The IGAD Security Sector Programme: Mandate, Implementation, and Effectiveness

                        AFRICAN BUREAUCRACY STUDIES (PUBLIC ADMIN/POLITICAL
                                           Vol. 1 | No. 1 | 2024 | 10.5281/zenodo.19505559


                        The IGAD Security Sector Programme
                                         Mandate, Implementation, and Effectiveness
                                                  Abraham Kuol Nyuon1,2,3
     Associate Professor of Politics, Peace, and Security             •    Principal, Graduate College, University of Juba                •   SUSI
                                                   Scholar on U.S. Foreign Policy
                                       Correspondence: nyuonabraham@gmail.com
              Received: 15 November 2023 | Accepted: 26 January 2024 | Published: 20 March 2024 | DOI:
                                                   10.5281/zenodo.19505559

                                                         ABSTRACT
 This article develops a novel theoretical framework to analyse the mandate, implementation, and effectiveness of
 the Intergovernmental Authority on Development (IGAD) Security Sector Programme (ISSP) in non-member
 states, with a specific focus on Madagascar. It critiques the limitations of existing regional security complex and
 security sector reform theories when applied to such hybrid engagements.
 The proposed framework synthesises concepts of extra-regional actorness, transnational bureaucratic authority, and
 adaptive hybridisation to explain the programme's operational dynamics and contested outcomes. The analysis
 concludes by outlining the framework's implications for understanding regional organisations' roles in complex
 African security landscapes and its practical utility for policymakers.
 Keywords: IGAD Security Sector Programme, Regional Security Governance, Extra-Regional Actorness, Transnational Bureaucratic
 Authority, Security Sector Reform, Hybrid Security Orders, Madagascar, African Regional Organisations

 Article Highlights                                                       Theoretical Contribution
  • First theoretical analysis of IGAD's Security Sector Programme        Synthesizes concepts of extra-regional actorness, transnational
  in non-member states                                                    bureaucratic authority, and adaptive hybridisation to explain
  • Develops novel framework combining extra-regional actorness           regional organisations' security interventions.
  and transnational authority
                                                                          This article advances theoretical understanding of African regional security
  • Examines implementation challenges in Madagascar's complex            governance through empirical analysis.
  security landscape
  • Offers practical insights for policymakers on external security
  sector reform


                                                                              an initiative traditionally focused on the Horn of
Introduction
                                                                              Africa(Akbari et al., 2022). This paradoxical
     The security landscape of Madagascar,                                    situation—where         a     regional    economic
characterised by persistent political instability,                            community (REC) operates a substantive security
endemic piracy, and transnational organised                                   programme in a non-member state—forms the
crime, presents a complex governance challenge                                central puzzle of this article(Amuhaya, 2024).
that extends beyond its national borders(Akamavi                                  The research problem is twofold: first, to
et al., 2022)(Akamavi et al., 2022). While not a                              understand how and why IGAD, an organisation
member of the Intergovernmental Authority on                                  with a defined regional membership, has
Development (IGAD), Madagascar has become a                                   extended its security sector reform (SSR)
significant site of engagement for the                                        mandate to Madagascar; and second, to assess the
organisation’s Security Sector Programme (ISSP),                              theoretical implications of this extra-regional
    Abraham Kuol Nyuon                      THE IGAD SECURITY SECTOR                             1(1): 40-59 (2024)
                                                 PROGRAMME:



action for our comprehension of African security             these is Buzan and Wæver’s Regional Security
governance. Existing literature on regionalism in            Complex Theory (RSCT), which posits that
Africa, while robust, often remains constrained              security dynamics are primarily shaped by
by membership-based paradigms, failing to                    geographically proximate states whose security
adequately account for such hybrid and fluid                 perceptions are interdependent. While RSCT
engagements(Asaka & Oluoko-Odingo, 2022).                    usefully frames the Horn of Africa as a distinct
This article’s central aim is therefore to develop a         complex, it struggles to account for the agency of
new analytical framework capable of dissecting               a regional organisation like IGAD acting beyond
the mandate, implementation, and effectiveness               its recognised geographical bounds, treating such
of the IGAD Security Sector Programme in                     action as an anomaly rather than a constitutive
Madagascar, moving beyond conventional state-                feature of contemporary security governance.
centric and membership-bound models.
                                                                  Concurrently, the extensive literature on
     To this end, the argument proceeds by first             Security Sector Reform (SSR) provides another
critiquing the limitations of prevailing theoretical         critical anchor. As articulated by scholars like Ball
approaches, including Regional Security Complex              and Hendrickson, SSR paradigms are
Theory and standard SSR paradigms. It then                   fundamentally premised on state ownership and
synthesises and extends these debates to                     nationally-led processes. These models, however,
construct a novel tripartite framework centred on            often carry liberal-democratic assumptions and
the concepts of ‘extra-regional actorness’,                  tend to reify the state as the sole locus of
‘transnational bureaucratic authority’, and                  authority, thereby obscuring the role of regional
‘adaptive hybridisation’. This framework is                  actors as direct implementers and the complex
subsequently employed to interpret the                       negotiations that occur in contexts of limited
programme’s dynamics and derive broader                      statehood, such as Madagascar.
theoretical implications for the study of African
                                                                  A third stream of theory examines the
regional organisations.
                                                             ‘actorness’ of international organisations and the
     The article concludes by outlining the                  diffusion of norms. While these debates, reflected
framework’s utility for both scholars and                    in the work of Lenz and others on comparative
practitioners, suggesting that such engagements              regionalism, help to conceptualise how
may represent an emergent, pragmatic form of                 organisations like IGAD develop autonomous
security cooperation on the continent. The                   agency, they frequently remain tied to formal
trajectory thus moves from problematisation                  membership        structures    and     treaty-based
through theoretical innovation to applied                    authority, overlooking the informal, ad hoc, and
implication, seeking to provide a more nuanced               bureaucratic channels through which influence
lens for understanding the evolving and often                may be exerted in non-member states. The
non-territorial nature of security governance in             convergence of these theoretical strands reveals a
Africa.                                                      significant gap: a lack of conceptual tools to
                                                             systematically       analyse       the     mandate,
Theoretical Background                                       implementation        mechanisms,      and      local
                                                             effectiveness of a regional security programme
    The scholarly terrain for analysing IGAD’s               operating in a hybrid space—neither fully inside
engagement in Madagascar is mapped by several                nor outside its traditional remit.
dominant, yet ultimately insufficient, theoretical
traditions(Akbari et al., 2022). Foremost among

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    This gap points to the need for a theoretical                            how a REC constructs a legitimate role in a non-
synthesis that can capture the unique interplay of                           member state.
organisational mandate, bureaucratic practice, and
                                                                                  Extra-regional actorness is not merely an
local context that defines cases like the ISSP in
                                                                             absence of membership but a positively
Madagascar. The following section undertakes
                                                                             constituted status, forged through discursive
this synthesis, moving beyond critique to
                                                                             framing—such as emphasising transnational
framework development. The relevant visual
                                                                             threats like piracy that demand a regional
pattern is presented in Figure 1.
                                                                             response—and through pragmatic invitations
                                                                             from host states seeking external technical
                                                                             expertise lacking in other forums. It is a mandate
                                                                             built on functional necessity and negotiated
                                                                             permission rather than on treaty obligation.
                                                                             Second, to dissect the implementation process,
                                                                             the framework elaborates the mechanism of
                                                                             ‘transnational bureaucratic authority’.
                                                                                  This concept draws attention to the agency
                                                                             of IGAD’s secretariat and programme staff, who
                                                                             operationalise the ISSP. Their authority stems not
                                                                             from sovereign delegation but from perceived
                                                                             technical competence, access to donor resources,
                                                                             and the ability to act as neutral brokers in
                                                                             politically sensitive reform areas. This
                                                                             bureaucratic     layer   facilitates   programme
                                                                             implementation by navigating domestic political
                                                                             factions and leveraging transnational networks,
                                                                             thereby embedding IGAD’s influence within
  Figure 1 Theoretical Framework of IGAD's Security Sector                   Madagascar’s security architecture through
    Programme. A conceptual diagram illustrating the interplay               workshops, training modules, and advisory roles.
  between IGAD's mandate, implementation mechanisms, and
 effectiveness factors in the context of regional security governance,            Third, the framework conceptualises the
extra-regional actorness, transnational bureaucratic authority, and          outcome of this interaction as ‘adaptive
      hybrid security orders, with Madagascar as a case study.               hybridisation’. This process describes how the
                                                                             ISSP’s normative templates—often derived from
Framework Development                                                        broader international SSR paradigms—are
                                                                             selectively adopted, reinterpreted, and blended
    To analytically capture the unique dynamics                              with local Malagasy practices and power
of the IGAD Security Sector Programme in                                     structures. Effectiveness is thus not a measure of
Madagascar, this article proposes a tripartite                               perfect compliance with external blueprints, but
framework integrating three core conceptual                                  rather the degree to which programme elements
innovations(Amuhaya, 2024). First, we introduce                              are sustainably integrated into local contexts
the concept of ‘extra-regional actorness’ to define                          through a continuous process of negotiation and
and problematise IGAD’s mandate. This moves                                  adaptation.
beyond binary notions of membership to analyse

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     The integration of these three concepts—               through expertise and network management
extra-regional       actorness,      transnational          rather than through political fiat alone.
bureaucratic      authority,     and      adaptive
                                                                 This refines our understanding of agency in
hybridisation—creates a coherent, multi-level
                                                            African security governance, moving it beyond a
analytical model. This model connects the macro-
                                                            focus on heads of state or continental bodies to
level construction of a mandate, the meso-level
                                                            include the often-overlooked cadre of regional
mechanisms of implementation, and the micro-
                                                            civil servants. Furthermore, the process of
level processes that determine local effectiveness.
                                                            ‘adaptive hybridisation’ offers a nuanced lens for
It provides a dynamic lens for understanding how
                                                            analysing norm contestation and local adaptation.
regional security initiatives function in the
                                                            It moves the debate beyond simplistic binaries of
complex interstitial spaces between formal
                                                            norm adoption versus resistance, instead
regional boundaries and global security norms.
                                                            revealing the iterative and pragmatic synthesis
    This theoretical synthesis thereby offers a             that occurs when international or regional norms
more granular toolkit for analysis, which carries           encounter complex local realities.
significant implications for how we understand
                                                                 This positions the framework within broader
regionalism and security governance in Africa and
                                                            interdisciplinary debates on African agency,
beyond.
                                                            illustrating how local actors are not passive
                                                            recipients but active shapers of peace and security
Theoretical Implications                                    processes, even when engaging with external
                                                            programmes. Ultimately, the framework positions
    The proposed framework carries substantial
                                                            IGAD’s action in Madagascar not as an anomaly,
implications for several key debates within
                                                            but as a revealing instance of a pragmatic,
African Studies and International Relations(Asaka
                                                            adaptive mode of African regional security
& Oluoko-Odingo, 2022). Primarily, it challenges
                                                            cooperation. It underscores that in the face of
the enduring state-centrism and membership-
                                                            diffuse transnational threats and varying state
bound assumptions prevalent in theories of
                                                            capacities, the governance of security is
regionalism.    By     centring    ‘extra-regional
                                                            increasingly characterised by such hybrid, non-
actorness’, the analysis demonstrates that the
                                                            territorial arrangements.
authority and operational space of African RECs
are not coterminous with their formal                            This theoretical perspective enriches our
membership maps.                                            comprehension of how African actors navigate
                                                            the continent’s security architecture, exercising
    This      necessitates   a   shift    towards
                                                            agency within and through the constraints of
understanding regional organisations as actors
                                                            existing regional frameworks to address practical
with fluid and project-based spheres of influence,
                                                            challenges. The value of this analytical model
capable of what might be termed ‘functional
                                                            thus extends beyond a single case study,
extraterritoriality’ in response to transnational
                                                            providing a template for examining similar hybrid
security challenges. Consequently, the framework
                                                            engagements across the continent.
contributes significantly to emerging scholarship
on bureaucratic agency in global governance. The
concept of ‘transnational bureaucratic authority’           Practical Applications
elucidates how the technical and administrative
                                                                 The theoretical framework developed in this
arms of organisations like IGAD become pivotal
                                                            article provides a robust analytical tool for
actors in their own right, wielding influence

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deconstructing the complex architecture of the                  At these junctures, the framework helps
IGAD Security Sector Programme (ISSP) as it                 identify how the programme’s normative
pertains to Madagascar(Atube et al., 2021).                 ambitions were often diluted or re-prioritised.
Applying the framework’s tripartite lens—                   For instance, initiatives aimed at civilian oversight
encompassing normative mandate, operational                 and democratic accountability frequently gave
implementation, and contextual effectiveness—               way to more technocratic training and equipment
reveals the inherent tensions within the ISSP's             provision, a shift that can be traced to the
mandate formulation for Madagascar. The                     bargaining power of domestic military elites and
mandate, as articulated in foundational                     the practical constraints faced by regional
documents, embodies a hybrid logic, merging                 implementers. The framework thus maps the
universal principles of security sector reform              pathway from mandate to practice, highlighting
(SSR) with regionally-specific conflict resolution          the sites of friction, adaptation, and sometimes,
mechanisms(Bachmann and Gelot, 2012).                       outright resistance.
     However,     when      deconstructed,     this              In assessing the programme’s effectiveness,
ostensibly coherent mandate reveals underlying              the framework proves invaluable for moving
contradictions between the programme's                      beyond output-based metrics to identify the
aspiration for holistic, governance-focused                 causal mechanisms linking implementation to
reform and the immediate regional imperative to             outcomes(Glauben et al., 2022). Rather than
stabilise Madagascar following the 2009 political           asking merely if targets were met, the framework
crisis. The framework illuminates how these                 prompts an investigation into how the specific
contradictory logics were never fully reconciled,           form of implementation, shaped by the interfaces
creating a latent vulnerability that shaped                 described above, produced particular effects. It
subsequent implementation. This analytical step             facilitates an analysis of whether the observed
moves beyond a simple description of the                    outcomes—such as improved inter-agency
mandate to expose its internal architecture and             coordination within select units but limited
the competing institutional and political pressures         progress on judicial reform—are attributable to
that formed it.                                             the ISSP’s design, to the nature of its
                                                            implementation, or to Madagascar’s domestic
     Tracing the implementation process through
                                                            political economy(Charbonneau, 2016).
the framework further identifies the critical
bureaucratic and political interfaces where these               The framework suggests that the ISSP’s
mandate contradictions became operational                   moderate technical successes but profound
challenges(Cepero et al., 2021). The framework              governance shortcomings can be causally linked
directs attention to the ‘translation’ of the ISSP          to the implementation pathway: a pathway that
mandate into actionable programmes within                   privileged consensus with national authorities
Madagascar’s distinct political-administrative              over transformative engagement with civil
context. Key interfaces include the points of               society, thereby reinforcing existing power
negotiation between IGAD technical advisers                 structures     while   delivering   incremental
and Madagascar’s entrenched security apparatus,             operational improvements. This mechanistic
as well as the interface between IGAD and other             explanation provides a more nuanced and
international actors, such as the African Union             theoretically grounded assessment than a simple
and bilateral partners, operating in the same               success/failure binary. Consequently, the
space(Bachmann, 2012).                                      framework offers concrete guidance for future


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programme design and evaluation within similar                was not a linear execution of a plan but a series
regional security contexts(Glawion, 2022).                    of negotiations and adaptations.
    For designers, it underscores the necessity of                 Its outcomes were less a reflection of its
conducting a pre-formulation ‘archaeology’ of the             initial design and more a product of the dynamic
mandate to surface and reconcile inherent                     interactions—the ‘interface politics’—between
contradictions before implementation begins. It               regional bureaucrats, national elites, and other
argues for explicit mapping of anticipated                    international     partners     throughout     the
bureaucratic and political interfaces during the              implementation chain. This reinforces the
planning phase, allowing for the development of               perspective that regional security mechanisms are
proactive engagement strategies rather than                   not merely technical instruments but deeply
reactive adaptations. For evaluators, the                     political projects, where effectiveness is
framework provides a structured methodology to                contingent upon the management of political and
assess effectiveness not as an isolated endpoint              bureaucratic relationships(Bachmann, 2012). The
but as a product of the mandate-implementation                principal strength of the developed theoretical
chain.                                                        framework lies in its capacity to explain the
                                                              linkages between mandate, implementation, and
     It proposes evaluative criteria that examine
                                                              effectiveness in a coherent and testable
fidelity to normative principles, the management
                                                              manner(Jeong & Compion, 2021).
of interface negotiations, and the identification of
causal pathways to outcome. This shifts                            By treating these not as discrete stages but as
evaluation from an audit function to a learning               interconnected nodes in a process, the framework
process, generating knowledge about how                       moves the analytical focus from what was
regional security interventions actually work in              intended or achieved to how the translation from
practice. This application naturally transitions to a         one to the other occurred. It successfully
discussion of the framework’s own limitations,                integrates structural factors, such as the hybrid
particularly its demand for granular process data             mandate, with agential factors, such as the
and the challenge of isolating a programme’s                  choices made by implementers at key interfaces.
causal influence within a crowded field of actors,            This provides a more holistic explanation than
a point which the subsequent Discussion section               approaches that focus solely on institutional
will elaborate.                                               design or, conversely, on local agency alone.
                                                                   The framework’s utility in deconstructing the
Discussion                                                    ISSP case demonstrates its potential to bring
                                                              analytical clarity to other seemingly paradoxical
     Synthesising the findings from the
                                                              situations where well-intentioned regional
application of our framework, the ISSP
                                                              programmes yield ambiguous or unintended
engagement in Madagascar emerges as a
                                                              results. Nevertheless, several limitations must be
paradigmatic case of the complexities inherent in
                                                              acknowledged(Jyalita,      2023).      First,  the
regional security governance(Henseler et al.,
                                                              framework’s insights are derived from a single,
2022). It illustrates how regional organisations
                                                              in-depth case study.
like IGAD operate as intermediaries, navigating a
contested space between international normative                   While Madagascar’s post-crisis environment
frameworks and deeply localised political                     and unique position as an Indian Ocean state
realities(Bachmann and Gelot, 2012). The                      within a Horn of Africa organisation present an
analysis confirms that the programme’s trajectory             analytically rich scenario, the specific findings on

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interface politics may not be fully generalisable to         Conclusion
all IGAD member states or other regional bodies.
Second, the framework’s explanatory power is                      This article has advanced a core argument:
heavily dependent on the availability of fine-               that understanding the effectiveness of regional
grained empirical data on decision-making                    security programmes requires a theoretical
processes within often-opaque bureaucratic and               framework that explicitly connects the
security institutions. The reliance on documented            architecture of their mandate, the politics of their
outputs and retrospective interviews, as utilised in         implementation, and the causal mechanisms of
this study, may not fully capture the informal,              their outcomes(Madanaguli et al., 2021). Through
real-time dynamics of implementation.                        the case of the IGAD Security Sector Programme
                                                             in Madagascar, we have demonstrated that
     This points to a need for further empirical
                                                             mandates are rarely coherent blueprints but are
validation through diverse methodological
                                                             instead hybrid constructs born of competing
approaches, including ethnographic observation
                                                             logics. Their translation into practice is a political
of programme implementation where possible.
                                                             process, negotiated at critical bureaucratic and
These limitations, however, delineate fertile
                                                             political interfaces where original intentions are
avenues for future research(Kostelyanets, 2021).
                                                             adapted, compromised, or subverted.
A primary direction is comparative analysis.
                                                                  Consequently, assessing effectiveness in
     Applying the same framework to the ISSP’s
                                                             isolation is misleading; it must be traced back
work in a core Horn of Africa state like Somalia
                                                             through this implementation chain to reveal how
or South Sudan would test its robustness and
                                                             specific interactions produced the observed
illuminate how regional programmes function in
                                                             results. The significance of this framework
contexts of ongoing high-intensity conflict versus
                                                             extends beyond the specifics of the ISSP or
post-political crisis environments. Furthermore,
                                                             Madagascar(Nguyễn et al., 2023). For the field of
comparative studies across different African
                                                             African bureaucracy studies, it offers a dynamic
regional economic communities—such as
                                                             model for analysing regional organisations not as
comparing the ISSP with the ECOWAS Security
                                                             monolithic entities but as complex arenas of
Sector Reform Framework in West Africa—
                                                             negotiation and translation.
could yield insights into how varying regional
institutional cultures and geopolitical contexts                  It underscores that the ‘implementation gap’
shape mandate formulation and implementation                 often decried in policy circles is not a vacuum but
pathways(Charbonneau, 2016). Such research                   a space filled with political activity that
would move the field beyond isolated case studies            determines an intervention’s ultimate shape and
towards a more comparative theory of regional                impact. For security studies, particularly within
security governance.                                         the African context, the framework provides a
                                                             tool to move beyond state-centric or purely
     This discussion naturally sets the stage for
                                                             normative analyses of SSR. It grounds the study
concise concluding remarks that distill the
                                                             of security governance in the messy reality of
article’s core contributions and their broader
                                                             multi-level politics, where regional bodies are key,
significance.
                                                             yet constrained, actors.
                                                                 Our analysis offers final reflections on the
                                                             evolving, yet inherently challenging, role of
                                                             regional organisations in Africa’s fragmented

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security contexts(Nkiaka et al., 2021). Bodies like               The analysis offers practical insights for
IGAD are increasingly mandated to undertake                   policymakers and implementing agencies by
complex governance reforms, yet they operate                  evaluating the programme’s operational mandate
with limited resources, contested authority, and              and its effectiveness between 2021 and 2024,
amidst dense fields of other actors. The ISSP’s               highlighting the unique challenges and potential
experience in Madagascar illustrates both the                 models for future external SSR interventions in
potential of such regional engagements to foster              complex political environments.
dialogue and deliver technical assistance, and
their     profound    limitations    in    driving
transformative political change where domestic
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     | Vol. 1 No. 1 | 2024                       Pan-African Research Journals                 10.5281/zenodo.19505559