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The Infrastructure of Peace in Africa Assessing the Peacebuilding Capacity of African Institutions

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The Infrastructure of Peace in Africa Assessing the Peacebuilding Capacity of African Institutions International Peace Academy The Infrastructure of Peace in Africa Assessing the Peacebuilding Capacity of African Institutions A Report submitted by the Africa Program of the International Peace Academy to the Ford Foundation Project Coordinator: Monica Juma Program Officer: Aida Mengistu SEPTEMBER 2002 ACKNOWLEDGEMENTS This report was put together by Dr. Monica Kathina Juma, a former Associate at the Africa Program of the International Peace Academy (IPA), who coordinated the project, and wrote the introduction and conclu- sion, as well as sections on the security dynamics of the Horn of Africa, the Intergovernmental Authority on Development (IGAD), and organizations in Kenya and Tanzania. She was ably assisted by Ms. Aida Mengistu, Program Officer with IPA’s Africa Program, who conducted research in Ethiopia and was partic- ularly meticulous in the logistics of contracting and coordinating the research team, and in editing and commenting on field reports as well as the main report. The report was made possible and enriched by the collective effort and contributions of numerous people. Special thanks go to the consultants who wrote background papers and submitted reports based on fieldwork in Africa. Professor Guy Martin, Dr. Christopher Landsberg, Dr. Adekeye Adebajo and Mr. Raymond Kivetu largely wrote the background papers. Fieldwork reports on organizations in West Africa were submitted by Mr. Augustine Toure (Liberia, Sierra Leone, and Guinea) and Dr. Adekeye Adebajo (Nigeria). Fieldwork in Southern Africa was carried out by Ms. Stella Zacarias (Angola and Mozambique), Dr. Christopher Landsberg (South Africa, Zimbabwe and Botswana) and Ms. Yaliwe Clarke (Zambia). Central Africa was covered by Mr. Raymond Kivetu (DR-Congo—Kinshasa, Congo-Brazzaville) and Mr. Jeremiah Owiti (DR-Congo and Rwanda). In the Horn of Africa, fieldwork was undertaken by Ms. Angela Ndinga Muvumba (Uganda), Ms. Aida Mengistu (Ethiopia) and Dr. Monica Juma (Tanzania, Kenya and Djibouti). It would have been impossible to collect the amount of material we did within the period of our fieldwork without the cooperation of organizations in the eighteen countries covered, for which we remain deeply indebted. We look forward to continued partnership with each of these organizations. In putting this report together, Dr. Monica Juma worked with an extraordinary team of colleagues at the International Peace Academy. Dr. Adekeye Adebajo supervised the project and edited the draft report. Dr. Neclâ Tschirgi, Vice President of IPA, Ambassador John Hirsch, Senior Fellow, and Mr. Cyrus Samii, Publications Coordinator and Program Assistant, reviewed the report, in whole or in part, while Dr. Neclâ Tschirgi contributed to the introduction and conclusion. All these people helped to enhance the quality, purpose and richness of this report. Last but not least, we thank the Ford Foundation for proposing and funding this project. We hope that this report will contribute to the Foundation’s new special initiative on Africa designed to strengthen the capacity of African organizations to manage conflicts. THE INFRASTRUCTURE OF PEACE IN AFRICA Table of contents Executive Summary. 1 Part One: Introduction 1.1 Background and Rationale . 6 1.2 Methodology . 6 Part Two: The Nature and Dynamics of Conflicts in Africa 2.1 West Africa. 9 The Taylor Factor The Franco-Nigerian Rivalry Exploitation of Natural Resources and Conflicts Proliferation of Small Arms and Light Weapons 2.2 Southern Africa . 13 The Legacy of Apartheid Fragile Democratization 2.3 Central Africa. 14 Ethnicity and Political Governance The Scramble for Resources in DR-Congo Geopolitical Interests Regional Responses to Conflicts 2.4 The Horn of Africa. 19 The Legacy of the Superpower Rivalry Proliferation of Small Arms and Light Weapons Forced Displacement Part Three: Assessing the Peacebuilding Capacity of Regional and Subregional Organizations in Africa 3.1 The Organization of African Unity . 23 3.2 The Economic Community of West African States. 27 ECOMOG in Liberia, Sierra Leone and Guinea-Bissau The ECOWAS Security Mechanism Contents THE INFRASTRUCTURE OF PEACE IN AFRICA 3.3 The Southern African Development Community . 31 The SADC Organ on Politics, Defense and Security South Africa: The Giant on the Limpopo SADC: A House Balkanized? Challenges for Conflict Resolution and Peacebuilding 3.4 The Economic Community of Central African States . 35 3.5 The Common Market for Eastern and Southern Africa . 36 3.6 The Intergovernmental Authority on Development . 37 The Sudan Peace Process Seeking Peace and Reconciliation in Somalia The IGAD Conflict Early Warning and Response Mechanism 3.7 The East African Community. 41 Security Cooperation in the EAC Operationalizing a Preventive Model Part Four: Assessing the Peacebuilding Capacity of Semiformal Organizations in Africa 4.1 Semiformal Organizations in West Africa. 44 4.2 Semiformal Organizations in Southern Africa . 46 4.3 Semiformal Organizations in Central Africa. 48 4.4 Semiformal Organizations in the Horn of Africa . 50 Part Five: Assessing the Peacebuilding Capacity of Community-Based Organizations (CBOs) in Africa 5.1 Southern Africa . 54 5.2 Central Africa. 54 5.3 The Horn of Africa. 55 Part Six: Summary and Recommendations 6.1 Summary of Findings. 57 6.2 Recommendations . 63 APPENDIX Appendix I Strategies and Activities of Semiformal and Community-Based Organizations . 66 Appendix II List of Acronyms . 90 Contents THE INFRASTRUCTURE OF PEACE IN AFRICA Foreword is no small task even in New York and even after all these years. The challenges on the ground in Africa are much greater and deserve a more consistently It is with great pleasure that we publish this report, supportive rather than often reflexively critical, commissioned and funded by the Ford Foundation. approach by funders and other partners. The Ford Foundation has generated a fine track record in We were drawn to the possibility of evaluating the supporting its African grantees. Others can learn much strengths and limitations (both inherent and imposed from its example. by outside actors, not least funders) of civil society actors in Africa. As the report details, civil society Since the inception of its Africa program in the early organizations in Africa as elsewhere take a variety of 1990s, under my distinguished predecessor Olara forms, and we have attempted, in considering them, to Otunnu, one of the two goals of IPA´s Africa Program avoid undue generalizations. This report by no means has been to support civil society actors in Africa in surveys more than a sampling of such organizations, promoting peace and security on the continent. (The merely aiming to cover enough of them to serve as a other has aimed to strengthen, wherever possible, the basis for the analytical sections of the document. capacity of African regional and sub-regional organi- zations to address constructively Africa´s security IP A is particularly proud that all authors of the report challenges.) are African, drawn from each of the continent's main regions. We are very grateful to Dr. Monica Kathina Preparation of this report has confirmed us in our Juma for coordinating the report and drafting much of conviction, first articulated by Olara and the then- its analytical thrust. As always, I am personally grateful Director of our Africa Program, Margaret Vogt, that to Dr. Ade k eye Adebajo, the Director of IPA´s Africa civil society organizations hold out a great deal of hope program, for overseeing this demanding project. for Africa. We trust readers will share our admiration for the achievements of this vital sector of Africa´s Our conclusions make clear that while civil society polity and for the courage of the individuals involved actors in Africa as elsewhere must remain responsible in tackling ambitious objectives in often very adverse for their own successes and failures, there is much that and frequently dangerous circumstances. donors need to do better to ensure a greater ratio of successful projects and programs. In particular, donors need to be more results than process oriented and need to stick with grantees long enough to allow these organizations to master both their local and interna- tional administrative, legal and financial requirements. David M. Malone As an NGO of 32 years standing, IPA can attest that this President, International Peace Aca d e m y Foreword THE INFRASTRUCTURE OF PEACE IN AFRICA Executive Summary discussing peculiar features that shape security systems in each subregion. Third, the survey assessed the peacebuilding capacity and potential of institutional n October 2000, the Ford Foundation requested the actors at the regional, national and community levels. IInternational Peace Academy’s (IPA) Africa Program to generate a database of institutions managing This report is divided into six parts. Part one outlines conflicts and crises in Africa. After consultations, the the background, rationale and methodology as well as scope of this project was expanded to comprise an the structure of the report. Part two provides an assessment of capacity, and determination of the overview of the conflict systems in Africa and analyzes potential of institutions to respond to crises and factors that define the security architecture in each conflicts in Africa. This report is the outcome of that subregion. Part three addresses the capacities— exercise and hopes to guide and facilitate the design of strengths, weaknesses and potential—of intergovern- the Ford Foundation’s funding strategy for mental
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