance; and
the Government and the Security Agencies cannot operate
successfully without the Media;

Recommendations

a. There should be efficient flow of information between the

Security Agencies and the Media.

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 b. Government and Security Agencies should positively
appreciate the significant role of the media in publicizing
public policies as well as reporting feedbacks.
c. The sources of information should be strenuously
protected for the media to carry out its role effectively.
d. There should be capacity-building for the journalists
through training and good conditions of service, in order to
enhance professionalism.
e. Journalists should be encouraged to specialize in security
matters. These journalists should receive special training
and interact regularly with security agencies; and
f. All journalists should demonstrate maturity through self-
censorship on matters of national security.

5. Planning For the Future: Towards Conflict Prevention,

Management and Resolution

a. Observations and Challenges

poor identification of sponsors and sources of finance to

insurgents and terrorists;
lack of political will to stop the insurgency;
lack of analysis and monitoring of crimes committed;
poor intelligence gathering;
close links with external terrorist organisations;
enjoy local support/morale support from the local
populace;
porous Borders;
non-implementation of immigration laws;
political rivalry and trivialisation of crime such as
insurgency by the political class;
lack of synergy between Security organisations;
lack of adequate logistics support for security
organisations;

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 hostility against government efforts from respected
socio-cultural groups;
dysfunctional Criminal Justice System;
lack of free and fair elections; and
lack of adequate relevant training for security
organizations.
b. Ways and Means to Prevent Insurgencies/Terrorism
and Strategies

free (primary and secondary) Education;

security awareness/public enlightenment of the public
and government officials;
good governance in all sectors of the society;
transparency and accountability in governance and of
leaders;
efficient and effective structures to fight CORRUPTION;
infrastructural development as basis for national
development;
job creation at all levels of government;
proactive intelligence system by all security agencies;
effective Border monitoring including the use of modern
technology;
re-orientation of value system through our educational
system; and
accountability and people-based leadership, with
transformation skills and social conscience.
c. Managing Insurgencies

re-orientation of security agencies;

equipping the armed forces, police and other security
agencies adequately to meet challenges;

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 dialogue with insurgents; rehabilitation and
management of insurgents for functional re-entry into
the society;
employment of carrot and the stick by the government
in dealing with sub-national groups which have gone
militant; and
curb wastages in governance, and put gained resources
where they matter most reducing poverty.

d. Ending Current Insurgencies

dialogue with insurgents. Governments doors should be

open for dialogue with discontented groups before they
go violent;
amnesty (as a means) of negotiation, resolution and
rehabilitation;
rehabilitation, re-integration and employment of
erstwhile insurgents;
adequately equipping security agencies to meet
security challenges they face;
robust intelligence management sharing and usage
among security agencies;
deepening of other forms of collaboration among the
security services; and
building confidence between the government and the
governed; and between the security agencies and the
populace.
e. Planning For The Future

Multi-sectoral approach:
re-orientation of the youth to appreciate traditional
positive values of nation-building;

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 infrastructural development to serve as a basis of socio-
economic growth and development;
massive employment/social welfare scheme to rob the
purveyors of violence the chance to use the youth as
cannon-fodders;
mentoring, supervision and good parenting of the youth
from family level;
good governance, transparent leadership to ensure
justice, equality and accommodation;
encouragement of national unity through many
activities such as sports, cultural and other festivals and
competitions;
another look at community policing, with a view to
improving and making it more efficient and effective
could be useful;
build a well-equipped and trained armed forces and
police;
federalism: Nigeria should have an open democratic
polity, with a federal government that assures the
people of fairness, accommodation and justice;
review of relevant existing laws to meet the present
security challenges
Almajiri Quranic education should be incorporated into
the primary educational system in the North;
establishing Emergency National 911 Response Centres
in all States and Local governments;
effective border control;
collaboration with immediate neighbours security
agencies;
stopping the proliferation of small arms and light
weapons;
free and Fair elections; and

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 effective and relevant training on counter-insurgency.

6. Follow Up and Implementation Strategies

Observations

This Dialogue cannot stop at the national level. It must be

taken down to states and local governments, for purposes of
peace-building and nation-building:

there is the need for greater sensitization of the average

citizen as a security agent;
it is important to build trust between security agencies
and civilian populace. Only in such context can the
security agencies secure desirable information for their
operation; and
attempts should be made at State and local levels to build
and/or rebuild trust and mutual confidence among various
Nigerian groups.

Recommendations

a. Government should carry out an aggressive sensitization

programme at the grassroot level. This can be handled by
civil society organizations, the Media (public and private), the
National Orientation Agencies and other Stakeholders.
b. The Office of the National Security Adviser (ONSA)
should extend the Dialogue to States, especially in
States with recent history of violence, as a basis of
confidence-and peace-building.
c. Federal, State and Local governments should mobilize
the public and sensitize them on how to respond to major

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 emergency security situations, such as drills, sirens etc
as in other countries.
d. Active implementation of Identity Card policy for every
Nigerian, would go a long way in assisting security agents in
investigation and prevention of violence and insurgency.
e. Sensitize all government officials, especially at State and
Local government levels to issues of national security and
the relationship between security challenges and
development. Training Workshops should be held for them.
f. Provide a forum at State and Local level for dialogue among
parties in conflict such as the Peace Council at both State
and Local levels.

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