ISSUE 60 | JULY 2014

In this issue

n On the Agenda The PSC recently decided to lift Egypt’s suspension from the AU. What does this mean for the AU’s stance on unconstitutional changes of government?

n Situation Analysis As the political and security situation in continues to worsen, the AU has put the country Peace & back on its agenda. The PSC will have to deal with several major issues as it increases its engagement in this country. Security n Addis Insights A spotlight on post-conflict reconstruction and Council development in Africa shows that the PSC has to closely monitor countries coming out of conflict. Ending all wars in Africa by 2020 might be an Repor t ambitious deadline; but AU members should nevertheless be galvanised to work towards this goal.

UN Secretary General Ban Ki-moon has emphasised the UN’s commitment to work with the AU on issues of peacekeeping; particularly in the Central African Republic, Somalia and South Sudan.

“ Far-reaching “ Libya back on “ Silencing the guns implications of the the agenda of to end all wars in PSC’s decision the PSC Africa by 2020 on Egypt Page 2 Page 5 Page 10

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On the Agenda Far-reaching implications of the PSC’s decision on Egypt

In June 2014, the Peace and Security Council (PSC) took a decision with far-reaching consequences when it lifted Egypt’s suspension of its participation in the ’s activities.

Unlike similar Council decisions – including Since then this rule has been enforced the one on Guinea-Bissau adopted the on countries that have experienced same day PSC/PR/BR.(CCCLXXII) – this unconstitutional change of government, decision invites critical questions on including Guinea, Niger, Madagascar, the credibility of the African Union (AU) Mali and Central African Republic. and the future application of its norm on unconstitutional changes of government It is not in dispute that President Abdel (UCG). Contrary to the AU’s rule banning Fattah el-Sisi played a central role in Egypt’s perpetrators of unconstitutional change unconstitutional change of government on of government, this decision can be 3 July 2013. In this regard, the final report interpreted as conferring legitimacy on PSC/AHG/4.(CDXVI) of the AU High-Level the election of a president who was Panel on Egypt (the Panel) held that the responsible for the unconstitutional election as president of ‘Field Marshal change of government in Egypt. el-Sisi, who was the Head of the Army

This decision invites critical questions on the credibility of the African Union and the future application of its norm on unconstitutional changes of government Current PSC Chair

H.E. Rachid Benlounes The rule banning perpetrators from and Minister of Defence at the time of the Ambassador of to participating in elections held to restore unconstitutional change of government, Ethiopia constitutional order was first introduced poses a serious challenge to the AU as when the Charter on Democracy, Permanent Representative to the to how to address the resumption of Election and Governance was adopted AU and UNECA Egypt’s participation in AU activities’. in 2007. However, this ban became The AU’s concern was that lifting Egypt’s Current members legally binding only in 2010 when the suspension upon the election of the person of the PSC: AU Assembly adopted its ‘Decision responsible for the unconstitutional change (Assembly/AHG/Dec.269.(XIV) Rev.1) could constitute direct disregard for a Algeria, Burundi, Chad, on the prevention of unconstitutional clear rule of the AU norm proscribing the Ethiopia, Equatorial Guinea, changes of government and legitimisation of unconstitutional changes The Gambia, Guinea, Libya, strengthening the capacity of the through elections. Mozambique, Namibia, African Union to manage such situations’ Niger, Nigeria, South Africa, at its 14th ordinary session held from Now that the suspension has been lifted, Tanzania, 31 January to 2 February 2010. the main issue is how it affects the AU

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PSC REPORT JULY - PROOF 5 SIGNOFF_REPRO_COLOUR.indd 2 2014/07/23 10:54 AM and its norm on UCG. Apart from being of the Panel, particularly with respect to considered a breach of a legally binding the ‘continued engagement of the AU to rule, this decision could lead to charges effectively contribute to the follow-up and of double standards being levelled against implementation of the recommendations the AU. This is particularly due to the of the Panel and submission of regular fact that this rule was applied in similar reports to the Council’. situations in other AU member states, including Guinea, Niger and Madagascar. A closer look at the dynamics surrounding In the case of Madagascar, the AU even the Council’s decision offers important warned that it would not recognise insights into the overall political and elections in which Andry Rajoelina, the diplomatic environment that shaped leader of the group responsible for the this outcome. overthrow of the Madagascan government The difficult atmosphere that the Egyptian in 2009, participated. authorities created not only affected the The AU also faces the prospect of work of the Panel but also challenged the setting a precedent that undermines the authority of the PSC. In this regard, one of

Egypt had deployed a robust campaign lobbying the AU Commission members of the PSC and the Panel to ensure that its suspension was ended

legitimacy of this rule for application the recommendations of the Panel, in future cases. In the event of the on which the PSC acted, stated that occurrence of an unconstitutional ‘in view of Egypt’s … rejection of the JUNE change of government in another AU PSC decisions, it is critical that [the] member state, there is now a serious risk Council informs Egypt of its obligations 2014 that those responsible will cite Egypt’s under the PSC Protocol and the AU 17 example to justify the legitimacy of their Constitutive Act’. The date the PSC took participation in elections held to restore its decision on Egypt Egypt had deployed a robust campaign constitutional order. lobbying the AU Commission (AUC), In an apparent move to mitigate these members of the PSC and the Panel to consequences, the PSC added certain ensure that its suspension was ended. caveats to its decision. First, the Council At a meeting of Arab ambassadors in stated that it adopted its decision ‘on the held before the PSC had understanding that it does not constitute taken a decision, a senior AUC official a precedent in terms of adherence to reportedly suggested that Egypt’s the relevant provisions of the ‘Decision suspension would be lifted. When (Assembly/AHG/Dec.269.(XIV) Rev.1) the PSC adopted its monthly work on the prevention of unconstitutional programme for June, the date scheduled changes of government and for it to consider the Panel’s report and A significant strengthening the capacity of the African take a decision on Egypt was 25 June recommendation is the proposal to produce Union to manage such situations’ and 2014. This date was brought forward to guidelines to assess ‘article 24 (5) of the African Charter on 17 June, allowing the AU enough time the compatibiLIty of Democracy, Elections and Governance’. to invite Egypt to participate in the unconstitutional 23rd ordinary session of the AU Second, notwithstanding the lifting of changes through Assembly held on 26–27 June 2014. the suspension, the Council decided popular uprisings with to keep Egypt on its agenda. This was Within the PSC, members held positions the AU’s norm on UCG. done by endorsing the recommendations that can be classified into three groups.

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The first was those states that advocated to the African Commission on Human date by the Council at the level of for the lifting of Egypt’s suspension and and Peoples’ Rights to undertake an Heads of State and Government, the which mainly comprised North African assessment of the human rights situation Council’s endorsement of the above states. The second was those states and submit [a] report for the Council’. elements as guidelines certainly fills the concerned about the implications of existing lacunae in the norm on UCG Another very significant recommendation, reinstating Egypt in circumstances not vis-à-vis changes of government in the with major implications for the AU norm fully in line with established AU rules. context of popular uprisings. on UCG, is the proposal for elaborating This group included some Southern guidelines for assessing the compatibility Although much of the attention has African states and a few others from of unconstitutional changes through popular been focussed on the Council’s lifting West and East Africa. The third was uprisings with the AU’s norm on UCG. Egypt’s suspension, its decision reflects the majority of states, who had no firm position on the issue and were hence inclined to be guided by the Significantly, the lifting of the suspension did not result Panel’s recommendations. in Egypt’s removal from the PSC’s agenda While this might not have been decisive, the AU and its member states were Taking into account recent events in an understandable lack of enthusiasm also aware of major international actors’ North Africa, including in Egypt, and on the part of the AU to ratify the enthusiastic response to the outcome the challenges faced in applying the conditions in Egypt as manifesting the of the presidential election held in AU norm on UCG to popular uprisings, full restoration of constitutional order and Egypt on 25–27 May 2014. the Panel recommended the following being in full compliance with established as guidelines for making the compatibility AU norms. Noting that the presidential election assessment: This is in contrast with the decision marked an ‘important step’ towards • the descent of the government into PSC/PR/BR.(CCCLXXII) on Guinea- ‘democracy’, the EU said in its official total authoritarianism to the point of Bissau adopted on the same day in statement that it would like to work its forfeiting its legitimacy; which it affirmed ‘the completion of the closely with the new authorities. • the absence or total ineffectiveness transition process and the restoration of Similarly, after congratulating el-Sisi in of constitutional processes for the constitutional order, and in conformity with the relevant AU instruments, a phone call, US President Barak effecting a change in government particularly the African Charter on Obama expressed ‘his commitment to (through normal procedures); Democracy, Elections and Governance’. working together to advance the shared • the popularity of the uprisings in the interests of both countries’. Egypt’s new sense of their attracting a significant Significantly, the lifting of the suspension president received similar messages portion of the population and involving did not result in Egypt’s removal from from Russia, China, Turkey and the people from all walks of life and the PSC’s agenda. It is likely that the Gulf States. ideological persuasions; Council will consider the situation in Egypt when the country holds the The PSC adopted its decision based • the absence of the military’s active outstanding parliamentary elections. on the recommendations of the involvement in removing the final Report of the Panel. This report government; and Nevertheless, it is not clear from the contained extensive and significant • the peacefulness of the popular PSC’s decision if the Panel’s mandate recommendations that are not fully protests. has been concluded or if it will continue reflected in the final decision of the PSC. to serve as the framework for following One such recommendation was for Although the issue of popular uprisings up and reporting on developments ‘[the] Egyptian authorities to grant access will be elaborated further at a future in Egypt.

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PSC REPORT JULY - PROOF 5 SIGNOFF_REPRO_COLOUR.indd 4 2014/07/23 10:54 AM Situation analysis – Libya Libya back on the agenda of the PSC

As the worsening political and security situation in the country continues to raise regional and international concerns, the PSC increased its engagement in Libya by putting it back on its agenda.

Following a briefing it received on the what was hoped would mark a critical security situation in the Sahel and North deteriorating security situation in Libya step in the country’s transition, low voter Africa, the crisis in Libya risks drawing at a session held on 23 May, the Peace turnout and fighting in the eastern city of countries like Egypt and radical armed and Security Council (PSC) in a press Benghazi marred the vote. groups operating in the region into the statement PSC/PR/BR.(CDXXXVI) fighting on either side. In May 2014 forces loyal to former urged Libyan political forces to work for Libyan army General Khalifa Haftar, who national reconciliation and the successful Key issues and internal accuses the government of appeasing conclusion of the transition, including dynamics terrorists, launched Operation al- the holding of parliamentary elections. On 25 June 2014 Libya had its third Karamah (Operation Dignity) to cleanse It also condemned all acts of violence legislative election since the removal Libya of ‘terrorism and extremism’ with and expressed its worry over the launch of Muammar Gaddafi from power. attacks on radical armed groups in of ‘Operation Dignity’. Most notably, The Libyan people went to the polls with Benghazi. The operation involved both the Council encouraged the African some doubt as to whether the elections direct engagement with suspected Union Commission (AUC) Chairperson would bring about stability and help the radical militia groups and air strikes to urgently appoint a special AU Envoy transition to democracy. Compared to against their alleged bases. Instead of to Libya to ‘undertake consultations’ the 2,8 million voters who registered for raising hopes for stability, Operation with relevant stakeholders, both national Libya’s first election in 2012, the current Dignity seems to have added further and international, and submit to it ‘a turnout of 1,5 million shows a significant complications. It has exposed the comprehensive report on the situation, decline, indicating a loss of interest inability of the interim government including concrete recommendations and trust in the transitional process. to control diverse armed formations, on how best the AU can further support In an attempt to ease factional tensions including the weak national army, and the stabilization process in Libya and the between various political formations, has raised fears of a military coup early completion of the current transition’. it was decided that all candidates following the invasion of the national would contest the parliamentary seats parliament in Tripoli. The interim Crisis escalation potential as individuals, with 30 of the 200 seats government in Tripoli continues to With various political forces and regions reserved for female candidates. condemn the operation, stating that locked in rivalry for dominance and Haftar has no mandate or legitimacy. In a move interpreted by many as an resources, the political landscape in While Haftar, who survived an attempt to appease the residents of Libya continues to be rocked by armed assassination attempt earlier in June, Benghazi, the interim government confrontations and deepening political claims to have the support of the army decided in June that the new parliament divisions. The General National Congress and the wider public, the operation has would be based there. However, (GNC), the legislative body mandated been criticised even by its supporters security will be a big concern for the to lead the transition, has become for the air strikes on the city. parliamentarians as there has been no deadlocked as disputes between Islamist clear halt to the fighting in the city. members and their opponents worsen. With Haftar reportedly receiving The prospect of the parliamentary support from Gulf countries opposed While there is a chance that the elections, meant to replace the GNC, to the Muslim Brotherhood, there are instability of the interim government delivering a more cohesive parliament risks of further conflicts with serious might come to an end following the is uncertain. While the elections were regional consequences. Apart from election of the new parliament, there held as scheduled on 25 June 2014 in its negative impact on the precarious is no indication that this would resolve

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the fighting between Haftar’s forces and The economy also continues to suffer Benghazi new seat Islamist militants. from the ongoing violence and political of Libyan instability. Reports suggest that Libya’s parliament Haftar is no new face to Libyan politics oil production has decreased significantly and public life. He was part of the 1969 in the past year. Oil production is further coup that brought Gaddafi to power. threatened since two of the three Libyan Following Libya’s defeat in a controversial regions (Fezzan and Cyrenaica) have war against Chad in 1977, which he led declared their autonomy. On 9 November as Chief of Staff of the Libyan army, 2013, leaders from Cyrenaica, the LIBYA he defected to the United States (US) historically marginalised eastern part of and launched an anti-Gaddafi movement. Libya, announced the establishment of In 2011, he returned to Libya to join the a regional oil firm and a central bank, fight against Gaddafi alongside some of defying calls from Tripoli not to do so. the groups he is attacking at present. These moves further complicate the In February 2014 he accused the interim production and transportation of oil. government of supporting terrorism and A failure to stabilise the economy, and called on Libyans to rise up against the deliver services and jobs would intensify elected parliament. He claims that his the anger and frustration of the public. group is no rebel as there is no state to rebel against. Geo-political dynamics One of the targets of Haftar’s campaign Pan-African and REC dynamics is the Ansar al-Sharia (‘Partisans of At the regional level, the Ministers of Islamic law’), a hard-line group the US Foreign Affairs of the countries bordering state department has designated as a Libya also held a consultative meeting terrorist organisation. The group wants on 27–28 May 2014 in Algeria. the strict implementation of Sharia law The meeting, attended by the Secretary across Libya. It was created during the General of the Arab League, Dr Nabil 2011 anti-Gaddafi uprising from the Abu El-Arabi, and the AUC Chairperson, Obayda bin al-Jarah Brigade, the Malik Dr Nkosazana Dlamini-Zuma, discussed Brigade and the 17 February Brigade. the security situation in Libya and its Libya’s incoming parliament will inherit regional implications. The meeting called existing and emerging political and on all Libyan parties to stop violent acts security challenges. On the political and to resort to dialogue, and affirmed front, it has to create national consensus its support for the transition. It also urged

Libya’s incoming parliament will inherit existing and 2.8 emerging political and security challenges million REGISTERED VOTERS among the various political forces IN 2012 greater partnership between the Arab and address the question of regional League and the AU in addressing the autonomy and federalism. There is also situation in Libya. the issue of the establishment of an Acting on the 23 May 2014 request of effective national government that is free the PSC, the AUC Chairperson on 11 June from infighting. In the security sphere, 2014 appointed Dileita Mohamed Dileita, 1.5 it faces the challenge of persuading the million a former Prime Minister of and various militias and armed groups to who is currently serving on AU High- REGISTERED VOTERS surrender their arms and ensure that the Level Panel on Egypt, as the AU’s Special IN 2014 fighting in eastern Libya is ended. Envoy for Libya. In its press statement,

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PSC REPORT JULY - PROOF 5 SIGNOFF_REPRO_COLOUR.indd 6 2014/07/23 10:54 AM the AUC stated that the Special Envoy, Haftar receives support from Egypt, Saudi countries, particularly in terms of the supported on the ground by the AU Arabia and the United Arab Emirates. control of the trade in arms, organised Liaison Office in Tripoli, would engage crime and terrorist groups. On 21 June 2014, the EU expressed with ‘the Libyan authorities and other its concern over the situation in Libya stakeholders in support of the efforts Options and urged all stakeholders to commit to aimed at stabilizing the situation in the The PSC, through the AU Special Envoy constructive political engagement based country, promoting national reconciliation to Libya and in collaboration with the on nationally agreed principles. It called and facilitating the early completion of Arab League and UNSMIL, could support for the transition to a state based on the current transition’. the government in Libya in developing the rule of law and respect for human and implementing national dialogue rights and committed to the welfare UN dynamics and reconciliation. of its citizens. While condemning the In a statement dated 24 June 2014, widespread acts of violence, the EU called The PSC could encourage the the UN Security Council (UNSC) urged on all sides to address their differences government to develop a comprehensive stakeholders in Libya to ensure that through peaceful political means. strategy to end all acts of violence, national elections are held peacefully. The UNSC ‘emphasized that these elections are an important step in Libya’s A failure to stabilise the economy, and deliver services transition towards stable democratic and jobs would intensify the anger of the public governance and an opportunity for the Libyan people to select a transitional government that meets their legitimate Relations with the US have been mixed. including the speedy establishment aspirations’. On 12 June UN Secretary- The assassination of the US ambassador, of the fact-finding and reconciliation General Ban Ki-moon also stressed the J Christopher Stevens, and three other commission the government had importance of the peaceful and timely Americans in an attack on a US mission vowed to establish. holding of elections on 25 June. in Benghazi in September has marred Another option for the PSC is to request On 14 March 2014, the UNSC extended Tripoli-Washington relations. While the the AU Special Envoy and its Liaison the mandate of the UN Support Mission US’ deployment of security forces to Office to collaborate with the UNSMIL in Libya (UNSMIL) for another 12 months. seize the suspects in the attack has in helping the government to develop a The UNSMIL was mandated by UNSC angered officials in Tripoli, Libya seems plan for implementing a comprehensive Resolution 2040 of 12 March 2012 to keen to work with the US in its efforts to security sector reform. manage the process of democratic achieve stability. transition; promote the rule of law; monitor To mobilise coordinated international and protect human rights; restore public Major issues for the PSC support and contain the regional security, including through the provision of A general issue for the AU is how to ramifications of the crisis, the PSC could appropriate strategic and technical advice deepen its engagement in Libya, not only also consider working with the Arab to the Libyan national security forces or by closely monitoring the situation but League to establish an international their demobilisation and reintegration; and also by adopting appropriate responses contact group on Libya. counter the illicit proliferation of all arms as the situation evolves. and related material. One of the major issues for the PSC Documentation Wider international community is how to leverage the appointment of AU Documents There is a belief among secular political the AU Special Envoy to support the • Press Release (11 June 2014) The African and armed groups that Turkey supports Libyan government in dealing with the Union Appoints Mr Dileita Mohamed Dileita radical groups in Libya. In June Haftar’s political and security challenges facing as Special Envoy for Libya spokesperson Mohamed el-Hejazi the country. Another issue is containing • PSC/PR/BR.(CDXXXVI) (23 May 3014) Press Release on the Situation in Libya announced that all Turkish and Qatari the regional implications of the continuing citizens should leave Libya within conflict and the risk of the involvement UN Documents 48 hours. Haftar accused Turkey and of radical armed groups operating in the • Resolution 2014S/RES/2144 (14 March, Qatar of supporting terrorism though their region. Related to this is the need for 2014) Extension of the mandate of UNSMIL until 13 March 2015 and the mandate of the connection to the Muslim Brotherhood. enhancing cooperation and interaction Panel assisting the 1970 Libya Sanctions On the other hand, it is believed that between Libya and neighbouring Committee until 13 April 2015

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Addis Insights Spotlight on post-conflict reconstruction and development in Africa

Recent events show that the PSC has to closely monitor and remain engaged in countries coming out of conflict.

Despite the many efforts to stop conflicts of the PSC, expressed the view that the on the continent, in the past few years recent trend of countries relapsing into a number of countries emerging from conflict can in many ways be attributed to conflict soon afterwards were again the inadequate attention given to PCRD plunged into renewed violence. These work and the lack of progress made in the include Mali, the Democratic Republic implementation of the AU’s PCRD policy. of Congo (DRC), the Central African Admittedly, since the adoption of the Republic (CAR) and most recently South PCRD policy in 2006, the AU has Sudan. This disturbing trend raises undertaken some notable activities within questions about the effectiveness of the its framework. The AU Commission (AUC) tools and mechanisms of the African has developed operational guidelines for Peace and Security Architecture and the adoption of the policy at regional and

The eruption of conflict in the eastern DRC and Mali AU multidisciplinary missions in 2012, and in the CAR and South Sudan in 2013, shows that the efforts undertaken to support peace- 2006 building have been either inadequate or unsuccessful to the CAR puts the spotlight on the work of the national levels; the establishment and African Union (AU) on post-conflict creation of a database of African experts reconstruction and development (PCRD). on PCRD; and the development of an AU Standing Multi-dimensional Committee It was in this context that the Peace and on PCRD. The AUC has also launched Security Council (PSC) recently held an 2009 specific in-country peace-building works open session on ‘Enhancing AU efforts in to Sierra Leone – so-called ‘quick impact’ or peace- and Liberia implementing post-conflict reconstruction strengthening projects – to support and development in Africa’. While the countries such as the CAR, Comoros, PSC, according to its protocol, has to Liberia and Sierra Leone within the ‘promote and implement peace-building context of the PCRD Policy Framework. and post-conflict reconstruction activities 2010 The AU undertook multidisciplinary to consolidate peace and prevent the to the DRC and Burundi missions to the CAR (2006), Liberia resurgence of violence’, in 2006 the AU and Sierra Leone (2009), the DRC and adopted a PCRD Policy Framework to Burundi (2010), and Sudan (2011), in enable it to deliver on its responsibilities order to assess and ascertain the post- in this area. 2011 conflict demands of these countries. to Sudan During the 14 June session of the PSC, In addition, the AU has also developed many participants, including members and adopted a Framework on Security

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PSC REPORT JULY - PROOF 5 SIGNOFF_REPRO_COLOUR.indd 8 2014/07/23 10:54 AM Sector Reform (SSR). However, while a Perhaps the most serious challenge for how much the PSC had done to advance ministerial committee on PCRD has the AU’s PCRD policy is capacity and PCRD. In this regard, one major concern been established (in 2003, prior to the resource limitations. One example of this is how the PSC can best implement AU PCRD Policy and focusing lack of capacity is the fact that the AU its mandate with respect to PCRD in on Sudan), it has been inactive for PCRD Unit employs only one expert. general and prevent countries’ relapse many years. More broadly, as the AU Commissioner into conflict in particular. At one level, this for Peace and Security, Ambassador is about following up and implementing While these activities remain relevant, Smail Chergui, observed in his opening decisions that the PSC adopts, such as many of them are institutional and speech, the capacity deficits ‘[range] those adopted at its 230th (PSC/PR/2. related to policy development. The from planning and conceptualization CCXXX) and 352nd (PSC/PR/COMM/ eruption of conflict in the eastern DRC of projects and programmes, to the CCCLII) meetings. and Mali in 2012, and in the CAR and South Sudan in 2013, shows that the efforts undertaken to support peace- One example of this lack of capacity is the fact that building have been either inadequate or unsuccessful. Given the limited the AU PCRD Unit employs only one expert experience that the AU has in this area, the amount of resources and expertise PCRD demands, and the high-level execution, monitoring and evaluation at On the other hand, this is in part a political and diplomatic engagement it national and regional levels’. One plan question of the need for the PSC to pay requires to be successful, the AU’s lack for addressing this capacity constraint as much attention to countries emerging of success or inadequate engagement is the establishment of an AU Centre for from conflict as to those still in conflict. does not come as a total surprise. It has PCRD. Additionally, a lot may also be In the current dispensation, the PSC’s become clear that the AU needs to do gained if the AU develops mechanisms work is dominated by a ‘firefighting’ more work, within the available means for tapping into the existing technical approach and as such does very little and capacity, in various areas. and institutional capacities of some of its in the post-conflict phase. member states, regional organisations In this context, a number of issues and civil society organisations. Recent events show that the PSC has need to be addressed. Several to closely monitor and remain robustly The issue of resources has been participants highlighted the importance engaged with countries coming out of recognised at the highest of levels. of establishing close cooperation conflict. To this end, the PSC needs Perhaps one of the most promising and working relationships with those to periodically consider and assess initiatives to emerge within the AU’s regional and international actors with the situation in these countries as well PCRD framework is the African the institutional, technical and resource as undertake visits to these countries. Solidarity Initiative (ASI), which was capacity relevant to PCRD. In this This should build on the AU practice of adopted at the 19th Ordinary Session context, one major issue is how to undertaking assessment missions, which of the AU Assembly in July 2012. leverage the work of entities such as should be supplemented with a follow-up While the ASI was initiated as a flagship the African Development Bank and the mechanism capable of addressing the programme to support identified pilot UN Peace-building Commission that areas of intervention these assessment countries, the ministerial declaration undertake projects in this area. The other missions identify in their reports. As part launching it also stipulated that the and related issue concerns the creation of its increased focus on PCRD, the ASI ‘shall institute a coordinated and of synergy and coherence among PSC needs to activate its envisaged expanded platform aimed at mobilizing the various entities of the AU with the sub-committee on PCRD (meant to be resources to PCRD activities in Africa’. relevant mandate for and expertise in established in its decision at its 230th It is commendable that a number of PCRD. Although PCRD is a crosscutting meeting) and dedicate a session to it on AU member states have in the past policy framework, it is currently housed a quarterly or biannual basis during which year made financial contributions to within the AU Peace and Security it receives reports from the Commission support AU peace efforts. Department and its links with relevant and reviews the state of countries departments such as Political Affairs, From the perspective of the work of the emerging from conflict (as part of the Social Affairs and Economic Affairs PSC, one of the questions raised in the implementation of its communiqué PSC/ remain weak. concept note for the open session was PR/COMM/CCCLII).

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PSC REPORT JULY - PROOF 5 SIGNOFF_REPRO_COLOUR.indd 9 2014/07/23 10:54 AM peace and security council report Addis Insights Silencing the guns to end all wars in Africa by 2020

Although it is unlikely that the AU will achieve its ambitious deadline to end all wars by 2020, it is worth mobilising AU members towards this goal.

The 50th anniversary of the Organisation At the meeting the PSC also underscored of African Unity/African Union (OAU/AU) the importance of the responsibility of served as an opportunity to set various individual member states in protecting targets meant to move the agenda of their citizens by addressing the root the AU substantially forward. This was causes of conflicts. In this regard, it contained in the 50th Anniversary Solemn called for deepening the culture of Declaration. One of the most ambitious democracy, good governance, respect for targets was the pledge of the Heads human rights, popular participation and of State and Government of the AU inclusivity, and addressing the problem Assembly ‘not to bequeath the burden of of youth unemployment. It stressed that conflicts to the next generation of Africans’ member states should double their efforts and ‘to end all wars in Africa by 2020’. to bring about economic development and ensure that the proceeds from In the light of the violent conflicts that natural resources are utilised to meet the continue to affect various parts of the basic needs of all Africans. continent, as reflected in the crises in the Central African Republic and To realise a conflict-free Africa, the PSC South Sudan, there is no illusion that stressed the need to effectively address this ambition will be fully realised in the both current and emerging threats to remaining six years. The value of this peace and security on the continent. target is in mobilising AU member states For this to happen the PSC needs to to make progress towards achieving enhance its strategic partnership with the end of ‘all wars in Africa’. However, the United Nations Security Council even this progress will stand a chance of (UNSC). It added that Africa’s partnership success only with a proper diagnosis of with the international community was the sources, dynamics and manifestations equally important to address current of armed conflicts in Africa and a and emerging threats. Moreover, greater 22 road map with clear and time-bound engagement and collaboration with thousand benchmarks. civil society organisations (CSOs), as well as greater synergy within the AU amisom troops In an effort to mobilise action on the Commission (AUC) and among AU in somalia agenda of ending ‘all wars in Africa by member states, was called for to address 2020’, the AU Peace and Security Council the peace and security concerns of the at its 430th meeting held an open session continent in realising a conflict-free Africa. with the theme ‘Silencing the guns: pre-requisites for realizing a conflict-free Participants in the debate and the PSC Africa by the year 2020’. The PSC in its called for various actions. With regard 6 press statement PSC/PR/BR (CDXXX) to conflict prevention, the participants thousand acknowledged and stressed the need for and the Council called for the further misca troops in car coordinated efforts at regional, continental strengthening of all the existing preventive and international level. mechanisms, including the Panel of the

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PSC REPORT JULY - PROOF 5 SIGNOFF_REPRO_COLOUR.indd 10 2014/07/23 10:54 AM Wise and the Continental Early Warning was held with the intention of exploring System, and for the full operationalisation concrete options towards silencing of the African Standby Force and its guns in Africa with the objective of Rapid Deployment Capability. In order to laying a foundation for the subsequent address the root causes of conflicts, the elaboration of road map towards a participants and the Council called for a conflict-free Africa. The Chairperson of common understanding and definition of the AUC in her opening remarks noted and response to these root causes and that ‘unless we silence the guns and bury to build a consensus on the solution. the machetes, the AU vision of building However, while these are important an integrated, prosperous and conflict- steps, the Council failed to stipulate who free Africa remains an abstract goal’. should undertake these exercises and As a recent article observed, ‘the the timeline for such actions. greatest threat to the AU’s aspiration of The PSC also called on member states eradicating war is that policy objectives to sign, ratify and domesticate existing AU and targets are unlikely to be reached legal frameworks and normative instruments without an adequate understanding of on democracy, accountability and good the current situation (that is, the governance and for universal signature baseline), its underlying dynamics and and ratification of the Arms Trade Treaty. likely future trends. Without that,

To realise a conflict-free Africa, the PSC stressed the need to effectively address both current and emerging threats to peace and security on the continent

One of the important requests in the sensible planning, monitoring and press statement was for the AUC to evaluation become impossible.’ Since undertake a comprehensive study on only six years are left before 2020, the flow of illicit weapons into and within these tasks need to be undertaken Africa and submit the outcome of the promptly and a road map with clear and study to the PSC. However, no timeframe time-bound benchmarks needs to be was set within which this study had adopted. One option could be to focus to be submitted. On the same issue, on selected intervention areas, building participants and the Council called for on those identified in the PSC press the naming and shaming of suppliers, statement, such as control of the illicit financiers, facilitators, transit points and flow of and trade in weapons. Related recipients of illicit weapons to stem their issues worth considering in developing proliferation. the road map include identifying 28-29 The PSC also asked the AUC to prepare priority areas for action and the roles APRIL 2014 a road map to underpin the actions and responsibilities of various actors, necessary for the attainment of the goal including the PSC, AUC, Regional A high-level retreat of a conflict-free Africa by 2020. Economic Communities and individual themed ‘Silencing member states, as well as non-state the guns in Africa: Around the same time a high-level retreat actors. building a road on the theme ‘Silencing the guns in map to a conflict-free Africa: building a road map to a conflict- Although no timeline has been assigned continent’ is held free continent’ was held on 28–29 April for following up on this agenda item, it is in Durban 2014 in Durban, South Africa. The retreat one of the pending issues.

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PSC REPORT JULY - PROOF 5 SIGNOFF_REPRO_COLOUR.indd 11 2014/07/23 10:54 AM peace and security council report Addis Insights Strengthening AU PSC and UNSC ties

This year has seen notable advances with respect to strengthening cooperation between the Peace and Security Council and the UN Security Council.

As African leaders gathered in Malabo, The advance exchange between the Equatorial Guinea for the 23rd summit of two on the agenda items and the PSC’s the African Union (AU) on 26 June 2014, preparatory meetings are valuable United Nations (UN) Secretary General improvements on previous meetings in Ban Ki-moon emphasised the UN’s setting the stage both for the smooth commitment to working with the AU on conduct of the meeting (by avoiding issues of peacekeeping, notably in the misunderstandings) and for a more Central African Republic (CAR), Somalia substantive dialogue between the and South Sudan. members of the two councils.

This statement follows the annual Items up for discussion included current consultative meeting between the AU crises and peacekeeping operations Peace and Security Council (PSC) and the (the CAR, Democratic Republic of Congo UN Security Council (UNSC) in New York [DRC], South Sudan, Mali, Somalia and on 6 June this year. This was the eighth the AU-UN Hybrid Mission in Darfur such meeting between the two bodies [UNAMID]), terrorism in Africa and since 2007, with the venues alternating strengthening cooperation between the between Addis Ababa and New York. two bodies.

There had been notable progress in the This 8th consultative meeting took place level and process of preparation for the against the background of rising conflicts New York meeting. and instability, in particular terrorist attacks in East and West Africa. While Following the practice developed by the the atrocities and humanitarian tragedies two councils in recent years, the agenda in the CAR and South Sudan continue for the annual consultative meeting to attract high-level attention both in was negotiated in advance. This was in Africa and at the UN level, Boko Haram’s accordance with the communiqué from abduction of schoolgirls in northern their 7th joint consultative meeting Nigeria and the global campaign it

This 8th consultative meeting took place against the background of rising conflicts and instability, in particular terrorist attacks in East and West Africa

held on 8 October 2013. As host of the triggered brought terrorism in Africa consultative meeting, the UNSC was into the international spotlight.

responsible for drafting the agenda. There were a number of issues of The two sides exchanged inputs on the particular concern to members of the draft agenda based on a draft sent to the PSC among the various agenda items of PSC in a letter dated 19 May 2014. the consultative meeting.

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PSC REPORT JULY - PROOF 5 SIGNOFF_REPRO_COLOUR.indd 12 2014/07/23 10:54 AM With respect to the situation in the the Liberation of Rwanda (FDLR), the CAR, PSC members are keen on Allied Democratic Forces (ADF), and UN/international support for the AU the Lord’s Resistance Army (LRA)’, Mission in the CAR (MISCA) and a well- although it made no reference to the coordinated and jointly planned transition role of the Force Intervention Brigade of of this mission into the envisaged UN the UN Stabilisation Mission in the DRC Multidimensional Integrated Stabilisation (MONUSCO) in this regard. Mission in the CAR (MINUSCA). Another issue of particular interest was This is meant to avoid the problems the implementation of the Framework encountered during the transition of Agreement signed by countries of the the African-led International Support region in February 2013.

The communiqué doesn’t detail the burden that needs to be shared to maintain peace and security

Mission in Mali (AFISMA) to the UN In this regard, the communiqué Multidimensional Integrated Stabilisation urged ‘the government of the DRC Mission in Mali (MUNISMA). to take further steps to implement their commitment under the PSC In the joint communiqué that they issued Framework, including the establishment at the end of their meeting, the two sides of a professional, accountable and expressed concern over the continuing sustainable national army, including a security and humanitarian challenges in Rapid Reaction Force, in accordance the CAR and ‘made an urgent appeal to with its commitment to deepen the international community and donors SSR [security sector reform] and to mobilize substantial resources for the finalisation of the development the MISCA to enable it to better fulfil its of a comprehensive Disarmament, mission and prepare the ground for the Demobilization and Reintegration smooth transfer of authority from (DDR) and Demobilization, Repatriation, MISCA to MINUSCA on 15 September Reintegration and Resettlement 2014’. Additionally, they stressed the (DDRRR) plan’. need for the coordination of efforts between the UN, the AU and the On the issue of terrorism, the two Economic Community of Central sides emphasised the importance of African States (ECCAS) ‘in ensuring a cooperation between states. More successful transition, drawing lessons specifically, the joint communiqué from previous experiences’. paid particular attention to three The nine-page joint communiqué issues in the fight against terrorism: also addressed each of the other intelligence information-sharing and agenda items. On the situation in sanctions; dialogue and understanding the DRC, the two sides expressed among ‘civilizations’; and a long-term JUNE concern over the fragile security and approach in dealing with the socio- humanitarian situation in the eastern economic and governance ills that create the conditions for terrorism. 2014 DRC. Echoing the concerns of 6 some of the DRC’s neighbours, the With respect to Boko Haram, the Annual consultative communiqué expressed the concern of communiqué welcomed the recent meeting between the AU members of the two councils ‘over the decision of the UN’s committee to PSC and the UNSC takes destabilizing activities of armed groups, included the terror group on the place in New York including the Democratic Forces for al-Qaeda Sanctions List.

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With respect to strengthening cooperation President, Russian Ambassador between the UNSC and the AUPSC, Vitaly Churkin, said ‘we had a deeper the communiqué shows some notable understanding of the African continent’. advances since previous years. The He added that the ‘African Union and UNSC’s primary responsibility to maintain the United Nations work very closely international peace and security seems together’ and ‘there is room for more to be accepted without any ambiguity, close cooperation between our while recognition is given to the role two councils’. of the AUPSC within the framework of The PSC Chairperson, Uganda’s the Protocol Establishing the AUPSC Ambassador Mull Sbujja Katende, and Chapter VIII of the UN Charter. commended the meeting as having This notwithstanding, the communiqué been ‘very constructive’ and added, seems to shy away from spelling out ‘We believe that we, working together the corresponding burden that needs to with the Security Council, would be able be fairly shared for the maintenance of to make more achievement.’ peace and security. On efforts in the region, Ambassador Most notable in this regard is the shift Katende said that ‘we already said that from the emphasis of earlier years on the as Africa, there is a lot we put in place to need for predictable, sustainable funding resolve the conflict on the continent’ and, of AU peace operations, including by emphasising the need for partnership in

The joint press conference was a good addition, but the meeting didn’t address implementation of previous communiqués

the UN, to the current communiqués maintaining peace and security in Africa, emphasis on greater provision of he added, ‘We require further support financing by AU member states from the international community.’ and individual donor countries while While this joint press conference is reiterating that regional organisations a good addition, suggestive of the have the responsibility to secure their strengthening of the relationship own human, financial, logistical and other between the two sides, as with previous resources, including through member meetings this year’s consultative meeting contributions and support from partners. failed to address the issue of follow- It is not clear if this provision manifests up and implementation of previous the end of years of the AU’s consistent communiqués. This is an issue worth requests for predictable and sustainable considering in the next consultative funding, including through UN-assessed meeting of the two councils. contributions for peacekeeping. The 9th consultative meeting of the 2015 Apart from adopting the joint The 9th consultative members of the UNSC and AUPSC is communiqué, the conclusion of the meeting of the members scheduled to take place in Addis Ababa of the UNSC and AUPSC is 8th consultative meeting included for in 2015 at a time to be determined scheduled to take place the first time joint press briefing by through consultations between the in Addis Ababa the President of the UNSC and the Chairperson of the AUPSC and the Chairperson of the PSC. The UNSC President of the UNSC.

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PSC REPORT JULY - PROOF 5 SIGNOFF_REPRO_COLOUR.indd 14 2014/07/23 10:54 AM Notable dates for July 2014

3 July • Consideration and adoption of the provisional programme of work of the PSC for July 2014

• Finalisation of the draft declaration on the commemoration of the 10th anniversary of the PSC

9 July • Report on the activities of African Union/United Nations Hybrid operation in Darfur (UNAMID) in Darfur

• Post-mortem on 8th annual consultative meeting between the AU PSC and UNSC, and 7th annual consultative meeting between AU PSC and the European Union Political and Security Committee (EU PSC)

22 July • Report by Department of Social Affairs on the socio-economic and security challenges of drug trafficking and related organised crimes in West and Central Africa

24 July • Meeting of the PSC Committee on counter terrorism

• Adoption of the rules of procedure of the PSC Committee of Experts

28 July • The Chairperson’s Report on the Activities of the AU Mission in Mali and the Sahel is due for consideration by the PSC

• AU Strategy for the Sahel

29 July • Review of the working methods of the PSC

30 July • PSC chairs for March, April, May, June and July to report back to the Permanent Representatives Committee of the AU on the activities of the PSC during their respective months

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About the ISS ISS Pretoria The Institute for Security Studies is an African organisation which aims Block C, Brooklyn Court to enhance human security on the continent. It does independent and 361 Veale Street authoritative research, provides expert policy analysis and advice, and New Muckleneuk Pretoria, South Africa delivers practical training and technical assistance. Tel: +27 12 346 9500 Fax: +27 12 460 0998 Contributors to this issue [email protected] Solomon A Dersso, ISS Addis Ababa ISS Addis Ababa Hallelujah Lulie, ISS Addis Ababa 5th Floor, Get House Lydia Atmossa, ISS Addis Ababa Building, Africa Avenue Liesl Louw-Vaudran, Consultant to the PSC Report Addis Ababa, Ethiopia Tel: +251 11 515 6320 Fax: +251 11 515 6449 Contact [email protected] Solomon A. Dersso PSC Report Project Leader ISS Dakar ISS Addis Ababa 4th Floor, Immeuble Atryum Email : [email protected] Route de Ouakam Dakar, Senegal Tel: +221 33 860 3304/42 Acknowledgements Fax: +221 33 860 3343 [email protected]

ISS Nairobi Braeside Gardens, The publication of the PSC Report is made possible through the support of off Muthangari Road the Humanity United Foundation and the Hanns Seidel Stiftung. The ISS is Lavington, Nairobi, Kenya also grateful for the support of the following members of the ISS Partnership Tel: +254 20 266 7208 Forum: the governments of Australia, Canada, Denmark, Finland, Japan, Fax: +254 20 266 7198 Netherlands, Norway, Sweden and the USA. [email protected]

© 2014, Institute for Security Studies Copyright in the volume as a whole is vested in the Institute for Security Studies, and no part may be reproduced in whole or in part without the express permission, in writing, of both the authors and the publishers. The opinions expressed do not reflect those of the ISS, its trustees, members of the Advisory Council or donors. Authors contribute to ISS publications in their personal capacity. www.issafrica.org

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