How to talk to terrorists

Jonathan Powell  was one of the negotiators of the 1997 Northern Ireland peace deal. 

Jonathan Powell, Guardian - When it comes to terrorism, governments seem to suffer from a collective amnesia. All of our historical experience tells us that there can be no purely military solution to a political problem, and yet every time we confront a new terrorist group, we begin by insisting we will never talk to them. As Dick Cheney put it, “we don’t negotiate with evil; we defeat it”. In fact, history suggests we don’t usually defeat them and we nearly always end up talking to them. Hugh Gaitskell, the former Labour leader, captured it best when he said: “All terrorists, at the invitation of the government, end up with drinks in the Dorchester.”

Certainly that was true throughout the history of the British empire. Menachem Begin’s Irgun was responsible for blowing up the King David Hotel in Jerusalem in 1946, killing 91 and injuring 46. The British authorities called him a terrorist and tried to hunt him down. But when he became prime minister of Israel and made peace with Egypt, we lauded him as a statesman. We accused Jomo Kenyatta of being a terrorist and locked him up, but later negotiated Kenyan independence with him. We exiled Archbishop Makarios to the Seychelles for supporting terrorism but made peace with him and he became the first leader of an independent Cyprus.

... he one thing I have learned, above all else, from the last 17 years is that there is no such thing as an insoluble conflict with an armed group – however bloody, difficult or ancient. Even the Middle East peace process, which has stuttered on for decades, will in the end result in a lasting agreement. The fact that it has failed so many times before does not mean that it will always fail, and an eventual settlement will be built on the past failures and the lessons learned from these failures, as was the peace in Northern Ireland.


It is remarkable how quickly a conflict can shift from being regarded as “insoluble” to one whose solution was “inevitable” as soon as an agreement is signed. Beforehand, and even up to a very late stage in the process, conventional wisdom states that the conflict can never be resolved; but before the ink is dry on the agreement, people are ready to conclude that it was inevitable. They put it down to outside events like the end of the cold war, to the effect of 9/11 or to changing economic circumstances. But this conventional wisdom is wrong.

Just as no conflict is insoluble, nor is it inevitable that it will be resolved at any particular moment in history. Believing that a solution is inevitable is nearly as dangerous as believing a conflict cannot be solved. If people sit around waiting for a conflict to be “ripe” for talks to start, or for the forces of history to solve it for them, then it will never be resolved. If the negotiations are handled badly, they will fail, which is why it is worth trying to learn from the experience of others. Dealing effectively with a terrorist threat requires political leadership, patience and a refusal to take no for an answer. What we need are more political leaders who are capable of remembering what happened last time – and prepared to take the necessary risks.

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