Making a case for institutionalizing mental health and psychosocial support in the Armed Forces of Liberia as a conflict prevention mechanism

Exposure to combat violence in peace support operations (PSO) is increasingly linked to mental health and psycho-social concerns among PSO personnel (Maguen, S., Litz, B.T., Wang, J.L., & Cook, M. 2004). Although there has been a clear increase in the number of PSO personnel (PSOP) deployed globally and potentially high levels of exposure to violence during PSO duties, there is still a tremendous gap in the data on mental health in PSO (Brett Litz et al., 2016; Jun Shigemura et al., 2016). A recent study recognized that despite growing recognition of the mental health and psychosocial support (MHPSS) needs of Western PSOP, less is known about the prevalence of MHPSS within Africa’s peace and security architecture (Kofi Annan International Peacekeeping Training Centre (KAIPTC) 2020). Similarly, a desktop review of documents relating to the Armed Forces of Liberia (AFL) revealed that “no publicly available references to MHPSS and no acknowledgment of the link between MHPSS and violent conflict and/or development (KAIPTC 2000).”

Yet, In Mali, Liberian PSOP operate in hostile environments, where they confront violent extremism, threats from the host state itself and attacks by armed rebel groups. In 2017 for example, a Liberian peacekeeper was killed when their base in Timbuktu was attacked by militants; 8 others sustained multiple injuries. In addition to facing these hazardous conditions, they are also mandated to protect civilians from physical violence, reduce intercommunal violence and prevent the return of active armed elements to key population centres, with limited means (Resolution 2640. 2022). Moreover, living with daily stressors of role strain or stress, confronting multiple losses, grief, and guilt, witnessing traumatic events and demoralization about the efficacy of a mission, while being away from home, family and friends for extended periods of time can take a toll on the mental health and psychosocial wellbeing of the personnel. PSOP exposure to traumatic events has also been associated with difficult reintegration, post-deployment physical aggression and violence (Doyle, M. E., & Peterson, K. A. 2005). This includes the family dynamic and what role they play in the family structure.

To date, there are no studies in the literature that have directly compared the prevalence of mental health and psycho-social needs among a PSO sample with the general AFL population, which this initiative seeks to do. Worse, evidence-based research on the mental health and psycho-social wellbeing of Liberian servicewomen or women in PSO are nonexistent. This can primarily be attributed to the lack of or inadequate MHPSS program within the AFL, even though the AFL promoted, for the first time, a woman to the rank of Brigadier General and appointed her as Deputy Chief of Staff in March 2018 – the only such exclusive promotion of a woman in the West African Region – its Measuring Opportunities for Women in Peace Operations assessment (2022) showed that women are severely underrepresented in the military. They continue to face unique challenges, including retention, discrimination, and transition, representing only 4.4% of the 1,858 personnel with 4.3% as female officers (MoD. 2000) These disparities hinder a sustained peace, despite efforts to mainstream gender in peace and security and strengthen gender equality and women’s rights. However, the low percentage of females in the military is not deliberate but rather influenced by many factors, such as traditional beliefs, mindset of women seeing the military as a male profession and societal opinion of women in uniform. The recent recruitment saw an increase in the number of females based on a strategy of a special programme for women recruitment imposed by HQ AFL (enlisted 176 of which 56 are females and 120 males). Officer Cadets including specialists is now at 33 (13 Females and 20 males). The summary from the last recruitment is 69 females and 140 males.

This situation is particularly worrisome because Liberia remains fragile. Peace dividends are not meaningful and social cohesion remains low-medium (Liberia Social Cohesion and Reconciliation Index. 2021). There is inadequate progress in reconciliation and healing, and concerns that the mental health of the AFL could exacerbate potential conflicts may create security dilemmas that lead to a potential ‘strategic reversal’ to peace and security, and the gains accrued from the heavily invested peacekeeping era. A major risk is that PSOP create groups or informal units and attempt to depose the established government, which at worst could result in a coup. The Sierra Leone experience of returning PSOP overthrow of the government (Zack-Williams, A., & Riley, S. 1993) and recent spate of coups and military takeovers in West Africa may, unfortunately, could serve as incentives.

There is also limited data on the availability of MHPSS service, use, and associated stigma. The AFL agrees that mental health remains a sensitive topic (PDA communication with AFL Chief of Staff. September 2022), with persistent stigmas and sensitivities coupled with a “stupid secretiveness” institutional culture (Field Marshal Manekshaw, Indian Peace Keeping Force in Sri Lanka. 1991). He acknowledged that with only one chaplain serving as a trauma counsellor and guide to the psycho-spiritual needs of over almost 2,000 servicemen and women, mental health issues in the AFL are often misunderstood, or simply disregarded. Inadequate MHPSS services across Liberia, and in the AFL, means that it is unclear whether recent public shootings involving the military personnel are linked to poor mental health (https://mod.gov.lr/shooting-incident-at-star-base-bushrod-island-involving-armed-forces-of-liberia-personnel/; https://www.liberianobserver.com/liberia-soldier-who-shot-colleague-and-killed-himself-charged-attempted-murder). What is certain is that the level of violence and aggression that helped service personnel survive peace operations are excessive in the non-military setting. This can impact family relations and trigger domestic abuse or gender-based violence in the community or society. In view of this gap, enhancing MHPSS for the AFL, particularly its PSOP, through contextual research and systems of care, is central to advancing peace and security in Liberia.

While the new AFL may be known primarily for their role in PSO, they are increasingly involved in domestic law-enforcement-type activities as a member of the Joint Security, along with the Liberia National Police (LNP) and other national security institutions. Their involvement takes place within a legally legitimate framework (Chapter 2, Section 2.3 of the 2008 National Defense Act, National Defense Strategy 2014), motivated by increasing insecurity, growing public demand for effective security responses and institutional weakness of the police. They perform a broad range of functions including maintaining public order, enforcement of Ebola and COVID-19 health protocols and securing critical infrastructure. The military has participated in joint security operations that include manning security checkpoints, patrolling, disposal (burning) of seized drugs at the Barclay Training Center). Deploying the military to supplement civil law enforcement, however, can be risky. Law enforcement and the armed forces are distinct security organs with different roles, rules, and training. Because of their greater disruptive capacity, reports of human rights violations, especially against women and children, are noted. Use of excessive, and at times lethal, force to make people abide by lockdowns and curfews, arbitrary arrests and detention, beatings of women and children, and shootings, are reported (OHCHR 2021).

The Joint Security is tasked with providing election security in the October 2023 polls – prevent violence against women, curb militia activity, halt voters’ trucking – and other issues that might impede a peaceful process. Recent controversy surrounding the law enforcement functions of the AFL (https://eccliberiacom.org/caveats-from-the-armed-forces-of-liberia-risk-closing-the-civil-space-for-political-participation/) and perceptions that a military government is more effective than a democratic one, despite a catalogue of abuses, is worrisome and damaging for democracy in Liberia (https://www.liberianobserver.com/liberia-if-blind-man-says-he-will-stone-you). In a Joint Security meeting with the Informal Group of Ambassadors on 24 February 2023, the AFL’s Chief of Staff reiterated that if called upon, the military will be deployed to support the police to maintain law and order. Both the LNP and the AFL assured that the security forces will be neutral “referees” and not “players” in the “political game”/elections. It is clear that the role the Joint Security plays may be equally as important in determining the credibility of the election as that of the NEC.

The AFL has identified MHPSS as a strategic peacebuilding objective to be addressed with great urgency. As Liberia’s security situation continues to remain “stable but fragile,” and external threats to the state are minimal, identifying and responding to the immediate MHPSS needs of the AFL, particularly its PSO cohort, and supporting their full post-deployment reintegration, is crucial for sustainable peace (ACPHA, 2020; Betancourt et al., 2020).

Author: Christiana Solomon, Peace and Development Advisor, RCO Liberia

Editor:  Major General Prince Charles Johnson III, Chief of Staff, Armed Forces of Liberia

This publication is from the Peace, Political & Development Unit of the Resident Coordinator's Office in Liberia