SECURITY COUNCIL REPORT

2011 No. 2 10 May 2011 SPECIAL RESEARCH REPORT This report and links to all of the relevant documents are available on our website at www.securitycouncilreport.org Working Together for Peace and Security in Africa: The Security Council and the AU Peace and Security Council

TABLE OF CONTENTS 9. The AU PSC-UN Security This Special Research Report 1. Introduction...... 1 Council Relationship...... 23 responds to a growing interest in 2. Historical Context...... 3 10. Trying to Put Things in how to improve the joint efforts of 2.1 UN Chapter VIII Relationships...... 3 Perspective...... 26 both the UN Security Council and the AU Peace and Security Council 2.2 The AU Comes into Being...... 4 11. Council and Wider Dynamics....28 to prevent and end violent conflicts 3. The AU Structural Design...... 5 11.1 Political Perspectives from in Africa. For almost six years SCR 4. The AU’s Peace and Security the Past...... 28 has been analysing these efforts in System...... 6 11.2 Current Political Dynamics...... 30 country-specific situations and at 4.1 The PSC’s Structure and 12. The Way Ahead...... 32 the thematic level. But with the tenth Working Methods...... 6 13. UN Documents...... 33 anniversary of the AU inauguration 4.2 The Continental Early 14. AU Documents...... 37 just over a year away it seemed Warning System...... 7 Appendix...... 38 clear that the relationship still had 4.3 The Panel of the Wise...... 7 many problems and was very far 4.4 The African Standby Force away from realising its potential for being an effective partnership. In an (ASF)...... 8 1. Introduction effort to provide some detailed ana- 4.5 The Peace Fund...... 8 lytical tools for the parties, this 5. The UN-AU Relationship on Conflicts in Africa have occupied the report represents the beginning of Peace and Security...... 8 bulk of the Security Council time and an ongoing and detailed engage- 5.1 OAU-UN Relationship...... 8 energy for nearly two decades. During ment by SCR on this issue. 5.2 Early African Peacekeeping...... 9 its first 40 years, the Council estab- lished only one operation in Africa, the The preliminary conclusions from 5.3 Ten-year Capacity Building this report suggest that most of the Plan...... 9 UN Operation in the Congo in 1960. In necessary institutional steps are 6. The Evolution of the contrast, from 1989 to 2011, 25 opera- already in place, but given the Security Council’s tions were mandated for Africa, some resource constraints in the UN and Engagement with Africa...... 11 of them with a record degree of com- even more so in the AU, it is a mis- 6.1 Historical Background...... 11 plexity, and with several of them take to expect the secretariats to 6.2 The Relationship with the AU deployed simultaneously. bring about a real partnership. as a Council Agenda Item...... 14 Leadership by the member states The need for various forms of conflict 6.3 Key Council Decisions Related of both Councils will be key and prevention and management assis- to the Relationship with the AU....15 engagement needs to go beyond tance in Africa has surpassed the UN 6.4 The Cycle of Reporting...... 16 the brief and often symbolic visits capacity. The UN system has been 7. UN-AU Cooperation in to Addis Ababa and New York. coping with this situation with varying Peacekeeping...... 17 Investment of more time and mem- degree of success, mainly through ber state energy will be essential. A 7.1 Darfur...... 17 political and peacekeeping tools. UN number of possible options in this 7.2 Somalia...... 20 peacekeeping has been the most visi- regard are identified in this report. 8. The Evolution of the African ble tool and in some cases it has been Other possibilities including the Side’s Engagement with the very effective. By contrast, UN conflict role of the subregional bodies will Security Council...... 22 be examined in future reports.

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prevention and mediation efforts have Council, meeting for the first time at the consultations alternating between the been less visible and UN coordination level of heads of state and government, respective headquarters of the two of integrated programmes to address asked the Secretary-General to recom- bodies since 2007. the root causes of conflict even less mend ways to strengthen and make These meetings have so far focused on effective. It remains to be seen how the UN more efficient for preventive process rather than substance. They well the new peacebuilding architec- diplomacy, peacemaking and peace- have been marked by a degree of ture will perform. keeping. In response in June 1992, the tension in periods leading up to the Secretary-General issued his report An Peacekeeping operations have been meetings. It appears that there are a Agenda for Peace, where he highlighted severely stretched and slow in imple- number of outstanding issues between the role that regional organisations could menting mandates due to a variety of the two bodies: play in preventive diplomacy, early warn- factors including the high number of n The PSC is sometimes frustrated ing systems for crisis prevention, forces already deployed, poor working that the Security Council has not peacekeeping and post-conflict peace- methods in the Council to oversee and been responsive when it has sought building. Thus there emerged the manage integrated operations, the political support for preventive diplo- concept of global-regional partnerships global economic crisis and difficulties in macy and crisis management. in the maintenance of peace and security. generating and quickly deploying well- n PSC members also feel disappointed equipped troops and competent civilian However, this fragile architecture was that the Security Council has hesi- capacity. In this context and in the face put to a premature, and almost impos- tated to provide the degree of of massive human suffering in different sible test in the early 1990s, following practical and material support in the areas of the continent, finding improved the failures of UN operations in peacekeeping context that the PSC ways of meeting African peace and Somalia, Rwanda and Bosnia. In the has requested. security needs continues to be vital. following retreat from multilateralism n The PSC is perplexed by what it sees the major powers tended to abdicate as a lack of transparency, timely At the outset of the current century, leadership, leaving new crises in Africa access, and basic courtesy by the Africa strove to come up with its own largely in the hands of under resourced Security Council on procedural issues. system to address a broad spectrum of regional countries. n Security Council members are often matters, including peace and security, frustrated in their dealings with the by creating in 2002 the AU and, as part The re-emergence of support for UN AU by the AU’s lack of consistency on of its plans for what is referred to as the leadership at the end of the millennium some key issues of principle. “African Peace and Security Architec- came at a time when it was becoming n A tendency to expect the Council to ture”, almost two years later establishing clear that Africa was the place where a defer to the position of regional the AU PSC. partnership had the highest potential to organisations worries some Council make an impact but also the place A productive burden sharing between the members. Other Council members where the challenges were the greatest. UN and regional organisations (and sub- worry that regional groupings in The AU is still young and the global- regional organisations) could be key to some situations have difficulty being regional partnership concept between addressing many of the problems. The impartial and may be part of the the AU and the UN is also therefore rela- UN founders in 1945 foresaw the need for problem rather than the solution. tively new. It is still constantly evolving. future arrangements with regional organ- n The huge complexities of jointly An important and unique aspect of this isations and included this in the UN managing a hybrid UN/AU mission in relationship between the global organi- Charter Chapter VIII which acknowledges Darfur and the differences regarding sation and a regional one is that since the scope for contribution of regional the approach to Somalia where the 2007, the top security bodies of the two organisations to the settlement of dis- Council is reluctant to transform the organisations, the Security Council of putes. But it was not until the early 1990s AU operation into a UN peacekeep- the UN and the Peace and Security that Chapter VIII was given more focused ing mission, despite the Africans’ Council of the AU, have maintained attention. In January 1992 the Security repeated calls for such a transforma- regular contact, with annual joint tion, exacerbate the tensions.

2 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org n The colonial legacy of some Council Article 52 state, as defined in paragraph 2 of members is an additional underlying 1. Nothing in the present Charter pre- this Article, provided for pursuant factor complicating this relationship. cludes the existence of regional to Article 107 or in regional n The asymmetry between the arrangements or agencies for arrangements directed against organisations in terms of resources, dealing with such matters relating renewal of aggressive policy on particularly the financial and human to the maintenance of international the part of any such state, until resource challenges for the PSC in peace and security as are appro- such time as the Organization Addis Ababa, are also a major factor. priate for regional action provided may, on request of the Govern- The relationship between the respec- that such arrangements or agen- ments concerned, be charged tive AU and UN Councils may benefit cies and their activities are with the responsibility for prevent- from some innovative options as to consistent with the Purposes and ing further aggression by such ways to improve the working relation- Principles of the UN. a state. ship and interaction between the two 2. The Members of the UN entering 2. The term enemy state as used in bodies, and ultimately improve their into such arrangements or consti- paragraph 1 of this Article applies respective effectiveness and impact. tuting such agencies shall make to any state which during the Most of those involved—on both sides every effort to achieve pacific Second World War has been an of the relationship—have often been settlement of local disputes enemy of any signatory of the operating with limited resources. There through such regional arrange- present Charter. is a lack of familiarity in the UN with the ments or by such regional AU’s institutional design, its working agencies before referring them to Article 54 methods, practices and capacities and the Security Council. The Security Council shall at all vice versa. 3. The Security Council shall encour- times be kept fully informed of activi- age the development of pacific ties undertaken or in contemplation By undertaking the current study, Secu- settlement of local disputes under regional arrange­ments or by rity Council Report hopes to improve through such regional arrange- regional agencies for the mainte- the level of knowledge on all sides, to ments or by such regional nance of international peace explore some of the issues and options agencies either on the initiative of and security. and as a result to provide a resource for the states concerned or by refer- the practitioners of this relationship for The Charter clearly acknowledges the ence from the Security Council. the future. scope for regional organisations to add 4. This Article in no way impairs the value in the settlement of disputes, but application of Articles 34 and 35. Article 53(1) makes it clear that this is a capacity which is intended as a supple- Article 53 2. Historical Context ment to global capacity, not as a 1. The Security Council shall, where substitute. The Charter provides no pre- 2.1 UN Chapter VIII Relationships appropriate, utilize such regional cise definition of a regional organisation. During the negotiations of the UN Char- arrangements or agencies for Furthermore, the nature of arrange- ter a debate ensued over the place of enforcement action under its ments is not fully clarified and the regionalism in the new international authority. But no enforcement Charter leaves some ambiguity. Both design. The outcome was Chapter VIII action shall be taken under imprecisions were most likely deliber- on Regional Arrangements which is regional arrangements or by ate and allow flexibility for future reproduced below in full as it may be regional agencies without the understandings and arrangements. useful for the reader of this report to authorization of the Security have it as a handy reference. Council, with the exception of It was not until after the end of the cold measures against any enemy war that Chapter VIII relationships could be viewed in an impartial perspective

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and such relationships could be the providing technical advice to regional outcome was a presidential statement, focus of sustained attention by the UN. organisations that undertake peace- which among other things, supported In January 1992 the Security Council, keeping operations of their own; “the engagement of the UN in Africa meeting at the level of heads of state and n co-deployment, when the UN mis- through its diplomatic, peacekeeping, government, asked the Secretary- sions have been deployed in humanitarian, economic development General to recommend ways to conjunction with the missions of and other activities, which are often strengthen and make the UN more other organisations; and undertaken in cooperation with regional efficient for preventive diplomacy, n joint operations, where the staffing, and subregional organizations” and peacemaking and peacekeeping. In direction and financing of which are asked the Secretary-General to submit response, the Secretary-General issued shared between the UN and a a report with concrete recommenda- his report An Agenda for Peace in June regional organisation. tions “regarding the sources of conflict 1992, where, among many other pro- in Africa, ways to prevent and address Following the shift of emphasis by the posals, he highlighted the role that these conflicts, and how to lay the foun- major powers in the mid-1990s away regional organisations could play in pre- dation for durable peace and economic from the UN, there was a growth in ventive diplomacy, early warning growth following their resolution”. The involvement by regional organisations systems for crisis prevention, peace- Secretary-General released his report in different parts of the world. A number keeping and post-conflict peacebuilding. The causes of conflict and the promo- of resolutions adopted by the Council to tion of durable peace and sustainable Both the Security Council and the address the conflict in the Balkans and development in Africa in April 1998. General Assembly have subsequently the former Soviet Union involved adopted decisions acknowledging the arrangements with, respectively, Euro- That first ministerial-level debate marks importance of involving regional organ- pean regional organisations and NATO, the moment when the Council’s rela- isations in the global maintenance of and with the Conference on Security tionship with Africa acquired its peace and security and improving and Cooperation in Europe and the particularity, making it more intense coordination with the UN. Commonwealth of the Independent and sustained than the other Chapter States. On Haiti, several arrangements VIII relationships. The relationship has Starting in August 1994, the Secretary- were made with the Organisation of continued to expand in the current General began holding periodic American States. And in the September decade, especially since 2002, though, meetings with the heads of other 1993 resolution 866 creating the UN as pointed out in the Secretary- international organisations with compe- Observer Mission in Liberia, the Council General’s 2008 report (S/2008/186) on tence in the area of peacemaking and for the first time established an opera- the relationship between the UN and peacekeeping. In January 1995, in his tion that from the start was a junior regional organisations, “cooperation Supplement to the Agenda for Peace, partner to an already existing mission of continues to pose a challenge to the the Secretary-General provided an anal- another organisation, the Military UN, which is structured and funded to ysis of the various aspects of cooperation Observer Group of the Economic focus on its own operations rather than with such organisations. He identified Community of West African States those led by other groups, even when five forms of possible cooperation: (ECOWAS). such missions are encouraged or n consultation, with a purpose to authorized by the Security Council.” exchange views on conflicts that both While the Council continued simultane- the UN and the regional organisation ously to address conflicts in several 2.2 The AU Comes into Being may be trying to solve; parts of the world, from the mid-1990s In 1963, by which time a number of n diplomatic support, when the on, Africa began occupying more and African states gained independence, regional organisation participates in more Council time and attention. the first continental body was set up in the peacemaking activities of the UN Africa: the Organisation of African Unity In September 1997, by which time Africa and supports them by diplomatic ini- (OAU). With 32 initial members it grew to accounted for some 60 percent of tiatives or when the UN supports the 53 by the first part of the 21st century. A Council time, during US presidency, the regional organisation in its efforts; key factor uniting its members was the Council held its first ministerial-level n operational support by a regional fight for decolonisation and putting an debate on the situation in Africa. Its organisation for a UN or the UN

4 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org end to apartheid. With the progress in took place in Durban, South Africa in memberships. Some focus strictly on decolonisation and then the end of the July 2002. All African countries except economic and development activities, cold war, soon followed by the end of Morocco are members, totalling 53. but a few play critically important and apartheid, by the mid-1990s, several active roles in political activities on African leaders began to feel that the peace and security issues. Therefore it OAU became something of an anachro- 3. The AU Structural Design is useful to list the key ones here: nism and embarked on the process of n COMESA (The Common Market for laying the groundwork for the creation The institutional design of the AU and Eastern and Southern Africa) of a new continental African organisa- the different bodies’ schedule of meet- n ECOWAS (The Economic Commu- tion. The decision to establish the AU, ings, their respective working methods nity Of West African States) “in order to cope with those challenges and their linkages, are quite complex n IGAD (Intergovernmental Authority and to effectively address the new and therefore it may be useful to list for Development) social, political and economic realities here some of the AU’s key elements n SADC (Southern African Develop- in Africa and in the world” was adopted (some details for this section come from ment Community) at an OAU extraordinary summit held in materials and information provided by n EAC (The East African Community) Sirte, Libya in September 1999. the Institute for Security Studies’ office n ECCAS (Economic Community of in Addis Ababa). Central African States) Ten months later, the OAU heads of state n UMA (Union du Maghreb Arabe) and governments gathered in Lomé, The Union identifies five regions, dis- n CEN-SAD (The Community of Sahel- Togo, adopted the AU Constitutive Act. tributing its members as follows: Saharan States) Among the basic principles for the func- n Northern Africa: Algeria, Egypt, tioning of the new organisation were: Libya, Mauritania, Tunisia and Saha- The primary political body of the AU is n establishment of a common defence rawi Arab Democratic Republic the Assembly of Heads of State and policy for the African continent; n Western Africa: Benin, Burkina Faso, Government. It holds two meetings n peaceful resolution of conflicts among Cape Verde, Côte d’Ivoire, Gambia, (referred to as summits) a year, in Janu- member states of the Union through Ghana, Guinea, Guinea Bissau, Libe- ary and late June or July. It elects the such appropriate means as may be ria, Mali, Niger, Nigeria, Senegal, Chairperson of the AU, usually at the decided upon by the Assembly; Sierra Leone and Togo January session, for a period of twelve n prohibition of the use of force or threat n Central Africa: Burundi, Cameroon, months. Responsible to the Assembly to use force among member states of Central African Republic, Chad, is the Executive Council, composed of the Union; and Congo, Democratic Republic of all the member states’ foreign ministers. n non-interference by any member Congo, Equatorial Guinea, Gabon It also meets twice a year and the usual state in the internal affairs of another. and Sao Tome & Principe practice is that the summits are held n Eastern Africa: Comoros, Djibouti, immediately after the Executive Coun- But, importantly and in contrast with Eritrea, Ethiopia, Kenya, Madagascar, cil’s meetings. Charged with preparing its predecessor, the OAU, the AU Con- Mauritius, Rwanda, Seychelles, Soma- the work of the Executive Council stitutive Act also listed as one of the lia, Sudan, Tanzania and Uganda is the Permanent Representatives’ basic principles: n Southern Africa: Angola, Botswana, Committee, composed of permanent n the right of the Union to intervene Lesotho, Malawi, Mozambique, representatives of member states in a member state pursuant to a Namibia, South Africa, Swaziland, accredited to the AU (usually the decision of the Assembly in respect Zambia and Zimbabwe ambassadors to Ethiopia, residing in of grave circumstances, namely: Addis Ababa). It meets every month. war crimes, genocide and crimes An important aspect of the AU design is against humanity. the significance of the African Regional The AU body responsible for the main- Economic Communities and Mecha- tenance of continental peace and Members of the OAU agreed in 2001 on nisms, or RECs/REMs. They differ security is the Peace and Security a transitional process from OAU to the in structure, scope and intensity of Council. At the AU inaugural meeting in AU and the inaugural meeting of the AU activities. Some have overlapping Durban, the African leaders signed the

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“Protocol Relating to the Establishment The role of the secretariat of the AU regional basis: three from Central of the Peace and Security Council of the is performed by its Commission. The Africa; three from East Africa; two from AU” which came into force on 26 Commission is chaired by the Chair­ North Africa; three from Southern December 2003. The Protocol defines person, directly responsible to the Africa; and four from West Africa. Mem- the PSC as “a standing decision- Assembly (currently Jean Ping of bers are elected for three-year (five making organ for the prevention, Gabon), with the Deputy Chairperson members) or two-year (ten members) management and resolution of con- (currently Erastus Mwencha of Kenya) terms and can be re-elected immedi- flicts. The PSC shall be a collective primarily responsible for administration ately for another term. There are no security and early-warning arrange- and finance. The Commission consists permanent members and no veto. PSC ment to facilitate timely and efficient of eight thematic portfolios: Peace and chairmanship rotates on a monthly response to conflict and crisis situa- Security; Political Affairs; Trade and basis, in alphabetical order of the Eng- tions in Africa”. Industry; Infrastructure and Energy; lish-language names of member states. Social Affairs; Human Resources; Sci- (Please see the Appendix of this report Its objectives, according to Article 3 of ence and Technology; Rural Economy for more details on PSC membership.) the Protocol include: and Agriculture; and Economic Affairs. n promote peace, security and stability Under ordinary circumstances, the The different portfolios are supported in Africa; PSC is required to meet a minimum of by their respective departments. n anticipate and prevent conflicts and two times a month at ambassadorial where conflicts have occurred, level. (In practice, according to an undertake peace-making and peace- unpublished AU study, since 2006 it building functions for the resolution 4. The AU’s Peace and has been meeting at least five times a of these conflicts; Security System month.) The agenda is based on the n promote and implement peace-build- The founders of the AU designed an assessment of ongoing conflict and cri- ing and post-conflict reconstruction ambitious structure of interlocking bod- sis situations, and the assessment can activities to consolidate peace and ies and mechanisms aimed at conflict be initiated by any member or by the prevent the resurgence of violence; prevention, resolution and manage- Commissioner for Peace and Security, n co-ordinate and harmonise continen- ment and post-conflict reconstruction. in consultations with the Chair. Accord- tal efforts in the prevention and Its principal building blocks are the ing to the PSC Rule of Procedure, “The combating of international terrorism PSC, the Continental Early Warning inclusion of any item in the provisional in all its aspects; System, the Panel of the Wise, the agenda may not be opposed by a n develop a common defence policy African Standby Force and the Member State”. The rules foresee the for the Union, in accordance with arti- Peace Fund. following types of meetings and their cle 4(d) of the Constitutive Act; and respective participants: n promote and encourage democratic With the AU being still in its first decade, n closed meetings; and practices, good governance and the the different mechanisms are currently n open meetings to which the PSC may rule of law, protect human rights and at different stages of being operation- invite to participate, “without a right to fundamental freedoms, respect for alised. We will describe each of them vote, in the discussion under its con- the sanctity of human life and interna- briefly, with most attention given to the sideration: tional humanitarian law, as part of PSC and the Continental Early Warning (a) any member State of the AU, efforts for preventing conflicts. System, as the most developed and which is not a member of the Council, active, as well as the most relevant to when the interests of that Member The Protocol also stipulates that “The the main focus of this report. States are specifically affected, or Peace and Security Council shall be when a Member State brings to the supported by the Commission, a Panel 4.1 The PSC’s Structure and attention of the Council a matter that of the Wise, a Continental Early Warn- Working Methods threatens national or regional peace ing System, an African Standby Force The PSC is the AU’s standing decision- and security; and and a Special Fund.” making body. It has 15 members, (b) any Regional Mechanism, interna- elected by the AU Executive Council on tional organization or civil society

6 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org organization, which is involved and / directly through appropriate means of n in depth early warning reports for or interested in a conflict or situation communications to the Situation Room. decision makers, by conflict preven- related to the discussion under con- The CEWS is responsible for data col- tion experts of the Peace and Security sideration by the Council.” lection and analysis and is mandated to Department, containing analysis, collaborate with “the UN, its agencies, scenarios and options. Any AU member state invited to partici- other relevant international organiza- pate in the discussions of the Council 4.3 The Panel of the Wise tions, research centres, academic may submit, through a member of the Article 11 of the Protocol establishing institutions and NGOs” with its informa- Council, proposals and propose draft the PSC sets up a five-person panel of tion to be used by the Chairperson of decisions for consideration. The rules “highly respected African personalities the Commission ”timeously to advise also say that the Council may invite the from various segments of society who the Peace and Security Council on media to attend its open meetings. have made outstanding contributions potential conflicts and threats to peace to the cause of peace, security and Informal consultations are also possi- and security in Africa and recommend development on the continent” with a ble, under Rule 16, which reads: “The the best course of action.” task “to support the efforts of the Peace Council may hold informal consulta- Until 2007 the “Situation Room” was and Security Council and those of tions with parties concerned by or essentially just a name used for the the Chairperson of the Commission, interested in a conflict or a situation communication centre of the AU. How- particularly in the area of conflict pre- under its consideration, as well as with ever, considerable progress has been vention.” It reports to the PSC and Regional Mechanisms, international achieved since its operational frame- through it, to the Assembly. Members organizations and civil society organi- work was elaborated in December are selected by the Chairperson of the zations as may be needed for the 2006. The Situation Room now oper- AU Commission and appointed through discharge of its responsibilities.” ates on a 24-7 basis, with ten staffers a decision of the Assembly for three- Most PSC meetings are held at the AU working in around the clock shifts. year renewable once terms. The headquarters in Addis Ababa, but the CEWS has 11 field missions on the con- Protocol states that the Panel, at the PSC has the option of choosing other tinent that can provide primary request of the PSC or its own initiative venues. A detailed compendium cap- information. It also continuously moni- “shall undertake such action deemed turing the (still evolving) working tors news and collects data from appropriate to support the efforts of the methods of the PSC is contained in the member states and the RECs. However, Peace and Security Council and those “Conclusions of the Retreat of the not all components of this system yet of the Chairperson of the Commission Peace and Security Council of the AU, function adequately. Some have yet to for the prevention of conflicts”. Dakar, (Senegal) 5-6 July 2007 (PSC/ be fully developed and integrated. Col- The first Panel was appointed in PR/2(LXXXV)). lected data is processed by Early December 2007 and composed of Warning Officers and Analysts and Ahmed Ben Bella of Algeria, who 4.2 The Continental Early CEWS provides a variety of products to served as chair, Salim Ahmed Salim of Warning System different actors, both internal and exter- Tanzania, Elisabeth K. Pognon of As one of the tools for the PSC, meant nal. They include: “to facilitate the anticipation and pre- Benin, Miguel Trovoada of Sao Tome n daily news highlights based on open and Principe, and Brigalia Bam of vention of conflicts” its Protocol (in media sources and circulated by South Africa. At the July 2010 Summit Article 12) establishes the Continental email internally and to some 2000 in Kampala, Ben Bella and Ahmed Early Warning System (CEWS). The external subscribers, including all Salim were reappointed for another design, according to the Protocol, con- RECs; sists of an observation and monitoring term ending in December 2013 and n a variety of internal reports, such as three new members were appointed: centre known as the Situation Room daily and weekly email bulletins as Mary Chinery Hesse of Ghana; Ken- and located at the Commission’s Con- well as incident reports and flash neth Kaunda of Zambia; and Marie flict Management Directorate and reports (a text message version of Madeleine Kalala-Ngoy of the Demo- observation and monitoring units of the internal alerts has also been devel- cratic Republic of the Congo. Regional Mechanisms to be linked oped); and

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At the time of writing, the Panel appears missions decided on by the Peace and evaluation report into the ASF Roadmap to still remain at an early stage of devel- Security Council or intervention autho- which will define the actual require- opment. It has held several seminars rized by the Assembly.” ments for operationalising the ASF by and undertaken a number of missions 2015. At the time of writing, the UN and The components of the ASF are to be aimed at developing confidence-build- other partners are supporting the AU to provided by member states and to be ing measures. It has also been helping fine-tune its draft Roadmap. The UN will prepared and trained by the different the AU Commission in mapping out work with the AU to develop a joint work RECs. To date, the ASF has been largely threats to peace and security by provid- plan for the implementation of the ASF in the planning and development ing regular advice and analysis and Roadmap when it is endorsed. Plans for phase, and the degree of advancement requesting the Commission to deploy another round of exercise, Amani Africa of this process differs sharply from fact-finding or mediation teams to spe- II, are currently underway. region to region. There are discrepan- cific countries. It has also produced cies in the strengths and features of 4.5 The Peace Fund some thematic reports on issues rele- military capabilities between the differ- The Peace Fund, envisaged in the PSC vant to peace and security such as ent member states and RECs. An Protocol “in order to provide the neces- non-impunity, women and children in additional complication is the fact that sary financial resources for peace armed conflicts and electoral disputes. given the differences between the indi- support missions and other operational But its role in helping to handle emerg- vidual RECs in the level of advancement activities related to peace and security” ing threats or unfolding crises on the of their standby capacity, some of them is probably the weakest of the building continent has so far been quite limited. are actually ahead of the AU and tend blocks of the peace and security archi- Part of the explanation may be that towards working via their regional tecture. Meant as a standing reserve to while its existence is included in the arrangement. call upon in case of emergencies, in PSC Protocol, its funding at this stage is 2009, according to an unpublished AU not part of the regular budget. Its mem- While the ASF is probably still a number study, the fund had a negative balance. bers are based in their respective of years away from being operational, The AU has recently tightened the man- countries, and some of them have other some progress has been achieved. agement of the fund and plans are jobs and commitments. From 13 to 29 October 2010 for exam- currently underway to devise a system ple, with support from the UN and the 4.4. The African Standby Force for resource mobilisation. Furthermore, EU, a simulation exercise labelled (ASF) the Commission was asked by the “Amani Africa” was held to test at head- In order to facilitate the PSC’s perfor- August 2009 Special Session of the AU quarters and general staff levels the mance of its responsibilities with “to take the necessary preparatory preparedness of the ASF for an AU-led respect to intervention under grave cir- steps for the increase of the statutory peace mission. It involved virtual sce- cumstances envisaged in Article 4(h) of transfer from the AU regular budget narios and computer simulations and the AU Constitutive Act as well as to per- to the Peace Fund from six percent to was held in two separate locations in form its responsibilities with respect to 12 percent”. Addis Ababa (one functioning as mis- deployment of peace support missions, sion headquarters and another one as the PSC Protocol envisages the cre- strategic headquarters). It provided ation of the ASF. Article 13 of the opportunities for stock taking and refin- 5. The UN-AU Relationship Protocol stipulates, “Such Force shall ing the concept of the ASF. At the end of on Peace and Security be composed of standby multidisci- the Amani Africa exercise in October plinary contingents, with civilian and 5.1 OAU-UN Relationship 2010 an evaluation report outlining military components in their countries The relationship between the UN and gaps in peace support operations plan- of origin and ready for rapid deploy- the African continental organisation ning and management was submitted ment at appropriate notice. For that dates back to 1965 when the UN to the AU Commission for consider- purpose, the Member States shall take Secretary-General U Thant and the ation. In February 2011, a workshop on steps to establish standby contingents OAU Administrative Secretary-General Amani Africa was held in Dakar, Sene- for participation in peace support Diallo Telli signed a Cooperation Agree- gal to incorporate the findings of the ment with the OAU. It was a treaty

8 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org covering areas such as mutual consul- But the issue of resources remained a donor countries should commit to a tations, reciprocal representation, key factor and led to a practice which ten-year process of sustained capacity- exchange of information and documen- began in 1999 (with Sierra Leone) of ini- building support, within the AU strategic tation, and cooperation between tial African peacekeeping involvement framework. The Secretary-General, in secretariats and assistance in staffing. followed by a hand off to the UN. turn, in his In Larger Freedom report emphasised the strategic importance— 5.2 Early African Peacekeeping Out of the total eight African initiated for UN’s own peace and security As the cold war came to an end it peacekeeping interventions since the efforts—of establishing an interlocking became clear that Africa would become end of the cold war, four have eventually system of peacekeeping capacities. In the focus of significant new peacekeep- been succeeded by UN-led peace- this context he recognised the efforts ing requirements. Initially the UN took keeping missions and one in Darfur is undertaken by the AU to build a new the lead and major peacekeeping oper- currently led jointly. These operations peace and security architecture and ations were established in Angola and have been in: Liberia (initially by recommended developing and Mozambique and then subsequently in ECOWAS and succeeded in 2003 by implementing a ten-year plan for capac- Somalia and Rwanda. But the commit- the UN Observer Mission in Liberia, ity-building with the AU. The world ment of the global organisation was UNOMIL); Sierra Leone (succeeded by leaders endorsed this idea during their patchy. There was an abdication of the the UN Mission in Sierra Leone in 1999); September 2005 Summit. emerging problems in West Africa, Côte d’Ivoire (2003-2004, succeeded in leaving the subregional organisation, 2004 by the UN Mission in Côte d’Ivoire, On 16 November 2006 the then ECOWAS, to bear the brunt of the UNOCI); Burundi (2003-2004, suc- Chairperson of the African Commis­sion, peacekeeping responsibility in Liberia ceeded in 2004 by the UN Operation in Alpha Oumar Konaré, and UN (1990-1996). And, after the failures in Burundi, BONUB); and Darfur (2004- Secretary-General Kofi Annan signed a Somalia and Rwanda, this tendency 2007, succeeded by the UN-AU Hybrid joint Declaration (A/61/630) on the was reinforced when the major powers Operation, UNAMID). The three cases enhancement of the UN-AU cooperation, seemed generally to prefer to let local in which the AU presence was not fol- known as the Ten-Year Capacity Building players do their own peacekeeping. lowed by a UN peacekeeping operation Programme for the AU. It was conceived Again ECOWAS had to take the lead in are in Guinea-Bissau (1999), Comoros as an evolving strategic framework for Sierra Leone in 1997. Burundi was (2008) and AMISOM in Somalia (2007 UN cooperation with the AU and the another such case. The Security to date). regional economic communities. The Council had been involved in conflict areas to be covered were: institution- 5.3 Ten-year Capacity prevention in Burundi in the early 1990s building; human resources development Building Plan but it was left to local leadership (essen- and financial management; human On the UN side, at the outset of the 21st tially South Africa) when the need for rights; political, legal and electoral mat- Century, it became clear that Africa peacekeeping emerged. A similar pat- ters; social, economic, cultural and would not only be a key focus of UN tern emerged in Côte d’Ivoire. human development; food security; envi- efforts on peace and security but that in ronmental protection; and not least, By the time the mood changed in the order to address the challenges its con- peace and security. Security Council at the end of the mil- tinental organisation needed the global lennium, and when there was a new organisation as a key partner. Estab- One of the early steps in implementing willingness to entertain a major UN role, lished in 2003, Kofi Annan’s High-Level this programme was the establishment, African countries had already demon- Panel on Threats, Challenges and with the approval of the General Assem- strated willingness albeit with very Change clearly appreciated the impor- bly, of the AU Peacekeeping Support limited capacity, to step into the vac- tance of the relationship. It travelled to Team, within the Department of Peace- uum. No doubt this experience played the AU headquarters in Addis Ababa to keeping Operations. It became an important role in building the confi- meet on 30 April 2004 with the Commis- operational in January 2007, providing dence in the region to contemplate sion of the AU. In its final report in expertise and transfer of technical including robust provisions in the AU December 2004, it recommended that knowledge to the AU Peace Support Charter for intervention. Operations Division.

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Later in 2007, the General Assembly On the peace and security matters, two very different bureaucracies would adopted resolution 61/296 on Coopera- from the UN side sources describe frus- be a challenge under any circum- tion between the UN and the AU. It tration about the lack of clarity as to the stances. In the AU-UN case, an requested the UN system to intensify its channels of interaction and proper additional significant feature is the fact assistance to the AU, especially in terms counterparts on the AU side. Another that the two respective leaders of the of operationalising its Peace and Secu- problem raised when describing their organisations, Alpha Oumar Konaré rity Council and specifically asked for interaction with the AU was the blurred and Kofi Annan who were personally intensified cooperation between the line between developing capacity and invested in developing the two organi- Security Council and the PSC. actually providing or being the capacity. sations’ relationship, each left office (A difficulty seems to be that staffing on relatively soon after the November Also in 2007, the Security Council the AU side is often so diminished 2006 signing of the agreement (Annan Affairs Division of the DPA ran two train- that it is difficult to take full advantage of left office as of January 2007; Konaré in ing programmes for the secretariat of UN capacity-building contributions.) A February 2008). The new leadership on the AU’s PSC, focusing on the working related problem appears to have been each side had been addressing a vari- methods of the UN Security Council. the fact that UN experts in practice ety of issues of interest to their own Furthermore, in this period the UN sec- seem to focus on delivering projects organisation and it seems that strategic onded a staff member to provide rather than building AU capacity. focus was lost for a period. It is impor- support for the AU’s Panel of the Wise. tant to note, however, that some The AU sources said that there was not Since 2008, the UN Secretariat and the significant steps to address the prob- enough outreach from the UN regard- AU Commission have progressively lems identified in the 2011 report had ing matching the AU needs with UN enhanced interaction, with regular con- been taken shortly before the report potential for the capacity-building con- sultative meetings. Desk-to-desk was published. tributions. As one person put it, “the UN contacts have been fostered along with agencies just did what they felt was On the AU side in July and August visits by AU officials to UN headquar- right, without much consultation”. 2010, a senior policy officer within the ters and to its logistics bases in Brindisi office of the Deputy Chairperson of the and Entebbe. Writing nearly halfway through the ten- Commission was made a focal point year period, in his 2 February 2011 Outside of the peace and security area, for the ten-year capacity-building pro- report, the Secretary-General acknowl- other capacity-building activities of dif- gramme and at the time of writing of edged problems in the implementation fering scale and duration were grouped this report, work was underway to of the programme. Prominent among in several clusters—infrastructure elaborate a strategic program with tar- them were the multiplicity of actors on development; governance; agriculture, gets and create a coherent system of both sides and a lack of strategic vision food security and rural development; interdepartmental information and for the programme, also on both sides. environment, population and urbanisa- collaboration in the context of the ten- A related issue pointed out by the tion; social and human development; year programme. Secretary-General was the divergence achievements of science and technol- of views among the stakeholders as to On the UN side, on 1 July 2010, the ogy; advocacy and communications; what constitutes “capacity-building” in General Assembly decided to consoli- industry, trade and market access— the context of the programme. date and upgrade the UN’s interface and implemented by literally dozens of with the AU by creating the UN Office to UN departments, agencies and The lack of a strategic approach to a the AU (UNOAU), headed by an Assis- programmes. Most of the sources inter- process that was meant to be a “strate- tant Secretary-General. As outlined in a viewed for this report were largely gic framework” and the evidently letter from the Secretary-General to the critical of the cluster approach, citing chaotic first stage of the implementa- Security Council (S/2010/433), the among other difficulties, the resulting tion of the ten-year programme is not Office integrates the peace and secu- territorialisation of the UN bureaucracy hard to understand given the well- rity presences in Addis Ababa: the UN and the lack of comprehensive out- known difficulty of harmonising policy Liaison Office, the AU Peace and Sup- reach to the recipients of the assistance with both organisations. Adding to that, port Team, the UN Planning Team for about the existing opportunities. the need to build cooperation between

10 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org the AU Mission in Somalia and the created new opportunities for Africa in 1994-95) highlighting the need for a administrative functions of the Joint and brought tremendous progress, comprehensive approach to conflicts in Support and Coordination Mechanism most notable among them the end of Africa, with conflict prevention being of the AU-UN Hybrid Operation in Dar- apartheid, some led to the eruption of one of its features. (S/1997/730) fur. Distinguished Kenyan diplomat bloody conflicts in different parts of The Chairman and the Secretary- (and at the time of his appointment his Africa. The Security Council strove to General of the Organisation of African country’s permanent representative in respond to some of those conflicts, with Unity (respectively, Zimbabwean Presi- New York) Zachary Muburi-Muita was a degree of success in Mozambique dent Robert Mugabe and Salim Ahmed chosen as its head and took over his and Angola, but also experienced stun- Salim of Tanzania) were invited to post in October (in March 2011 he was ning failure as in the cases of Somalia address the Council during the 25 Sep- given the title of Special Representative and Rwanda. tember 1997 ministerial debate. Several of the Secretary-General). The office Peacekeeping had been the Council’s important themes were articulated in was formally inaugurated on 22 Febru- key tool to address the new conflict this debate, among them: ary 2011. At the time of writing of this situations in Africa, but the failures in n the particularity of Africa on the report, UNOAU was still struggling with Rwanda and Somalia (along with the Council agenda and the resulting multiple issues largely caused by the failure in Bosnia) contributed to the need to take a more focussed UN’s internal challenges related to Council’s considerably more reluctant approach coupled with a stronger hiring procedures, as well as a highly attitude towards establishing new interaction with Africa’s regional and problematic physical location of the operations in the mid and late 1990s. subregional bodies; majority of its staff (far away from the And they also to considerable extent n the role of conflict prevention among AU headquarters and UN headquarters sparked what was to become a new Council’s tools in addressing threats in Addis Ababa, with its staff being track in the Council’s activities: a the- to international peace and security; split between two locations). However, matic approach to peace and security and numerous sources interviewed for this and a preference for devolving peace n the need for developing approaches report stressed that even at this early and security operations to coalitions or that would allow for post-conflict stage of its existence, UNOAU was regional organisations. peace consolidation. making interacting with the UN consid- erably easier for the AU partners. In September 1997, the US as president In a presidential statement (S/PRST/­ of the Council, placed a new item on the 1997/46) adopted at the end of the Council agenda, “The situation in debate, the Council stressed the need 6. The Evolution of the Africa,” and taking advantage of the for a more concerted international effort Security Council’s customary presence in New York of to promote peace and security in Africa Engagement with Africa high-level officials attending the General and acknowledging itself, it needed to Assembly, organised a ministerial-level be able to come up with a more com- 6.1 Historical Background debate. The debate was presided over prehensive response to the challenges The end of the cold war changed dra- by US Secretary of State Madeleine in Africa. It asked the Secretary-General matically the dynamics in international Albright who until earlier that year had to submit a report with concrete recom- relations. At the outset of the 1990s the been the country’s ambassador to the mendations “regarding the sources of Security Council, having for decades UN and was intimately familiar with both conflict in Africa, ways to prevent and been largely paralysed, underwent a the range of the problems facing the address these conflicts, and how to lay period of unprecedented (and Council and the need for new the foundation for durable peace and unmatched since) activity. The key approaches for the Council to cope with economic growth following their resolu- impact of the end of the cold war on the the mounting demands on its time and tion”. The Council acknowledged that African continent was the end of the two resources. As a background paper for the scope of the report could go beyond systems’ respective spheres of influ- the discussion the Council used a letter its own purview and asked that ence and of its resulting containment of from the foreign minister of Argentina (a the report also be submitted to the local issues. While some of the transfor- country that had served on the Council General Assembly. mations that occurred in the early 1990s

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The statement furthermore welcomed regional or subregional organisa- organisations, or by member states the efforts of the OAU and those of the tions planning or carrying out or coalitions of states, can be an subregional bodies in preventing and peacekeeping activities to ensure effective response to conflict situa- resolving conflict in Africa and said that that the Council is fully informed of tions, pointed out to the variety of it looked forward “to a stronger partner- such activities and underlined that possible arrangements and relation- ship between the UN and the OAU, as holding of regular briefing meetings ships that have developed in different well as subregional arrangements, in between members of the Council instances of cooperation between conformity with Chapter VIII of the Char- and African regional and subregional the UN, member states and regional ter of the UN.” organisations involved in peace- and subregional organisations in the keeping had an important role to play maintenance of peace and security, The Secretary-General released his in helping enhance African peace- and stressed the need for ensuring report The causes of conflict and the keeping capacity. proper ongoing monitoring of opera- promotion of durable peace and sustain- n Resolution 1197 of 18 September tions authorised by the Council or able development in Africa in April 1998 1998 invoking Chapter VIII of the co-deployed with a Council-man- (S/1998/318). What followed was an Charter, focused on the strengthen- dated operation. intense period of Council work on Africa. ing of coordination between the UN In order to review the recommendations In the next few years, most Council and the OAU and the African subre- in the report the Council, through resolu- decisions on Africa related to specific gional bodies. tion 1170, established an ad hoc working situations, but the Council continued to n Presidential statement 1998/29 of group. (It was initially set up for six periodically consider Africa also in a 24 September 1998 took stock of months but appeared to be active till the comprehensive or thematic way. In Council’s Africa-focused work in the end of the year. Its chair was Ambassa- accordance with its presidential state- period following the release of the dor Denis Dangue Rewaka of Gabon.) In ment 1998/29 the Council held Secretary-General’s report, asked its turn, based on the recommendations of ministerial-level debates in 1999 and in working group to continue its work the working group the Council adopted 2002, and at the time of the Millennium and “recognizing that the challenge four resolutions and three presidential Summit in September 2000, during Mali of achieving peace and security in statements from September to Novem- presidency of the Security Council, it Africa is a continuous process” said it ber 1998. They addressed a broad held a heads of state and government “will continue to assess progress in range of issues: level debate on “ensuring an effective promoting peace and security in n Resolution 1196 of 16 September role of the Security Council in the main- Africa at the level of Foreign Minis- 1998 focused on the implementation tenance of international peace and ters, on a biennial basis”. of arms embargoes in Africa and security, particularly in Africa”. The n Resolution 1208 of 19 November among other things, encouraged meeting adopted resolution 1318 focus- 1998 focused specifically on address- chairmen of its relevant sanctions ing primarily on peacekeeping and ing the issue of refugees in Africa. committees to establish channels of peacebuilding as a means of address- n Resolution 1209 of 19 November communication with the African ing challenges to peace and security in 1998 focused on combating the illicit regional and subregional organisa- Africa and called for strengthening arms trade and flows in Africa and tions and bodies. Chapter VIII arrangements, particularly among other things, called on the n Presidential statement 1998/28 of 16 in respect of peacekeeping operations African regional and subregional September 1998 identified as a prior- and Africa. Several open debates were bodies to establish mechanisms and ity the need for strengthening also held, with some—for example the regional networks for information through capacity building and train- 29-30 September 1999 ministerial-level sharing to curb the circulation and ing Africa’s ability to participate in debate chaired by the Netherlands— trafficking in small arms. peacekeeping and called for illustrating very high interest on the part n Presidential statement 1998/35 of increased interaction with the OAU of member states at large (this debate 30 November 1998 recognised that and subregional organisations. It lasted a total of 12 hours and in addition the authorisation by the Council of also stressed the need for the to the Council members, had 35 mem- action by regional or subregional ber states speaking).

12 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org It is interesting to take a closer look at Council would consider establishing an was also suggested that “the Working Africa-related Security Council activi- ad hoc working group to monitor the Group could facilitate periodic interac- ties during 2002, the year of the implementation of recommendations tion and dialogue between the Council launching of the AU, as it illustrates stra- made during the meeting. Thus was and the OAU and that there could be tegic thinking on the part of the main born the ad hoc Working Group on regular exchanges of early warning actors. It also allows us to trace several Conflict Prevention and Resolution in information between the Working of the themes that have been running Africa (the Working Group) which has Group and OAU”. through the Council relationship with been in existence until today and at In July, incidentally, the month of the the African organisation. least initially played a critical role in the inauguration of the AU, a debate was development of the institutional rela- Holding presidency of the Council in organised under UK presidency of the tionship between the two. Its terms of January, Mauritius organised an open Council on lessons learned by the reference were contained in a note from debate on the “Situation in Africa”, with Council from Sierra Leone and their the President of the Security Council of a focus on the UN relationship with the implications for Council’s work in the 1 March 2002. Mauritius was made its continental organisation (it is important Mano River region of West Africa. The chair and part of the Working Group’s to note that at that point the transition event took form of an interactive work- mandate was “To propose recommen- from the OAU to the AU was imminent). shop with the participation of several dations to the Security Council to In a background note (S/2002/46), the key Secretariat officials and representa- enhance cooperation in conflict preven- country’s ambassador, Jagdish Koon- tives of the AU and some of the tion and resolution, between the UN jul, pointed out to the fact that although subregional bodies. Among many and regional (OAU) and subregional the Council had been busy with Africa, points made was the need for the organizations.” The note also said that dealing with nearly every conflict situa- Council’s close cooperation with the AU the chairman of the Working Group tion, it was not getting the desired in addressing specific situations in would report to the Council whenever results. He stressed the need for UN Africa. The meeting was chaired by UK appropriate. (S/2002/207) and OAU actions to complement each Parliamentary Under Secretary of other, suggested that the Security In May, Singapore, during its presi- State for Foreign and Commonwealth Council develop a closer relationship dency, organised an open debate on Affairs Valerie Amos (recently appointed with the African body and proposed “The Situation in Africa” with the subtitle as UN Under-Secretary-General for that the Council revisit the issues in the “Ad hoc Working Group on Conflict Humanitarian Affairs and Emergency presence of the Secretary-General of Prevention and Resolution in Africa” Relief Coordinator). the OAU. featuring a briefing by the Working The Working Group remained very Group’s chair. Singapore’s foreign The meeting on 29 and 30 January was active through the end of 2002, putting minister, S. Jayakumar, chaired the chaired by the country’s Foreign Minis- forward a number of recommendations debate and at the end of the discussion ter Anil Gayan and counted with and initiatives (some of which will provided, on his own responsibility, an participation of 28 members at large; be described in the section on extensive summary of the main points several foreign ministers and deputy PSC-SC relationship). made. The summary was subsequently foreign ministers participated in the circulated as annex to a note from the In the years since 2003, the level of debate. (It was also the first time that a president of the Council. (S/2002/607) activity of the Working Group dimin- Security Council meeting was webcast Among the recommendations for the ished. Some of the chairs used the post live.). The meeting resulted in the adop- Working Group was that it “be more quite strategically, for example by com- tion of a presidential statement (S/ proactive and experiment with innova- bining the chairmanship with their PRST/2002/2) outlining a series of mea- tive measures” in contrast to the Council Council presidency in order to organise sures and recommendations aimed at “which tends to be more formal and a major Council event on Africa. The preventing conflict in Africa and calling more reactive” and that it conduct les- Working Group chairs have organised on the UN system to intensify its coop- sons learned exercises from its some events specifically focused on the eration with the African continental experiences in tackling African issues. It relationship with the AU, for example the organisation. It also stated that the

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2005 policy forum whose conclusions Spain, the Council was briefed on these topics. (According to a 14 Octo- fed into the elaboration of resolution Darfur by Nigeria’s President Olusegun ber 2010 Secretary-General’s report on 1625 adopted during the 2005 Summit Obasanjo in his capacity as Chair of the support for AU peacekeeping, over the (and discussed in more detail later on), AU. In November, the Council held in past year, AU officials have briefed the the 2005 seminar on the relationship of Nairobi, Kenya, one of its very rare for- Security Council on 15 occasions on the UN with the African regional bodies mal meetings away from headquarters various issues, including the Central in the field of peace and security, or the and devoted one segment of that ses- African Republic, Guinea-Bissau, 2010 panel on the UN-AU partnership sion to its relationship with the AU and Somalia and the Sudan, as well as traf- on security sector reform. In at least one heard from a representative of the chair- ficking in illicit drugs in Africa and case (2008) the chair of the Working manship of the AU. In 2006, during post-conflict reconstruction.) Group represented the Security Coun- Congolese presidency of the Council, 6.2 The Relationship with the AU cil at a PSC meeting in Addis Ababa. To speaking in his capacity as the Chair- as a Council Agenda Item date, the chairmanship was held by man of the AU, Congolese President The relationship with the AU has come Mauritius (2002); Angola (2003-2004); Sassou Nguesso gave a briefing on up at the Council under several agenda Benin (2005); Congo (2006-2007); aspects of the AU-UN partnership. Top items, including “The role of regional South Africa (2008); Uganda (2009- officials of the AU, including its Com- and subregional organizations in the 2010); and in 2011 it is again held by missioner for Peace and Security, have maintenance of international peace and South Africa. But it is fair to say that in since been regularly invited to address security” and “Peace and security in general the level of interest by the Coun- the Council during thematic debates on Africa,” an agenda item added in Sep- cil as a whole in using the Working institutional relations with regional tember 2007 prior to the heads of state Group effectively was quite low during organisations or on Africa. and government level meeting chaired most of the last decade, although there Almost from the start, peacekeeping by France’s President Nicolas Sarkozy. are some signs that South Africa is emerged as an important discreet mat- The only AU-specific current item on the currently determined to reenergise it. ter within the overall relationship Council “seizure list” is “Briefing by the It appears that following the launch of between the UN and the AU. In 2004, Chairman of the AU”, added to the the AU, initially there was something of a the UN succeeded African-led opera- agenda in May 2006 during Congo’s lull in the intensity of Council discus- tions in Cote d’Ivoire and Burundi. And presidency. No other meetings were sions of institutional relationship following the 28 May Addis Ababa held under this item since that date, but specifically between the AU and the UN. agreement that included the deploy- it has been retained on the list. External factors, such as increased ment of an AU observer mission in Specific situations in Africa where AU attention to other parts of the world, Darfur, the Council in its subsequent representatives have been frequent par- especially Iraq and Afghanistan, prob- decisions on the topic would express its ticipants, have been discussed under ably played a role. But for example, support for the AU and call on the inter- the respective agenda items, usually when the Council was holding a debate national community to support the AU’s dedicated to each situation. It is worth on the overall relationship with regional efforts in Darfur and eventually estab- noting, however, that the thematic item organisations during the Mexican presi- lish a joint “hybrid” operation. Starting “Peace and security in Africa” has dency in April 2003, a representative of in 2007, the Council has also authorised repeatedly been used to address a vari- the presidency of the AU was invited to the mandate of and subsequently a UN ety of country-specific developments address the Council. financed support package for the AU and crisis situations (for example Kenya, Mission in Somalia. (The peacekeeping In 2004, soon after the AU PSC became Guinea, Djibouti/Eritrea and Libya). efforts in Darfur and those to support operational, some important events AMISOM are described in more detail Interestingly, in 2004, during the US took place that brought the specific later). AU senior representatives, most presidency in November, a specific item AU-UN institutional relationship back notably its Commissioner for Peace and was added to the Council agenda: into focus. In September, in a meeting Security have regularly been involved in “Institutional relationship with the AU” presided over by the foreign minister of substantive Council discussions on (S/Agenda/5084) and a meeting on this

14 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org subject was held as one of the rare Act of the AU and recognised the need would be challenging. Indeed, in the Council formal sessions away from for the UN to develop partnerships with period after its adoption, resolution headquarters, in Nairobi, Kenya. The the AU and its subregional organisa- 1625 was invoked infrequently either by item was removed from the list of items tions to enable early responses to the Council or by the Secretary- the Council is seized within 2009 (it was disputes and emerging conflicts. It General. But starting in 2007, the listed in document S/2009/10 as an item encouraged the Secretary-General to resolution became a more frequent which would be deleted “unless a State provide information on developments in reference in the Council’s Africa work. In Member of the UN notifies the President regions at risk of armed conflict pursu- its first presidential statement that year, of the Security Council by 28 February ant to Article 99 of the UN Charter the Council recalled the resolution in 2009 that it wishes an item subject to (which stipulates that: “The Secretary- requesting the Secretary-General “to deletion to remain on the list of matters General may bring to the attention of the provide the Council with more regular, of which the Security Council is Security Council any matter which in his analytical reporting on regions of poten- seized”). No such letter was apparently opinion may threaten the maintenance tial armed conflict’ and stressed “the sent and the item disappeared. of international peace and security”) importance of establishing comprehen- and expressed the determination to sive strategies on conflict prevention in 6.3 Key Council Decisions support regional mediation initiatives order to avoid the high human and Related to the Relationship with and its willingness to enhance “durable material costs of armed conflict”. the AU institutions conducive to peace.” In res- Since the establishment of the AU, the Congo, preparing an open debate on olution 1625 the Council stressed “the Security Council adopted several deci- the role of the Council in conflict preven- critical importance of a regional sions with a bearing on the institutional tion and resolution during its August approach to conflict prevention, called relationship. Some of them addressed presidency, used the resolution as one for strengthening UN cooperation with the overall relationship with regional of the elements to frame the debate regional and subregional organisations and subregional organisations, but (S/2007/496). In a presidential state- with respect to mediation initiatives and some were focused specifically on the ment adopted during that debate, (S/ urged the international community to relationship with the AU. During the PRST/2007/31) the Council asked spe- cooperate in developing the capacities meeting in Nairobi in 2004, the Council cifically that the Secretary-General of African regional and subregional adopted its presidential statement provide it within 60 days with a report on organisations’ standby arrangements 2004/44 among other things welcoming the implementation of resolution 1625 and expressed its support for the the establishment of the AU’s PSC and (the report was submitted in January Secretary-General’s proposal to estab- calling on the international community 2008 (S/2008/18). And in 2010, during lish a ten-year capacity-building plan for to support the efforts of the AU to its October Council presidency, the UK the AU. The resolution asked the strengthen its peacekeeping capacity. established what appears to be a Secretary-General to “provide to the related new practice referred to as In September 2005, the Council met at Council regular reports and analysis of “horizon scanning,” of seeking a the level of heads of state and govern- developments in regions of potential monthly briefing from the Secretariat on ment for a debate on “Threats to armed conflicts, particularly in Africa, and upcoming issues of concern with a view international peace and security” and as appropriate a presentation of ongoing to preventive initiatives. adopted two declarations, one on the preventive-diplomacy initiatives.” threat of terrorism, and another one, South Africa became an elected mem- At a Council workshop with incoming contained in resolution 1625, on ber of the Security Council for the first members held in November that year “Strengthening the effectiveness of the time ever in 2007 and used its March participants discussed the richness of Security Council in conflict prevention, presidency that year to organise an open the resolution, with one participant particularly in Africa”. The resolution debate on UN’s relationship with regional describing it as a “virtual gold mine” of focused on the need for a broad strat- organisations, in particular the AU. In a practical suggestions for conflict pre- egy for conflict prevention. Among concept paper for the debate it posed vention in Africa (S/2006/483) but also other issues, it recalled the Constitutive several questions, including: “How can cautioning that its implementation

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the UN strengthen its support to regional increased interaction of the AU peace- An example is the 2008 proposal of the organizations such as the AU in the keeping support team with the UN Secretary-General for an UN-AU joint maintenance of international peace and Department of Peacekeeping Operations. panel. The Secretary-General estab- security and what does this mean in And it welcomed the Secretary-General’s lished a joint panel and named former practical terms?” And “Is there scope for proposal contained in its just-submitted Italian prime minister, Romano Prodi, as the further and more direct resources report on arrangements for cooperation its chairman. On 24 December the pan- support by the UN to regional organiza- under Chapter VIII, to set up an AU-UN el’s report was submitted to the Council tions?” (S/2007/148) The outcome of the panel of distinguished persons to con- and the General Assembly (S/2008/813). debate, chaired by the country’s foreign sider in-depth the modalities for support The report reflected input from member minister, was presidential statement of peacekeeping operations, in particu- states, the UN Secretariat, UN agencies 2007/7 which, among other issues, lar start-up funding, equipment and involved in peace operations, AU institu- asked the Secretary-General to provide logistics. It also asked the Secretary- tions and member countries, the EU and a report on specific proposals on how General to include in his regular existing and potential donors. The panel the UN can better support arrangements reporting to the Security Council, explored how the UN and the AU could for further cooperation and coordination assessments of progress on the coop- enhance the predictability, sustainability with regional organisations under eration between the UN and relevant and flexibility of financing of UN man- Chapter VIII of the Charter. regional organisations. dated peace operations undertaken by the AU. A particular focus was how to The two reports requested in 2007, on While information on progress in achieve expeditious and effective the implementation of resolution 1625 cooperation between the UN and deployment of well-equipped troops and on specific proposals to better regional organisations, as requested and effective mission support arrange- support arrangements for cooperation in resolution 1809, does not appear to ments. Significantly, the panel also under Chapter VIII were submitted in be included in regular reports on addressed the related topic of capacity- advance of the April 2008 open debate specific situations whether in Africa or building for conflict prevention. While organised by South Africa during its next other parts of the world, the Secretary- acknowledging that its proposals “will presidency and chaired by the country’s General has provided updated not completely address” the challenges then president, Thabo Mbeki. During the information in his subsequent reports to peace in Africa, the Panel put forward debate the Council adopted resolution on cooperation with regional organi- the following recommendations: 1809 with several elements important for sations and on support to African n approving the use of UN assessed its relations with regional organisations, peacekeeping. funding to support UN authorised AU and specifically the AU. It welcomed and 6.4 The Cycle of Reporting peacekeeping operations for up to six encouraged “the ongoing efforts of the What seems to have developed from months on a case by case basis and AU and the subregional organizations to the point of adoption of resolution 1809 only when the mission was to transi- strengthen their peacekeeping capacity is a pattern of the Council adopting tion to UN management within six and to undertake peacekeeping opera- decisions seeking Secretary-General’s months; tions in the continent, in accordance reports on different aspects of UN n establishment of a voluntarily with Chapter VIII of the Charter of the UN relationship with the AU, the Secretary- funded multi donor trust fund to and to coordinate with the UN, through General submitting a report, the Council build AU peacekeeping capacity the Peace and Security Council, as well holding a debate and adopting another (thus allowing the AU to move away as ongoing efforts to develop a conti- decision requesting further reporting from ad-hoc and disconnected bilat- nental early warning system, response and deferring deciding on specific eral support arrangements). The capacity such as the African Standby steps until further reports are submit- fund would consolidate current Force and enhanced mediation capac- ted. However, the underlying reason sources of support for the AU and ity, including through the Panel of the seems to be a reluctance to decide on AU members and secure additional Wise.” It also underlined the importance specific steps and the lowest common resources from current and new of the implementation of the ten-year denominator outcome being a request donors building on the current EU capacity-building plan and encouraged for further reports. funded African Peace Facility;

16 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org n ten-year capacity-building programme, extending the voluntary trust fund 7. UN-AU Cooperation in concept to include capacity building noted the assessment of the options for Peacekeeping to cover early warning, conflict pre- financing AU peacekeeping operations vention, conflict resolution and and expressed its intention to keep all With respect to addressing specific post-conflict reconstruction; options under consideration. It also situations, the relationship between the n developing of the AU’s logistics expressed its support for the establish- Council and the AU focused largely on capacity; and ment of a joint UN Secretariat-AU peacekeeping. As mentioned earlier, n establishing of a joint UN-AU team to Commission task force on peace and starting in mid-1990s, there have been examine how to implement the pan- security, suggested in the Secretary- examples of the UN co-deploying or el’s proposals. General’s report. But most of the key succeeding an Africa-led operation. recommendations were deferred and Two new models emerged more than a On 18 March 2009 the Council held an the Secretary-General was requested decade later, in Darfur and Somalia, open debate to consider the report of to update the Council by 26 April 2010 and deserve a closer examination. the joint AU-UN panel (referred to as the and submit a progress report by 26 Prodi report), chaired by Libya’s Minis- 7.1 Darfur October 2010. ter for African Affairs Ali Treki. The When the Darfur conflict erupted in early high-level participants included the Under-Secretary-General Susana Mal- 2003, the newly established AU quickly Commissioner for Peace and Security corra, the head of the Department of became involved in mediation efforts of the AU, Ramtane Lamamra, the chair Field Support, updated Council mem- and in 2004 established the AU Mission of the panel, Romano Prodi, as well as bers on the current status of cooperation in Sudan (AMIS), initially consisting of a the Minister for Foreign Affairs of South with the AU in the area of peacekeeping small number of observers. By contrast, Africa, Nkosazana Dlamini Zuma. A operations during informal consulta- the Security Council was slow in taking presidential statement (S/PRST/2008/3) tions on 12 April 2010. The next up the Darfur situation. Its main focus at was adopted in which the Council noted Secretary-General’s report (S/2010/514) the time was on the efforts leading up to “with interest the Panel’s report” and on assistance to AU peacekeeping the signing of the Comprehensive asked the Secretary-General “to submit operations authorised by the UN was Peace Agreement (CPA) between the a report, no later than 18 September submitted and discussed in an open north and the south of the country, end- 2009, on practical ways to provide debate in October (S/PV.6409) The out- ing a 20-year-long civil war. After many effective support for the AU when it come was a presidential statement (S/ reports from OCHA and numerous other undertakes peacekeeping operations PRST/2010/21) in which the Council UN and independent sources about the authorized by the UN, that includes a reaffirmed in general terms its commit- need for protection of civilians in Darfur, detailed assessment of the recommen- ment to strengthening its partnership and only after the initial ceasefire was dations contained in the Report of the with the AU Peace and Security Coun- achieved, the Security Council held an AU-UN Panel, in particular those on cil. But again there was no concrete Arria formula briefing in late May 2004 financing, as well as on the establish- action, only a decision to ask the and issued its first Darfur-focused ment of a joint AU-UN team.” Secretary-General to submit within six decision, a presidential statement (S/ months a report defining the Secret­ PRST/2004/18) in which it expressed The Secretary-General submitted his ariat’s strategic vision for the UN-AU “its full and active support for the efforts report (S/2009/470) in September 2009 cooperation. of the AU to establish the ceasefire com- and on 26 October the Council held an mission and protection units” and called open debate. The presidential state- At press time, the report appeared to be for “the immediate deployment of moni- ment that was the outcome of this delayed until sometime in May. The task tors in Darfur.” debate (S/PRST/2009/26) reiterated the force was established in September importance of a more effective strategic 2010 and held its first meeting at the time In October 2004 and after the collapse relationship between the UN and the of the general debate of the General of the ceasefire, the AU decided to AU, underlined the importance of Assembly and its second one in January expand the mandate of AMIS to include expediting the implementation of the 2011 at the time of the AU summit. the protection of civilians in imminent danger and in the immediate vicinity of

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its troops. The new mission had an On 3 February 2006 the Security Council become firm objections and at China’s authorised force of 3,320 personnel. approved a presidential statement insistence resolution 1706 was made (PSC/PR/Comm.(XVII)) But for the new instructing the Secretary-General to subject to Sudan’s consent which was organisation the problems of resources begin contingency planning for a transi- never given and as a result the status and troop generation were overwhelm- tion from AMIS to a UN operation. The quo continued. During that period, ing and by the end of the month an AU process gained speed in March. The AU Sudan was a member of the PSC and press release advised that the military PSC extended AMIS until 30 September obviously played a key role. It had a component of AMIS would consist of 2006, and the Security Council adopted strong preference for an AU operation only 597 troops. resolution 1663, expediting the neces- as opposed to UN peacekeeping. (The sary preparatory planning for transition Protocol establishing the PSC stipu- The Security Council in the course of of AMIS to a UN operation. From 9 to 21 lates that members that are party to a late 2004 and early 2005 became much June 2006, another UN-AU joint assess- conflict or a situation that is under con- more active on Sudan, addressing ment mission to Darfur took place. Its sideration by the PSC should recuse accountability for atrocities allegedly conclusion was that the most immediate themselves from the discussion and committed in Darfur, imposing sanc- need was to strengthen AMIS and adopt decision-making process on the tions and planning the establishment of a unified plan for a transition to a UN particular case. However, as a 2010 AU a UN peacekeeping operation in sup- operation. In what was a sign of a chang- assessment of its peace and security port of the implementation of the CPA, ing dynamic with respect to a transfer of architecture points out, “This principle the UN Mission in Sudan (UNMIS). It the operation from the AU to the UN, the has been largely adhered to, with some repeatedly expressed its support for the report also indicated that there was few exceptions. For instance, when AU efforts in Darfur and called on the some Sudanese resistance to the trans- Sudan was a member of the PSC it was international community to provide fer and negative consequences allowed to make presentations on the AMIS with assistance. stemming from the deployment of a crisis in Darfur”.) But it is important to In resolution 1590 of 24 March 2005 purely UN force in Darfur. keep in mind that by that time, other AU the Security Council also asked the members may also have become less Had at that point the Security Council Secretary-General for a report with than enthusiastic about the transfer (for shifted gear and devised a plan for a “options for how UNMIS can reinforce more details, please see the “Council partnership mission in Darfur between the effort to foster peace in Darfur and Wider Dynamics” section). the UN and the AU, history may have through appropriate assistance to been different. But the political dynam- Meanwhile the humanitarian crisis con- AMIS, including logistical support and ics in the Council seemingly would not tinued and AMIS continued to struggle technical assistance, allow this and, as requested in resolu- to provide meaningful protection to the In the next period, there was growing tion 1663, the Secretary-General on 28 large numbers of civilians being tar- support by many Security Council July 2006 presented recommendations geted. In response to the stalemate the members for a UN peacekeeping oper- for the transition to a UN mission and for Secretary-General proposed a phased ation to replace AMIS. Several joint interim assistance from UNMIS. At the approach comprising of sequential AU-UN assessment studies were end of August, the Council adopted packages of ‘lighter’ and ‘heavier’ assis- undertaken. A joint AU-UN mission resolution 1706, setting a mandate for a tance from the UN for AMIS and leading visited Darfur from 10 to 20 December 23,000-strong UNMIS operation in Dar- up eventually to a shared AU-UN opera- 2005. Following that visit and reflecting fur and stating, “UNMIS shall take over tion. On 18 November, at a meeting in significant input from many Western from AMIS responsibility for supporting Addis-Ababa the Secretary-General, P5 countries, on 12 January, the AU the implementation of the Darfur Peace members, AU Commissioner Alpha PSC announced that it accepted, “in Agreement upon the expiration of AMIS’ Oumar Konare, the Arab League, the principle,” the deployment of UN peace- mandate but in any event no later than EU and several African nations agreed keepers in Darfur, while also extending 31 December 2006.” But this resolution in principle to a hybrid operation for AMIS until March. was never implemented. The Sudanese Darfur, and on 25 November the AU and reservations identified in June had the UN signed a memorandum of

18 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org understanding on a “lighter” UN assis- the provision about an “African charac- police), only 7,967 troops, 158 observ- tance package. These developments ter” and authorising the establishment ers and 1,870 police were deployed. were reflected in official documents in of the AU-UN Hybrid Operation in To address the difficulties mounting in the coming weeks; On 30 November Darfur (UNAMID). the running of the mission, in 2008 two 2006 the AU PSC adopted a communi- UN Secretary-General Ban Ki-moon mechanisms were established. In July, qué endorsing a hybrid operation in and AU Commission Chairman Alpha the Tripartite Mechanism on Darfur, Darfur, renewing AMIS until 1 July Konaré held a high-level consultation involving representatives of the govern- (S/2006/961), and on 19 December the on Darfur at the margins of the General ment of Sudan, the AU and the UN, was UN Security Council adopted a presi- Assembly UN on 21 September 2007. set up and began holding periodic meet- dential statement calling for the Darfur For the operation to be possible, an ings alternating between African and support packages and hybrid operation entirely new financial arrangement New York locations. And in November to be implemented (S/PRST/2006/55). needed to be approved by the General the Joint Support and Coordination In January 2007, the deployment of the Assembly. This was done in UN General Mechanism for UNAMID was estab- ‘light’ UN assistance package began. Assembly resolution 62/232 of 22 lished in Addis Ababa. By early 2011, Emboldened by its success in heading December 2007. On 1 January 2008, UNAMID was close to its authorised off resolution 1706, Khartoum pro- almost four years after AU peacekeep- strength and had undoubtedly played an longed the process of reaching ers were first sent to Darfur, UNAMID important role on the ground. But run- agreement with many months of formally took over peacekeeping ning of the hybrid operation has been exhausting negotiations. When the responsibilities from AMIS. difficult, both for administrative and Secretary-General sent details of a political reasons. During the different For the first time, the UN created an UN-AU agreement for a “heavy-sup- debates on UN support for AU peace- operation for which it assumed full port” package for Darfur to Khartoum, keeping, several members of the Security responsibility financially but over which it the Sudanese government replied in Council have now began to point to would not retain exclusive control. It was March with complaints that it “reveals UNAMID as a model to be avoided rather also agreed to fill all key positions jointly the existence of essential differences in than emulated in the future. (which has resulted in an extensive and the understanding of the nature and often very lengthy consultation process A potential new discomfort area objectives” of UN support. between the two organisations). emerged at the time of writing of this In May the Security Council received report. Up until that point, all the deci- Sudan did not help the already complex the AU-UN report on the hybrid sions with respect of UNAMID’s relationship to develop smoothly. It operation (S/2007/307 and rev. 1). A mandate, had been set out (after con- began stalling the deployment of UNA- subsequent presidential statement sultations with the AU) in Security MID through an array of bureaucratic called for it to be considered and taken Council resolutions and counterpart AU challenges, by blocking equipment at forward immediately (S/PRST/2007/15). decisions. But on 8 April 2011, the PSC customs for months on end, but most of The AU PSC authorised the hybrid released a communiqué in which it all by refusing entry to entire national operation on 22 June after Khartoum proposed 1 May 2011 the start date for a contingents using the “African charac- indicated that it would accept it without new “Darfur Political Process” and ter” clause as an excuse. With all the conditions after consultations in Addis requested that UNAMID make all nec- already existing troop generation diffi- Ababa among the UN, the AU and essary preparations for that process “as culties confronting the UN, finding and Sudan (PSC/PR/Comm(LXXIX)). How- a matter of priority.” (PSC/PR/Comm. quickly deploying well equipped troops ever, Khartoum continued to resist. One (CCLXXI)) This constituted the first time for UNAMID became nearly impossible. of its last demands was that the opera- the AU sought to mandate a task to By end of July 2008, a year after the tion should be designed as having a UNAMID directly and without the agree- adoption of resolution 1769 authorising “predominantly African character”. The ment of the Security Council. It is still UNAMID, out of the authorised strength Security Council on 31 July 2007 too early to predict what implications of 19,555 military, 3,772 police and 19 adopted its resolution 1769, containing will this legislative activity on the part of formed police units (totalling 6,432 the PSC (on an issue where the Security

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Council is divided) have for UNAMID or provided with the “clear understanding (PSC/HSG/Comm(CXXXIX)) The PSC more broadly, for the development of that the mission will evolve to a UN oper- also decided that AMISOM should take the relationship between the two ation.” On 20 February 2007 the steps to support the implementation of bodies. But the decision indicates a Security Council adopted resolution the Djibouti Agreement between the possibility of new challenges in the 1744, authorising AMISOM, but on the Mogadishu-based Transitional Federal relationship between the two bodies. issue of its evolving into a UN operation, Government (TFG) and members of the there was no agreement in the Council insurgency, and expressed hope that 7.2 Somalia as the next several years would show. the agreement would lead to the deploy- The Council established in 1992 the UN ment of a UN peacekeeping operation. Operation in Somalia (UNOSOM). Later In a 13 April 2007 report, the Secretary- On 19 August, the Security Council that year it also authorised the US-led General indicated that Somalia was too adopted resolution 1831, renewing the Unified Task Force (UNITAF) to create a dangerous for a peacekeeping opera- authorisation of AMISOM for a further stable environment for the delivery of tion as there was no peace to keep and six months. But there seemed to be less humanitarian aid. But following several that there was no way the UN could support for a UN peacekeeping role in military disasters in 1993 and lack of replace AMISOM. On 18 July 2007 the practice. The resolution instead encour- progress in peace talks, the UN and the PSC renewed AMISOM authorisation for aged the Secretary-General to continue US withdrew, leaving Somalia with no six months and appealed again for tran- to explore ways and means with the AU government and no international pres- sition to a UN peacekeeping operation to strengthen UN logistical, political and ence on the ground that would serve as (S/2007/444). It also called for a UN technical support for AMISOM. a stabilising factor. The UN was forced assistance package for AMISOM. On 20 to relocate its country team to Nairobi August, the Council renewed AMISOM On 4 September 2008, the Council and in 1995 established a UN Political authorisation in resolution 1772. adopted a presidential statement Office for Somalia (UNPOS) there. After requesting the Secretary-General to On 15 February 2008 during a Council a decade of violence and instability, produce a detailed plan for an interna- debate on Somalia, Somali and AU rep- in April 2005 the relevant Regional tional stabilisation force and asked him resentatives pleaded with the Security Economic Community of the AU, the to begin approaching states to partici- Council for a future UN takeover of Intergovernmental Authority on Devel- pate in such a coalition of the willing. peacekeeping responsibilities in Soma- opment (or IGAD comprised of Djibouti, The stabilisation force had been recom- lia (S/PV.5837). Renewing AMISOM for Ethiopia, Kenya, Somalia, Sudan and mended by the Secretariat in a briefing six months in resolution 1801 on 20 Uganda) called for a peacekeeping by the Department of Peacekeeping February, the UN Security Council mission in Somalia, the IGAD Peace Operations on 26 August. On 22 decided to request that the Secretary- Support Mission to Somalia (IGASOM). December 2008 the AU extended General explore the possibilities for UN In an effort to assist IGAD, the AU PSC AMISOM’s mandate until 16 March peacekeeping in Somalia. In his report endorsed the mission in May 2005. 2009. On 11 March 2009 it further of 14 March, the Secretary-General pro- (PSC/PR/Comm(XXIX)) extended AMISOM’s mandate for vided contingency planning for such an another three months from 17 March. In September 2006 IGAD revised its operation. In a 20 March briefing of the plan which was also endorsed by the Security Council the Secretary-General’s But there proved to be little willingness PSC (PSC/PR/Comm(LXII)). On 6 Special Representative Ahmedou around the world to participate in a December 2006, the UN Security Coun- Ould-Abdallah argued that the Council coalition military operation in Somalia. cil endorsed the IGASOM proposal in should consider, alongside AMISOM, a At the end of December 2008, the US resolution 1725, though the mission “strong interim multinational presence.” (which was about to change leadership would never deploy as IGASOM. Sub- (S/PV.5858) On 15 May, the Council from the Bush to the Obama Adminis- sequently, the PSC decided to assume adopted resolution 1814, which asked tration) returned to the idea of a UN responsibility for the situation and for continued contingency planning. peacekeeping operation but failed to established the AU Mission in Somalia gain support. As a compromise, the On 29 June, the PSC again renewed (AMISOM). The 19 January 2007 deci- Council on 16 January 2009 adopted AMISOM’s mandate for six months. sion stated that the authorisation was resolution 1863, essentially deferring

20 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org the issue. It expressed its intention to AMISOM for another 12 months until 31 AMISOM’s strength from 8,000 to establish a UN peacekeeping operation January 2011. 20,000 troops, authorisation of an by 1 June 2009. It renewed AMISOM’s enhanced support package for the The ongoing resistance in New York to authorisation for up to six months. Sig- mission from UN assessed contribu- approving any kind of follow on mission nificantly, however, the Council took an tions, imposition of a naval blockade to replace AMISOM caused increasing important decision that a limited pack- and a no-fly zone over Somalia and frustration in Africa, especially on the age of UN resources should be made effective implementation of sanctions. part of the AMISOM troop-contributors. available to AMISOM. Resolution 1863 During the July 2010 AU summit in Kam- The Council was divided on how to established a mandate for the UN pala, the AU endorsed IGAD’s 5 July respond to the AU and IGAD requests Support Office for AMISOM to provide a decision to deploy an additional 2,000 for increased funding. Most members logistics capacity support package to troops to AMISOM to reach the autho- were supportive of some increase in AMISOM (details are described in the rised strength of 8,000 and mandated funding but the P3 were strongly against Secretary-General’s letter to the Presi- the AU Commission to start planning for it. When on 22 December 2010 the dent of the Security Council of 19 the deployment of additional AMISOM Security Council adopted resolution December 2008.) (S/2008/804) troops. On 23 September 2010, a mini- 1964 extending the authorisation of To make this support possible, agree- summit on Somalia was convened in AMISOM until 30 September 2011, it ment by the General Assembly was New York on the margins of the General increased the mission’s troop strength needed. On 7 April 2009 it approved Assembly with high-level representa- by 4,000, from 8,000 to 12,000 but did $71 million in UN assessed contribu- tion from the region and the wider not change the funding. tions for the logistical support package international community. The meeting On 31 January 2011 the AU called on for AMISOM authorised by the Council. was preceded by a ministerial-level the Council to provide greater support IGAD meeting in New York on 22 Sep- On 16 April 2009 the Secretary-General to AMISOM and “fully assume its tember, which called on the Security again advised against the establish- responsibilities towards Somalia and its Council to formally approve a troop ment of a UN peacekeeping operation people,” including through increased level of 20,000 for AMISOM and “make in a report to the Council (S/2009/210), funding from UN-assessed contribu- funds available to sustain the elevated recommending instead an incremental tions (Assembly/AU/ Dec.338(XVI)). level for AMISOM”. approach, maintaining the strategy of African representatives have made strengthening AMISOM until further The PSC followed on 15 October 2010 much of the contrast with Darfur, where improvements in security had been urging the Security Council to endorse the Security Council was only too keen achieved on the ground. an increase in the authorised troop to replace AMIS with a UN force. strength of AMISOM from 8,000 to On 26 May 2009 in resolution 1872 the The Somalia case is an example in 20,000, as well as an expansion of its Council renewed authorisation of which the Security Council has funding from UN-assessed contribu- AMISOM until 31 January 2010, addressed the PSC’s requests to some tions. It also asked the Council to approved continued funding of the degree. Authorisation for limited financ- impose a naval blockade and no-fly logistical support package from ing from UN assessed contributions zone over Somalia and to consider assessed UN contributions and and maintaining from January 2009 a requesting the naval operations off the requested the Secretary-General to dedicated UN Support Office for coast of Somalia to provide “more direct implement the phased approach rec- AMISOM, UNSOA in Nairobi has been and tangible operational support to ommended in his 16 April 2009 report. welcomed on the AU side. Yet both AMISOM”. The Security Council, in a sides find the status quo fairly unsatis- On 8 January 2010 the PSC renewed press statement, took note of the AU’s factory. The PSC has been unhappy AMISOM’s mandate for another 12 requests regarding AMISOM. that the UN side has not gone all the months (PSC/PR/Comm.(CCXIV)), and On 23 November 2010, IGAD expressed way in granting its requests. The Secu- on 28 January the Council in resolution “deep concern” that the Council had yet rity Council has been unhappy with the 1910 renewed the authorisation of to respond to the AU PSC’s request AU being slow in presenting its strategic for endorsement of an increase in

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plans, most of all AMISOM’s concept of UN Charter. The 2002 Protocol on the Comm(LXVIII)) at its 68th meeting on 14 operation. The UK permanent repre- Establishment of the Peace and Security December 2006 in which it welcomed sentative said during an open debate Council provides considerable degree the concept paper and requested fur- on UN support for AU peacekeeping in of detail and also shows evidence of ther consultations. The General October 2010, “We have at times impressive strategic thinking. Assembly, in its resolution 61/296 on appeared to be talking past each other cooperation between AU and the UN, On its first page, the Protocol refers to on Somalia, particularly with regard to acknowledged the AU decision. While “the need to forge closer cooperation military strategy. We need to do better the mechanism has occasionally been and partnership between the UN…and at focusing on concrete plans for mentioned in Security Council debates, the AU, in the promotion and mainte- addressing specific conflict situations”. it appears that no further practical steps nance of peace, security and stability in were taken on this by either the AU or An additional complicating aspect of Africa.” The UN Charter is listed among the Security Council. the situation is that according to experts the PSC’s guiding principles and interviewed for this report, the PSC is promoting and developing ‘a strong Interestingly (even if currently in practice not really the driving force behind the “partnership for peace and security” this requirement is not necessarily always AU Somalia policy. It is IGAD, and more between the Union and the UN and its fulfilled), the Protocol also lists among the specifically, Ethiopia, which has high agencies’ is one of the explicit goals of criteria for member states’ election to the stakes in maintaining stability in Soma- the PSC. PSC “having sufficiently staffed and lia. Uganda, as a major troop-contributor equipped Permanent Missions at the Of particular interest is the Protocol’s and a victim in 2010 of retaliatory terror- Headquarters of the Union and the UN, to Article 17, titled “Relationship with the ist attacks in Kampala by Somali actors, be able to shoulder the responsibilities UN and Other International Organiza- also has high stakes in the issue. On the which go with the membership”. tions”. It gives the PSC a specific ground the relationship between the UN mandate to interact with the UN In what would become a focus of con- and AMISOM is managed largely Security Council. It says, “The Peace siderable contention, Article 17 of the between the UN and Uganda, which is and Security Council shall cooperate Protocol in its paragraph 2 also fore- providing the bulk of the military per- and work closely with the UN Security sees that “Where necessary, recourse sonnel (with Burundi being Uganda’s Council,” and, “The Peace and Security will be made to the UN to provide the main partner). With the above in mind, it Council and the Chairperson of the necessary financial, logistical and mili- is possible, that like the hybrid opera- Commission shall maintain close and tary support for the AUs’ activities in the tion in Darfur, the Somalia case may be continued interaction with the UN Secu- promotion and maintenance of peace, more of an exception than a model for rity Council, its African members, as security and stability in Africa, in keep- future examples of peacekeeping coop- well as with the Secretary-General, ing with the provisions of Chapter VIII of eration between the two bodies. including holding periodic meetings the UN Charter on the role of Regional and regular consultations on questions Organizations in the maintenance of of peace, security and stability in international peace and security”. 8. The Evolution of the Africa.” The Protocol also foresees that The AU Assembly of Heads of State and African Side’s Engagement the future African Standby Force would Government at its eighth ordinary ses- with the Security Council cooperate with the UN. sion in January 2007 further called upon The AU founders saw clearly the value In 2006, Egypt presented to the PSC a the UN “to examine, within the context of of and a need for a strong relationship concept paper arguing for the estab- Chapter VIII of the UN Charter, the pos- with the UN and reflected it in the new lishment of a “Coordination and sibility of funding, through assessed organisation’s design, especially in Consultation Mechanism between the contributions, peace-keeping opera- areas related to peace and security. The AU Peace and Security Council and the tions undertaken by AU or under its 2000 Constitutive Act has a general ref- UN Security Council” and envisaged authority and with the consent of the erence listing among the objectives of several features, including a fixed UN.” It also requested the AU member the Union, encouraging international annual meeting in September. The PSC states “working together with the Com- cooperation and taking into account the issued a communiqué (PSC/PR/ mission, to undertake the necessary

22 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org follow-up in this regard”. (Assembly/AU/ could be described as a lack of proce- and members of the central organ Dec.145(VIII)) This was reinforced in the dural symmetry certainly plays a role. and, eventually, the PSC of the AU, August 2007 document containing the The Protocol establishing the PSC man- with the secretary-generals of the two working methods of the PSC in a section dates it to “cooperate and work closely institutions, and in formal meetings of titled “Advocacy for UN funding of AU with the UN Security Council” whereas the Security Council; peacekeeping missions in Africa” which on the UN side there are no binding n interaction between the Working makes it incumbent upon the PSC to be decisions which effectively commit the Group and the Office of the AU in involved in the efforts pursuant to the Council to pursue working methods New York; Assembly decision in this regard. (PSC/ which would make such a relationship n regular briefing by the special repre- PR/2(LXXXV)) productive and effective. sentatives of the secretary-generals and the special envoys of the two African members of the Security Coun- Nevertheless, even before the PSC was organisations, preferably carried cil, and in particular, South Africa, having officially launched (it became opera- out jointly; joined the Security Council for the first tional in 2004), members of the Security n possibility of appointing joint time in its history in 2007, have been Council have been foreseeing their special envoys for African conflicts in engaged in a concerted effort to realise future interaction with that body. The the future; the goal of UN funding for African-led Council’s ad hoc Working Group on n ensuring of close consultation with peace operations. It is fair to say that the Africa, operating by consensus, was the AU before and after Security Prodi report with its related debates has able to agree on a number of recom- Council missions in Africa; been both the result and an important mendations relating to the cooperation n consideration of the possibility of element of these endeavours. with the AU and presented them to the including, where desirable, a repre- Council in August 2002 (S/2002/979). sentative of the secretariat of the AU in Some of them have since been imple- Security Council missions to Africa; mented, but several are still outstanding. 9. The AU PSC-UN Security n the Security Council may consider, Because some of these issues have Council Relationship where possible or desirable, the dis- been for four years now, repeatedly patch of joint Security Council/AU The relationship between the two peace raised in the annual consultations missions to the field; and and security bodies, the UN Security between the two Councils, the practice n cooperation with the AU in the field Council and the AU PSC has been we describe below, it may be worth to of disarmament, demobilisation and unique as far as the Security Council’s reproduce the 2002 recommendations reintegration, within the process of interaction with other bodies is con- in full: conflict resolution and postconflict cerned. With various types of interface, The Ad Hoc Working Group exten- peacebuilding. from briefings provided by the respec- sively discussed the question of tive organisations’ officials to each of the enhancing cooperation between the Given that the periodic meetings bodies through joint sessions of the two Security Council and the OAU/AU. between the two Councils constitute a Councils, to joint running of a peace During the consideration of this item, form of interaction the Security Council operation, the PSC has become the the Ad Hoc Working Group heard the has with no other body, it is worth to Security Council’s most frequent inter- views of the permanent observer of devote some attention to them. locutor. It is also the only other political the OAU to the UN. The Group The first such meeting took place on 16 body members of the Security Council decided that the following measures June 2007 in Addis Ababa as part of a have regularly met with as a whole. The could enhance cooperation between Security Council trip to Africa. During relationship, however, has so far not the Security Council and the AU: their visit to the AU headquarters in been entirely smooth (this will be further n circulation of relevant decisions of Addis Ababa, members met with the discussed in the “Dynamics” section of the central organ of the AU through then Chairperson, Alpha Oumar Konaré, this report) and has largely been focused the presidency to Council members and other members of the AU Commis- on procedural rather than substantive for their information; sion (including then Commissioner for matters. There are probably numerous n facilitation of periodic interaction Peace and Security, Said Djinnit), as well factors at play. A phenomenon that and dialogue between the Council

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as the AU PSC. The meetings took place ing with regard to peace and security Council” issued on 17 April 2008 among against the backdrop of intense negotia- in Africa. other things: tions that a few months later led to n recalled that the Security Council has The “Joint Communiqué agreed by the establishment of the hybrid operation in primary responsibility for the mainte- UN Security Council and AU Peace and Darfur, and Darfur was a central issue. In nance of international peace and Security Council” issued at the end of addition to several other situation-spe- security, and recalled the provisions the session (S/2007/421): cific topics, another key issue at that of Chapter VIII of the Charter of the n recalled the Security Council’s time was the overall relationship UN on the relationship with regional primary responsibility for the mainte- between the two bodies. As reflected in arrangements; nance of international peace and the joint communiqué and the Council’s n recognised that an effective relation- security; report from the trip, several issues raised ship between the UN and the AU, in n expressed a joint commitment to and recommendations put forward, particular the Security Council and developing a stronger and more would be recurring in the next meetings. the PSC would contribute signifi- structured relationship between the cantly towards addressing common During the meeting, the chairperson of Security Council and the PSC; peace and security challenges and the AU Commission urged the Security n stated that members of the two bodies facilitate their resolution in Africa; Council to view the PSC as an exten- agreed to consider modalities for n expressed satisfaction with the sion of the Security Council and improving the resource base and ongoing efforts to strengthen the requested that the Security Council capacity of the AU and to examine “the relationship through enhancing coop- help in strengthening the AU to possibility of the financing of a peace- eration in the fields of conflict respond efficiently on behalf of the keeping operation undertaken by the prevention, management and resolu- Security Council to conflicts in the con- AU or under its authority, as requested tion, including in respect of issues such tinent. To that end, he reaffirmed the in the decision of the AU Assembly of as the good offices of the Secretary- need for a more structured and for- Heads of State and Government General, mediation support, effective malised relationship between the two (Assembly/AU/Dec. 145 (VIII))”; use of sanctions, early warning and bodies, characterised by partnership n stated that members agreed to “con- support of the AU Panel of the Wise; and mutual respect. The AU side fur- sider how best to improve the peacekeeping and peacebuilding; thermore pointed to the comparative effectiveness of AU and UN peace n taking steps to identify predictable, advantage of the continental organisa- efforts in Africa and how to strengthen sustainable and flexible resources for tion, for example in being able to coordination between the AU and the the AU, in order to undertake peace- deploy quickly to conflict areas. Mem- UN”; and keeping operations in the context of bers of the PSC called on the Security n stated that they agreed to hold joint Chapter VIII of the UN Charter; and Council to recognise that activities of meetings at least once a year and n sharing of experiences on working the AU PSC undertaken under Chapter that the next meeting would be in methods between the two structures; VIII of the Charter of the UN were car- New York. sharing information on African con- ried out on behalf of the international The following year a joint meeting was flict situations on the respective community. In what would become a held at the UN headquarters on 17 April agendas of the two bodies, including prominent and constant feature in the 2008, and focused again on developing but not limited to: Somalia; Sudan; relationship, PSC members urged the a stronger working relationship through Côte d’Ivoire and the DRC. Security Council to consider the pos- such means as taking steps to identify sibility of financing AU peace support The joint communiqué also stated that predictable and flexible resources for AU missions from assessed contributions, the next meeting would be held in 2009 peacekeeping, information sharing or citing the request contained in the in Addis Ababa. supporting AU capacities for mediation. decision of the Assembly of Heads of That year the preparations for the meet- State and Government of the AU. They The “Joint communiqué (S/2008/263) of ing were difficult. Among key problems also expressed the need for the two the meeting between the UN Security was the fact that the African side had Councils to harmonise decision-mak- Council and the AU Peace and Security been eager to have a discussion about

24 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org the substance of the Prodi report on stitutional changes of Government in The title of the communiqué modalities for support to AU peace- Africa. The two bodies agreed to (S/2010/­392) that was issued followed keeping operations (described earlier). continue to work closely together on the previous year’s formula (i.e. it was But the UN side was reluctant to engage these issues, with a view to achiev- not called “joint”) and read “Communi- in this discussion and had not included ing concrete results. With reference qué of the consultative meeting of it in its terms of reference for the visit. to the report of the AU-UN panel on members of the Security Council of the The matter was touched upon only modalities for support to AU peace- UN and the Peace and Security Coun- briefly at the meeting in Addis Ababa, keeping operations, including the cil.” This document was considerably and the Security Council side insisted funding of AU-led peace support longer than the previous three and that the main discussion would be post- operations, the AU Peace and Secu- unlike in the past communiqués, poned until after the publication in rity Council and the Security Council included considerable degree of detail September 2009 of a Secretary- of the UN look forward to the report relating to substantive matters dis- General’s report on modalities for the to be submitted by the Secretary- cussed. Furthermore, in what appears implementation of the Prodi report. The General of the UN no later than 18 to be an effort to move these meetings 2009 meeting was also complicated by September 2009; and that The AU away from being primarily focused on differences related to the status of the Peace and Security Council and the procedural issues, the communiqué event as some Security Council mem- members of the Security Council said that “the members of the Security bers were insistent it was not a formal agreed to pursue their consultations Council and the AU Peace and Security meeting of the two Councils. Consider- on ways and means to strengthen Council agreed that the consultative able amount of the time allotted for the their cooperation and partnership, meetings should be substantive.” meeting was spent on the discussion of as well as on the modalities for the The document also outlined steps for this matter and at some point during organization of their consultations the preparation of the next meeting, that morning it was not even clear that and agreed to hold their next consul- again, evidently striving to avoid previ- members would be able to agree on a tative meeting in New York, in 2010. ous years’ difficulties and last minute written statement. That 2010 meeting was scheduled to scrambling: “It was agreed that a con- A brief communiqué was eventually take place during Nigeria’s presidency sultative meeting should be held on a issued. Its title reflected the differences of the Security Council. Up until the last rotational basis, annually no later than regarding the status of the meeting and few days before it, consultations were the end of June. The Chair or President, read (emphasis added): “Communiqué still ongoing as to the format and sub- as applicable, of the host organization of the consultative meeting between the stance of the meeting. On 9 July will initiate contact with the Chair or Peace and Security Council of the AU members of the Security Council held a President, as applicable, of the visiting and the members of the Security Coun- three-hour consultative meeting at UN organization having prepared an cil of the UN.” It stated among other headquarters with the AU PSC and top agenda. The agenda should be agreed things that: AU Commission officials. Topics dis- to in advance, focused, and allow for The meeting availed itself of this cussed included largely procedural follow-up of previously agreed out- opportunity to review matters of matters related to the cooperation come points.” common interest, in particular the between the two Councils and means However, as of March 2011 the advance enhancement of peace and security to strengthen cooperation between the planning did not appear to be imple- in Africa and the development of two bodies, as well as modalities for mented. There was no follow up to the effective partnership between the organising future consultations previous meeting and various dates two institutions, under the frame- between them. Participants also dis- (ranging from April to July) were being work of Chapter VIII of the Charter of cussed two specific conflict situations put forward as possible timing of the the UN. The meeting reviewed the where the AU and the UN are partners, meeting in Addis Ababa. At press time situations in Somalia and the Sudan, Sudan and Somalia. Furthermore, they in late April, there appeared to be an the relations between the Sudan and also discussed the border dispute Chad as well as the issues of uncon- between Djibouti and Eritrea.

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agreement on the date of the meeting the primary role of the Security Council A current watershed issue is the desire (the third week of May) and despite con- in the maintenance of international on the part of the AU (which has quite siderable efforts by South Africa to peace and security, there has been ten- widespread support in the General utilise the format of the Working Group sion on both sides about this issue. In Assembly and also in the Security as a vehicle for planning and prepara- the context of the interaction between Council) to secure more predictable tion it was impossible to ascertain the two bodies, the Security Council funding for AU-led operations, as well whether concrete steps toward drafting has probably restated this fact more as for greater UN readiness to take over of the agenda have begun. often than necessary. The PSC had peace operations initially set up by AU hoped for a more collegial relationship but seen by it as a bridging measure and has occasionally felt slighted or dis- before the UN is in a position to deploy 10. Trying to Put Things respected. Some of this has over the its Blue Helmets. Related to this is the in Perspective years been smoothed out, with the desire on the part of the AU peacekeep- Security Council accepting that the ing to have access to the UN logistics The relationship between the UN and relationship is important for both sides base capacities and stocks. Discus- the AU, in the context of peace and and needs to be cultivated, and the PSC sions on these topics are ongoing but security, has so far not always been seemingly willing to live with a slightly there is strong resistance by a number smooth or efficient. The potential for asymmetrical nature of the correlation. of P5 Council members. Some interme- such a partnership has been recog- diate steps have been agreed (with UN The question which organisation in nised but there is still a gap between funding for logistic support packages practice should take the lead in address- potential and actual impact in address- for AMIS in Darfur and more recently, ing specific conflict situations in Africa ing conflict on the continent. Each side AMISOM in Somalia), but most likely is a related issue. The African side fre- of this equation has a number of griev- this area will be addressed on a case- quently argues about what it sees as its ances, many of them legitimate. But it is by-case basis in foreseeable future. An comparative advantage, being able to important to keep these in perspective: additional factor is the concern by some deploy operations much faster due to n relationships between quite different about creating a climate of dependency existing stand by arrangements and bureaucracies are never easy and on the part of regional organisations geographical proximity; its deep under- entirely tension-free; regarding the support from the global standing of and familiarity with the n joint meetings between bodies being organisation. This was identified by the problems fuelling the conflicts; and its part of different organisations often Security Council in its presidential willingness to deploy peace support have complex dynamics and it is rare statement 26 of October 2009 which operations to help stabilise fragile situa- that both sides would consider such cautioned, “The Security Council reiter- tions in which there is no clear-cut events as useful and satisfying; and ates that regional organizations have distinction between ongoing conflict n the relationship at hand is additionally the responsibility to secure human, and a situation where there may be a complicated because it is asymmetri- financial, logistical and other resources peace to be kept. cal due to several factors: first that the for their organizations, including AU is still at its early stage of life, sec- The UN side has pointed out the need to through contributions by their members ondly that the AU has vastly more reconcile AU leadership with the princi- and support from donors.” limited resources and thirdly that the ple of the universality and the legitimacy There have also been suggestions over AU has been trying to accomplish in conferred by the UN. Some on the UN the years that the two bodies synchro- under a decade, what for example in side stress the Security Council’s nise their decision making or for the Europe has taken half a century. responsibility under the Charter to act Security Council to be more responsive when it deems it necessary. Concerns But it is also important to acknowledge in recognising and supporting deci- have also been raised about situations that there are some fundamental ten- sions taken earlier by the PSC. This is where some regional actors may be sions between the two organisations. unlikely to happen for several reasons, part of the problem and not necessarily Their status vis a vis one another has including some current and most likely always the best actors to produce been one of the discomfort areas. Even future fundamental differences in sub- though all the key AU documents stress impartial solutions.

26 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org stantive positions between the two effective partnership between the AU easily available on different websites bodies. Whereas the AU is prepared in a and donors”. and it can also be accessed on Security number of cases to be innovative in its Council Report’s website.) AU sources interviewed for our report preventive diplomacy agenda, in the were only too well aware of the limita- In the area of peace and security, in 2010 Security Council some (particularly tions in management capacity, and the AU Peace and Security Department Russia but in some cases China as well) themselves highlighted this as one of commissioned an assessment study of insist on a more cautious approach and the difficulties and one of the reasons the Union’s peace and security architec- argue that some matters which the AU why more capacity-building assistance ture. A team headed by Lt. General is prepared to address, as a collective through access to UN funding is Matshuenyego Fisher of Botswana pro- concern, are “internal matters” of the important. Another problem cited is the duced a comprehensive study of the AU state concerned. fact that most AU management deci- and its regional communities and mech- Another issue is the concern by the sions are supposed to be endorsed at anisms, with in depth factual information, Security Council about the need the AU summit-level meetings. But the analysis and solid recommendations. for it to maintain maximum flexibility summits more often than not are over- The report was endorsed in November as to any future scenarios and its taken by political developments and 2010 by a meeting of chief executives preference to approach issues on a crises of the day and there is little time and senior officials of the AU, the RECs case-by-case basis. for anything else. As a result, decisions and the regional mechanisms. It is on administrative issues get delayed, currently being used by the AU in devel- The AU side has also repeatedly sig- and implementation of previous deci- oping a strategic framework for further nalled its desire to conduct joint sions is not always properly reviewed. development of the continental peace missions on the continent with the and security system. (At this time the Security Council or for a representative While acting on recommendations, report has not been made public, but to accompany the Security Council whether internal or external, has not again, it has been circulating widely and during field trips to conflict areas on the always been prompt, the AU has appre- can be accessed on Security Council continent. This has been resisted by the ciated the need for self-reflection and Report’s website.) Security Council. has shown an impressive capacity for identifying the problems. In taking stock of the relative strengths Persons interviewed for this report often and weaknesses of the two Councils, it cited difficulties they have encountered In July 2007 the Assembly of the Heads is also worth noting some significant in interacting with the AU because of of State and Government of the AU weaknesses in terms of working meth- administrative and management diffi- gathered in Accra and decided to estab- ods. The PSC architects having noted culties. The Security Council has on lish a high-level panel to conduct an the experience of the Security Council, several occasions pointed to this, for audit review of the state of the AU after took a quite different approach in the example in its October 2009 presiden- its initial years of existence. The panel, PSC rules of procedure to the question tial statement, when it said, “The headed by Adebayo Adedeji of Nigeria, of having an issue discussed. For exam- Security Council notes that the AU a former UN Under-Secretary-General, ple, rule 6 of the PSC rules states that, needs to enhance its institutional presented in December that year an “The inclusion of any item on the provi- capacity to enable it to effectively plan, exhaustive (70,000 words) document sional agenda may not be opposed by a manage and deploy peacekeeping analysing the organisation in a frank Member State.” This contrasts with the operations”. And as the UK permanent and inquisitive way, pointing to its huge problems that the Security Coun- representative said during an open weaknesses and providing numerous cil working methods present when it debate on peace and security in Africa a concrete recommendations. While not comes to getting agreement on dis- year later, “Building AU management all of the recommendations have as yet cussing a new issue. capacity, including resource manage- been taken on board, several have ment, is essential, not only to manage served as guidelines for subsequent Another significant working methods immediate and future peacekeeping reforms and adjustments. (The report difference can be seen in the provisions operations but also to enable a more has not been officially published but it is for involvement of interested parties or

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parties to the conflict in the PSC work. They include a provision for a “Stand-in- approach. Also, as Secretary-General The Protocol on the Establishment of Chairperson” saying “the Chairperson Kofi Annan put it during that debate, the PSC says in Article 8 point 9, “Any shall vacate the chair, which shall be “There is a new consensus that the Member of the Peace and Security assumed by the next chairperson in line primary responsibility for the solution of Council which is party to a conflict or a for the duration of the situation.” Africa’s problems rests with Africans situation under consideration by the themselves…This new realization also Another factor impacting the capacity Peace and Security Council shall not calls for a re-evaluation of the role of the of the AU is the physical location of its participate either in the discussion or in international community in support of headquarters. Addis Ababa currently the decision making process relating to Africa’s goals. It places responsibilities has a problematic communications that conflict or situation. Such Member as much on the shoulders of Govern- infrastructure. Almost every person shall be invited to present its case to the ments outside Africa as on African interviewed there brought up problems Peace and Security Council as appro- Governments. It challenges us to think related to the use of the internet, email priate, and shall, thereafter, withdraw precisely how best we can accompany and phone lines. This seems to be pos- from the proceedings.” This is a much the Africans on their path to lasting ing serious problems for missions, the more specific and effective provision peace, stability, justice and sustainable UN staff and NGOs, as well as impact- than the obscure language the Security development.” ing important events such as the Council applies and which was a signifi- conduct of the Amani Africa military During that first debate, France, the UK cant handicap to the Security Council exercise. Administrative restrictions on and the US stressed the importance of consideration of the Rwanda genocide. non-diplomatic foreign staff (such as African peacekeeping and the need on A further important distinction emerges problems with work permits and high the part of the international community from rule 15 of the Rules of Procedure of taxes) impact civil society in adverse to support these efforts. The US in par- the PSC. This provision, like the UN ver- ways. The AU may not easily count any ticular, called for enhanced ties between sion, envisages the participation in the time soon on the emergence of a vibrant the OAU and the UN. Russia, while say- PSC meetings of any member state think tank, academic and civil society ing that it was “time to discuss proposals whose interests are specifically affected community, typical for other big interna- on setting up a joint African force and by the issues discussed. But it also tional organisations’ hubs and which other inter-State peacekeeping struc- extends that right to any regional mech- have proved very helpful in the develop- tures,” stressed that that “the anism or a civil society organisation ment and functioning of organisations. international legal basis for peacemak- “involved and/or interested in a conflict ing, including on the African continent, or situation related to the discussion should continue to be the Charter of the under consideration by the Council”. 11. Council and Wider UN, the decisions of the Security Coun- Rule 16 encourages the PSC to “hold Dynamics cil and the relevant international, bilateral informal consultations with parties con- and multilateral agreements.” China cerned by or interested in a conflict or a 11.1 Political Perspectives from stressed the importance of the settle- situation under its consideration”, a the Past ment of differences and conflicts within step which the Security Council has not One of the results of the ministerial level Africa through peaceful political means taken in its own working methods, first thematic debate on Africa in 1997 and declared its belief in the ability of the resulting in much controversy and dis- was a changed dynamic within the African countries to resolve their internal pute between the Council and the Council. For the first time, rather than conflict and disputes themselves but General Assembly. approaching the African conflicts and added that the UN should “seriously security threats reactively and on a consider the reasonable proposals and The working methods of the PSC also case-by-case basis, the Council was demands of African countries”. provide for a situation where its chair- looking at the continent as a whole and person happens to be from a member at the different conflicts there as events Interestingly, some African leaders at state that is barred from decision-mak- related to one another and influencing the time seemed to caution against a ing process because it is a party to the themselves mutually, and was begin- too enthusiastic embrace of the “African conflict or the situation being discussed. ning to look for a more comprehensive solutions to the African problems”

28 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org principle. Zimbabwean President Rob- as the guarantor of international peace developing institutional ties, saying, ert Mugabe, speaking in his capacity as and security. It depends largely on the “We recognize, however, that, when it the chairman of the OAU, said, “The UN commitment of the UN to work side by comes to ending Africa’s disastrous Security Council is endowed with the side with the OAU and subregional wars, there sometimes may be limits to primary responsibility for the mainte- African organizations”. what regional organizations can realis- nance of international peace and tically achieve on their own. In those The Council president, Mauritius put security. There can therefore never be cases where the Council can bolster forward the idea that the Council estab- an exclusively African agenda for regional and national efforts, we think lish a working group to manage peace. It will, perforce, be the UN greater cooperation could be useful.” this emerging relationship and other agenda, to which the entire interna- And they added that there were Africa-specific issues. This was warmly tional community subscribes and lends instances, “in which the Council, joined embraced by the UK, with France con- support. This is our understanding of by African States and regional organi- sidering the idea “interesting” and the provisions of Chapter VIII of the zations, must be willing to clearly state several other participants supporting it. Charter of the UN, which is devoted where responsibility lies”. China, without referring to the working entirely to cooperation between the UN group specifically, said, “we fully Within about two years, Darfur became and regional organizations”. Egyptian support the Security Council in its the topic of the most intense interaction. Foreign Minister Amre Moussa, echoed strengthening of cooperation and coor- Some of the details are provided earlier this view, “While I am confident that we dination with the OAU and subregional but the Darfur experience was also all agree on the need for Africa to organizations and in its paying more most certainly key to shaping the PSC- assume a greater role in dealing with its attention to the will of the African peo- Security Council dynamic and deserves own security problems, the primary ple in the process of resolving regional some attention here. The AU deployed responsibility for the maintenance of conflicts, so as to formulate relevant its operation, AMIS, early on, when the international peace and security still lies strategies to that end. The Council Council was not in a position to take with the international community, as should consider institutionalizing its steps on the ground and instead in its represented by the Security Council.” dialogue with the OAU”. Russia said it several next decisions expressed its In the period immediately before the supported the Secretary-General’s support for AMIS and called on interna- launch of the AU some actors saw the efforts to expand links between the UN tional community to provide it with usefulness of systematising the rela- and the African organisation on conflict support. By late 2005, with the AU’s tionship between the UN and the future prevention and resolution and said it Darfur mission unable to provide the continental organisation. During the favoured, “the efforts of Africans them- needed levels of protection, some west- open debate organised in January selves being fully bolstered by the ern and African members of the Council 2002 by Mauritius (described in more authority of the Security Council, and began suggesting a transition from the detail earlier), the Secretary-General of through the logistical capability of the AU to a UN operation. In March 2006, the OAU, Amara Essy suggested, “a UN.” And adding that, “the most logical the PSC agreed “in principle” to the mechanism for consultations between approach is the one in which the Afri- transition but soon started showing the Security Council and the central cans themselves determine specific signs of a change of heart and in June organ of the OAU mechanism on con- goals and tasks of maintaining peace in the AU transmitted a report to the Coun- flict resolution,” (the adoption of the their continent, while using any peace- cil from an assessment mission in which protocol establishing the PSC was still keeping force in strict accordance with it stressed the need for strengthening more than five months away). And he the Charter of the UN,” but also stress- AMIS, saying that many actors on the added, “I would emphasize the Coun- ing that, “any preventive or coercive ground objected to the transfer and cil’s primary role in the maintenance of actions, whether they be sanctions or warning that there could be negative international peace and security. The even additional military force, must be consequences stemming from the success of this partnership, which we authorized by the Security Council”. deployment of a UN force in Darfur. In all wish for, depends fundamentally on The US was perhaps, among the P-5, part this was obviously due to the vigor- the will and ability of the Council to act the most reserved on the issue of ous diplomatic activity of Sudan which

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as an AU member, had ample opportu- ticular the P-5 (whose positions, by security”. And in March 2011 it held an nities for shaping the decisions. But in virtue of their permanent presence, best open debate on Somalia. addition, some AU actors, after two lend themselves to a multi-year look). France was another of the P-5 who in years of maintaining the very difficult Broadly speaking and primarily based recent years used its presidency to operation on the ground when nobody on members’ public statements, it focus on Africa, organising in Septem- else had been ready to step in, were appears that while a unifying theme has ber 2007 a heads of state and now reluctant to relinquish the opera- been the insistence of most members government-level debate on “Peace tion’s full control and probably saw it as on reaffirming the Security Council’s and security in Africa” chaired by a useful entry point into a new type of a primary responsibility in the mainte- President Nicolas Sarkozy, to which the relationship with the UN. It is probably nance of international peace and chairperson of the AU was invited as a fair to say that with the Darfur experi- security, no two permanent members speaker. In the different debates over ence, the AU side became more have been promoting a fully coordi- the years, it has expressed concerns assertive in its approach to the Council. nated approach. about sharing of a priori roles that could A related complication for the relation- China appears most inclined among lead to regionalisation in maintaining ship has been that the key issue in the the permanent members to follow the international peace and security and relationship soon became the AU’s Africans’ lead and to support their argued that it was important to preserve strong desire for the financing of requests. It is the only permanent mem- the universal nature of peacekeeping peacekeeping operations, undertaken ber of the Council who has consistently personnel. France has also from early by it or under its authority and with the favoured enhancing the financing for on in these discussions cautioned that consent of the UN, from UN assessed AU peacekeeping in general and the the Council, in order to endorse another contributions. The AU Assembly operation in Somalia in particular, argu- body’s decisions, needs to be involved issued a decision on this and all subse- ing that increasing the cooperation in in the processes leading up to them. It quent meetings and debates touched this field would decrease the burden on also expressed caution about the pro- upon this matter. In particular, the issue UN peacekeeping. It has also, among posals for the UN financing of AU was prominent in the 2007 open the P5, been most in favour of a more operations from assessed contribu- debate organised by South Africa. The equal partnership, arguing in the March tions, saying during the October 2009 concept paper prepared for the March 2009 open debate that, “this partner- open debate, “Every organization, first debate posed several direct questions, ship should be equal and mutually and foremost the UN, has the primary including: complementary. The UN and the AU responsibility for financing its activities. n How far should the Security Council each have comparative advantages in This is why the UN practice of financing go in recognising the decisions addressing African hot spot issues. If from assessed contributions leads to taken by the two sides strengthen coordination political, legal and financial problems n regional groups that are complemen- on the basis of mutual respect and which we believe to be serious.” tary to its work? mutual complementarity, and if they Russia has consistently highlighted the n What is the scope for the Security make joint efforts to respond to the vari- need for a firm legal grounding of the Council to incorporate outcomes of ous challenges faced by the African relationship in the precise terms of bodies such as the AU PSC in its own continent, this will greatly enhance the Chapter VIII and insisted on the Secu- decisions? overall effectiveness of the international rity Council’s primary responsibility in n Is there scope for the further and community’s efforts to address African the maintenance of international peace more direct resources support by the conflicts.” During its presidencies of the and security. It also called on the Afri- UN to regional organisations? Council in 2010 and 2011, China organ- can side to improve its reporting to the ised two relevant debates. In January 11.2 Current Political Dynamics Security Council and while supporting 2010 in what was China’s first initiative The debate about the relationship the UN backing of AU operations, it for a thematic debate, it held one on the looked at over the years, has shown the expressed its reluctance to providing “Cooperation between the UN and emergence of a fairly broad spectrum of financing from the assessed UN budget regional and subregional organizations views among Council members, in par- for AU peacekeeping. In the April 2008 in maintaining international peace and

30 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org open debate it stated “Russia has con- meeting in Africa to date in which the The different approach to human rights sistently urged that the peacekeeping AU was represented. It has supported between some Council members and activities of the AU be appropriately bol- the creation of a voluntary multi-donor most of African member states loomed stered by the authority of the Security trust fund. Overall, however, it has large during the April 2008 open debate Council and by the world Organization’s tended to favour bilateral programmes on “Peace and Security in Africa” logistical and technical capacity, on the and assistance and called on other chaired by South African President understanding that we are not talking members to do the same. Towards the Thabo Mbeki. The debate was being about directly financing such activities end of the Bush administration, the US held at the height of the Zimbabwe post from the UN budget”. pushed hard for a deeper engagement electoral crisis (the election had been on Somalia. In the open debate in held on 29 March and at the time of the The UK, even before the formal launch- October 2009, a representative of the 16 April debate the Mugabe govern- ing of the PSC, expressed its hope that Obama administration stated, “We ment was continuing to refuse to the new body will give the Security have also supported, on an exceptional release the results). During this debate Council “the kind of links that we want basis, the use of assessed contribu- on peace and security on the continent, to have with the AU—a very practical tions to support the AU Mission in only a few African speakers (notably utility.” And over the years it has taken a Somalia. However, we must stress that Tanzanian President Jakaya Kikwete, in pragmatic approach to developing an that decision was only possible in the his capacity as acting chairman of the efficient institutional relationship, point- unique circumstances of Somalia, and AU, and Senegal’s foreign minister) ing out in 2007, before the first joint the US is unable to make a broad com- mentioned the crisis and many non- meeting of the Council and the PSC, mitment to support such arrangements Africans were quite taken aback by it. “The cooperation is here to stay.” On in future operations.” It has been, how- the issue of financing, the UK has Among those expressing concern ever, according to a statement in an expressed support for a voluntary multi over the crisis in Zimbabwe were the open debate a year later, encouraged donor trust fund though not ruling out Secretary-General, Belgium, France, by the improvements in the relation- other options for the future. But it also Croatia, Italy, Costa Rica, Panama and ship between the two Councils and the stressed the need to develop a more the US. The UK Prime Minister Gordon increased number of briefings pro- strategic relationship and for the AU, Brown put it in quite strong words, “Let vided by the respective envoys to the the need to build its management a single clear message go out from here other organisation. capacity. It also pointed to the need for in New York that we are and will be vigi- a critical look at the shared experience A set of issues that have probably lant for democratic rights, that we stand so far saying during the October 2010 affected in a negative way the relation- solidly behind democracy and human debate, “We need to be more frank with ship between the AU and some of the rights for Zimbabwe and that we stand each other about what works and what Council members, both elected and ready to support Zimbabweans in build- does not work. There are many lessons permanent, has to do with human ing a better future. to be learned—for example, from the rights, fight against impunity and gover- Cheikh Tidiane Gadio, the foreign min- experience of the AU-UN Hybrid Oper- nance. The human rights situation in ister of Senegal, was sharply critical of ation in Darfur. We have at times Darfur has been repeatedly brought up most of African participants’ approach appeared to be talking past each other by several members and was a topic of saying, “Unfortunately, we Africans on Somalia, particularly with regard to some tense discussions. And the con- have answered only with a deafening military strategy.” It has also stressed troversy surrounding the International silence that can be heard everywhere.” the need to focus on conflict prevention Criminal Court’s (ICC) indictment of in addition to conflict management. Sudanese President Omar al-Bashir The April 2008 debate was part of a big with the subsequent unsuccessful strategic push led by South Africa to The US, following the establishment of attempt by the AU to have the Council increase the UN engagement with the the AU, was responsible for placing the defer the proceedings under the ICC AU. It resulted in the adoption of resolu- institutional relationship with the Afri- Statute’s Article 16 has led to consider- tion 1809 and the eventual setting up of can organisation on the Security able discomfort in the relationship. the Prodi panel, but the Zimbabwe con- Council agenda and chaired the only

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troversy added a somewhat sour note a more deliberate approach. In recent the emerging issues being discussed to the beginning of this process. years, the Working Group has not at the PSC. always been fulfilling its potential for n The Working Group chair could visit An additional issue contributing to guiding the relationship. Yet it is worth the PSC in Addis Ababa at least once determining the dynamic between the noting that at the very moment of its a year to intensify Working Group Security Council and Africa more inception, during the January 2002 members’ understanding of emerging broadly and the institutional relation- open debate on Africa, there were sug- issues, including conflict prevention ship with the AU in particular, is the fact gestions that management of the and the scope for the Working Group that while initially the lead on address- relationship with the African continental to assist the PSC and vice versa. ing Africa as a theme has been organisation should be the job descrip- n When developments at the country alternating between member states tion of the Working Group. And while specific level suggest that there are from different parts of the world (for eventually several other elements were emerging risks of conflict, the Work- example, at different points between included in the Working Group’s man- ing Group could decide to establish 2002 and 2007, the US, Japan, Sweden, date contained in the 1 March 2002 its own “Country-Specific Informal the Netherlands, Mali, the Ukraine, note from the Council president, one of Format” to pursue its work on the Mauritius, Singapore, the UK, Congo, its mandated tasks remains: “To pro- case in detail. The Council would be France and Spain) in recent years the pose recommendations to the Security able to use the Working Group as an initiative has been left essentially to the Council to enhance cooperation in con- instrument not just for its own role in African members. This situation has flict prevention and resolution, between preventing deterioration into conflict, obviously some advantages, but from the UN and regional (OAU) and subre- but also for ensuring a more effective year to year it has also led to somewhat gional organizations.” (S/2002/207) UN-AU partnership on the issue. uneven and much less collective focus n The Working Group could take a or stake in the matter. Over the years, recommendations were more proactive approach to the man- made that the Working Group also agement of the annual meetings function as the secretariat for the between the two Councils. It could annual meetings between the two 12. The Way Ahead take it upon itself to present and dis- Councils. Whether or not the Working cuss a plan for a follow up for each In the interviews conducted in prepara- Group is ready to undertake this meeting within a specified period of tion of this report, terms such as responsibility, several other options time (for example 90 days) and could strategic thinking, strategic framework might be considered: take a lead in preparing each meet- or roadmap would almost always come n The Working Group could periodi- ing, again, within a specified advance up. It appears clear that most actors cally invite the permanent observer of timeframe. This would help avoid pro- acknowledge the need for developing the AU to the UN to address it with cedural difficulties but most of all it the relationship in a more systematic updates on developments within the would ensure that key substantive way and for moving away from a reac- AU relevant to the relationship issues of common interest to both tive or project-focused approach. The between the two councils. This would Councils are given adequate atten- two respective bureaucracies, the UN also enhance the Security Council tion during the annual meetings. Secretariat and the AU Commission, members’ familiarity with the African were at time of writing engaged in elab- organisation’s work on peace and Among other options to enhance the orating several strategic documents security issues. relationship with the AU and its focus on meant to guide the relationship. n The Working Group could invite the African issues, as a symbolic gesture, 15 permanent representatives in New the Council might consider holding A clearer framework for cooperation York of the countries represented on another meeting in Africa (the last one would most likely also help in further the AU PSC to meet regularly with the was in Nairobi in 2004). interaction between the Security Coun- Working Group so that its members cil and the PSC. It seems that the In years when the joint meeting of the would be better aware of the per- Council’s Working Group on Conflict two Councils takes place in Addis spectives and concerns of the PSC Prevention and Resolution in Africa Ababa, the Council may want to rou- member states’ representatives and might serve as the locus for elaborating tinely schedule that meeting at the end

32 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org of the trip to Africa rather than its outset, operation by 1 June. was a Summit declaration on the as experiencing several issues first • S/RES/1831 (19 August 2008) effectiveness of the Security hand just prior to the meeting would renewed AMISOM for six months. Council’s role in conflict preven- likely help Security Council members • S/RES/1828 (31 July 2008) tion, calling for the strengthening frame some issues in a more substan- renewed UNAMID’s mandate for of cooperation and communica- tive way. 12 months. tion between the UN and regional The two Councils might also consider • S/RES/1814 (15 May 2008) and subregional organisations in elaborating a working document requested an update to the accordance with Chapter VIII. outlining the respective bodies’ division Secretary-General’s phased • S/RES/1624 (14 September 2005) of labour and responsibilities to help the approach in Somalia. called on states to cooperate and respective changing members to have • S/RES/1809 (16 April 2008) to adopt measures to prohibit the easier familiarisation with this aspect of encouraged increased engage- incitement of terrorism. each body’s work. ment between the AU and the UN • S/RES/1593 (31 March 2005) and called on the UN Secretariat to referred the situation in Darfur to develop a list of needed capacities the ICC. 13. UN Documents and recommendations on ways • S/RES/1590 (24 March 2005) that the AU could further develop requested the Secretary-General Selected Security Council its military, technical, logistic and report on options for UNMIS to Resolutions administrative capabilities. It also assist AMIS. • S/RES/1964 (22 December 2010) welcomed the Secretary-General’s • S/RES/1564 (18 September 2004) renewed the authorisation of proposal to set up an AU-UN panel threatened sanctions against AMISOM and raised its troop to consider the modalities of how Sudan for non-cooperation level to 12,000. to support AU peacekeeping with AMIS. • S/RES/1935 (30 July 2010) operations established under • S/RES/1556 (30 July 2004) identi- renewed UNAMID until 31 July a UN mandate. fied the situation in Darfur as a 2011. • S/RES/1801 (20 February 2008) threat to international peace and • S/RES/1910 (28 January 2010) renewed AMISOM for six months. security. renewed authorisation of AMISOM • S/RES/1772 (20 August 2007) • S/RES/1318 (7 September 2000) until 31 January 2011. renewed AMISOM. focused on peacekeeping and • S/RES/1881 (30 July 2009) • S/RES/1769 (31 July 2007) peacebuilding as a means of renewed UNAMID for one year. established UNAMID. addressing challenges to peace • S/RES/1872 (26 May 2009) • S/RES/1744 (20 February 2007) and security in Africa. renewed authorisation of AMISOM authorised AMISOM. • S/RES/1209 (19 November 1998) until 31 January 2010, approved • S/RES/1725 (6 December 2006) focused on the illegal arms trade its funding from assessed UN authorised IGASOM. in Africa. contributions and requested the • S/RES/1706 (31 August 2006) set • S/RES/1208 (19 November 1998) Secretary-General to implement a mandate for UNMIS in Darfur. focused on the issue of refugees the phased approach recom- • S/RES/1663 (24 March 2006) in Africa. mended in his 16 April report. expedited the necessary prepara- • S/RES/1197 (18 September 1998) • S/RES/1863 (16 January 2009) tory planning for the transition was on the need for the UN to renewed authorisation of AMISOM from AMIS to a UN operation. provide support to regional and for up to six months, endorsed the • S/RES/1631 (17 October 2005) subregional organisations and to Secretary-General’s proposals to addressed the issue of coopera- strengthen coordination between strengthen AMISOM and tion between the UN and regional the UN and those organisations. expressed the Council’s intention organisations. • S/RES/1196 (16 September 1998) to establish a UN peacekeeping • S/RES/1625 (14 September 2005) focused on the implementation of

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arms embargoes in Africa. • S/PRST/2007/7 (28 March 2007) 1998) took stock of the Council’s • S/RES/1170 (28 May 1998) estab- was on relations between the Africa-focused work. lished the Working Group on UN and regional organisations, • S/PRST/1998/28 (16 September Conflict Prevention and Resolution particularly the AU and asked the 1998) set general standards in Africa. Secretary-General for a report on for peacekeeping and stressed • S/RES/866 (22 September 1993) specific proposals on how the UN the need to be fully informed of established UNOMIL. can better support further cooper- peacekeeping activities carried • S/RES/143 (14 July 1960) ation and coordination with out by regional or subregional established ONUC. regional organisations on Chapter organisations. Selected Presidential Statements VIII arrangements. • S/PRST/1997/46 (25 September • S/PRST/2007/1 (8 January 2007) 1997) asked the Secretary- • S/PRST/2010/21 (22 October 2010) requested the Secretary-General General to report on the sources reaffirmed Council commitment to to provide the Council with more of conflict in Africa, and how to strengthening its partnership with regular analytical reporting on prevent and address them. the AU PSC. regions of potential armed conflict • S/PRST/2009/26 (26 October Selected Secretary-General’s Reports and stressed the importance of 2009) reiterated the importance of • S/2011/54 (2 February 2011) was establishing comprehensive strat- a more effective strategic relation- the review of the Ten-Year Capac- egies on conflict prevention. ship between the UN and the AU, ity-Building program for the AU. • S/PRST/2006/55 (19 December underlining the importance of • S/2010/514 (14 October 2010) was 2006) called for the support pack- expediting the implementation of on support for AU peacekeeping. ages and hybrid operation to be the UN-AU Ten-Year Capacity- • S/2009/470 (18 September 2009) implemented. Building Programme. was on support to AU peace­ • S/PRST/2006/5 (3 February 2006) • S/PRST/2009/3 (18 March 2009) keeping operations authorised asked the Secretary-General to requested the Secretary-General by the UN. begin contingency planning for to submit a report no later than 18 • S/2009/210 (16 April 2009) was a transition from AMIS to a UN September 2009 on practical ways the report requested by resolution operation. to provide effective support for the 1863 on a possible UN peace- • S/PRST/2004/44 (19 November AU when it undertakes UN autho- keeping deployment in Somalia. 2004) recognised the importance rised peacekeeping operations. • S/2008/186 (7 April 2008) was on of strengthening cooperation with • S/PRST/2008/33 (4 September the relationship between the UN the AU in order to help build its 2008) requested detailed planning and regional organisations. capacity to deal with collective on an international stabilisation • S/2008/178 (14 March 2008) security challenges. force and peacekeeping force included contingency peace­ • S/PRST/2004/18 (25 May 2004) in Somalia. keeping plans. called for the deployment of • S/PRST/2007/31 (28 August 2007) • S/2008/18 (14 January 2008) was monitors in Darfur. requested the Secretary-General on the implementation of Security • S/PRST/2002/2 (31 January 2002) to submit a report on the options Council resolution1625 on conflict indicated that the Council would for further implementation of prevention, particularly in Africa. consider establishing the ad resolution 1625. • S/2007/204 (13 April 2007) argued hoc Working Group on Conflict • S/PRST/2007/15 (25 May 2007) against a UN peacekeeping Prevention in Africa. welcomed the AU-UN report on presence in Somalia at the time. • S/PRST/1998/35 (30 November the hybrid operation in Darfur and • S/2006/591 (28 July 2006) 1998) reaffirmed the increasingly called for the full implementation contained recommendations important role of regional arrange- without delay of the UN light and for the transition from AMIS ments in maintaining peace and heavy support packages of to a UN mission. security. assistance to AMIS. • A/59/2005 (21 March 2005) was • S/PRST/1998/29 (24 September

34 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org the report, In Larger Freedom: was from the permanent represen- Security Council containing a towards development, security tative of South Africa to the communiqué by the AU PSC on and human rights for all. president of the Security Council the situation in Somalia. • A/59/565 (2 December 2004) containing the 2008 report on the • S/2007/307 (23 May 2007) and was the report of the Secretary- activities of the Ad Hoc Working rev. 1 (5 June 2007) were letters General’s High Level Panel on Group on Conflict Prevention and from the Secretary-General to Threats, Challenges and Change. Resolution in Africa. the president of the Security • S/1998/318 (13 April 1998) was on • S/2008/813 (24 December 2008) Council containing the report of the causes of conflict in Africa. was from the Secretary-General the Secretary-General and the • S/1995/1 (25 January 1995) was forwarding the AU-UN panel chairperson of the AU Commis- the supplement to An Agenda report (the Prodi report) on how sion on the AU-UN hybrid for Peace. to support AU peacekeeping operation in Darfur. • S/24111 (17 June 1992) was the operations established under UN • S/2007/148 (14 March 2007) was report, An Agenda for Peace. mandate to the Security Council from the permanent representative Selected Letters and General Assembly. of South Africa addressed to the • S/2008/804 (19 December 2008) Secretary-General forwarding the • S/2010/694 (30 December 2010) was from the Secretary-General concept paper on the relationship was from the permanent represen- to the president of the Security between the UN and regional tative of Uganda to the president of Council proposing UN support to organisations, in particular the AU, the Security Council containing AMISOM. in the maintenance of international the 2010 report on the activities of • S/2008/263 (21 April 2008) was peace and security. the Ad Hoc Working Group on from the permanent representative • S/2006/961 (6 December 2006) Conflict Prevention and Resolution of South Africa to the president of was from the permanent represen- in Africa. the Security Council containing tative of the Congo to the president • S/2010/433 (6 August 2010) was the joint communiqué of the 17 of the Security Council containing from the Secretary-General to the April 2008 meeting in New York the AU PSC communiqué endors- president of the Security Council between the two councils. ing the hybrid operation. outlining the creation of the UN • S/2007/783 (31 December 2007) • S/2006/653 (3 August 2006) was Office to the AU. was from the chargé d’affaires a.i. from the permanent representative • S/2009/10 (30 January 2009) of the permanent mission of the of the Tanzania to the president of transmitted the summary Congo to the president of the the Security Council containing statement by the Secretary- Security Council containing the the report of the Security Council’s General on matters of which 2006-2007 report on the activities work in January, under the presi- the Security Council was seized of the Ad Hoc Working Group on dency of Tanzania. and on the stage reached in Conflict Prevention and Resolution • S/2006/483 (26 June 2006) was their consideration in Africa. a letter from the Permanent • S/2009/681 (30 December 2009) • S/2007/496 (14 August 2007) was Representative of Finland to the was from the chairman of the from the chargé d’affaires a.i. of President of the Security Council Ad Hoc Working Group on Conflict the permanent mission of the transmitting the third annual report Prevention and Resolution in Congo to the Secretary-General of the workshop for newly elected Africa to the president of the containing a concept paper for a members. Security Council containing debate on the role of the Security • S/2006/461 (28 June 2006) was the 2009 report on the activities Council in the maintenance of from the permanent representative of the Ad Hoc Working Group on peace and security in Africa. of the Congo to the president of Conflict Prevention and Resolution • S/2007/444 (18 July 2007) was the Security Council presenting in Africa. from the permanent representative the findings of the joint assess- • S/2008/836 (30 December 2008) of Ghana to the president of the ment mission.

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• S/2006/156 (10 March 2006) was • S/PV.6092 and Res. 1 (18 March 2003) was a debate on the from the permanent representative 2009) was the debate on the relationship between the Council of the Congo to the President of AU-UN Panel’s report on modali- and regional organisations at the Security Council containing ties for support to AU operations. which the AU PSC communiqué accept- • S/PV.5868 and Res. 1 (16 April a representative of the presidency ing a hybrid operation “in principle.” 2008) was an open debate on of the African Union addressed • S/2002/979 (29 August 2002) was peace and security in Africa. the council. from the permanent representative • S/PV.5858 (20 March 2008) was a • S/PV.4577 and Res. 1 (18 July of Mauritius to the president of the briefing by Special Representative 2002) was a ministerial level meet- Security Council containing rec- of the Secretary General Ahmedou ing on the situation in Africa. ommendations of the Ad Hoc Ould-Abdallah. • S/PV.4538 and Res. 1 (22 May Working Group on Conflict • S/PV.5837 (15 February 2008) was 2002) was an open debate featur- Prevention in Africa. an AU briefing to the Council. ing a briefing by the chair of the ad • S/2002/46 (10 January 2002) was • S/PV.5749 (25 September 2007) hoc Working Group on Conflict from the permanent representative was a meeting on peace and secu- Prevention in Africa. of Mauritius to the president of the rity in Africa chaired by the French • S/PV.4460 and Res. 1 and Res. 2 Security Council that served as the President Nicolas Sarkozy. (29-30 January 2002) was an open background paper for the 29-30 • S/PV.5735 and Res. 1 (28 August debate on the situation in Africa January 2002 ministerial-level 2007) was the discussion on the organised by Mauritius. debate on Africa. role of the Security Council in • S/PV.4194 (7 September 2000) • S/1997/730 (22 September 1997) conflict prevention and resolution, was the debate on “ensuring an was from the permanent represen- in particular in Africa. effective role of the Security tative of Argentina addressed to • S/PV.5649 (28 March 2007) was a Council in the maintenance of the president of the Security Coun- Council debate under the South international peace and security, cil that served as a background African presidency on relations particularly in Africa”. paper for the 25 September 1997 between the UN and regional • S/PV.4081 and Res. 1 (15 Decem- ministerial-level debate on Africa. organisations, particularly the AU. ber 1999) was a follow on meeting Selected Debates • S/PV.5448 (31 May 2006) was a to the debate on the situation in briefing by the Chairman of the AU. Africa in September, 1998. • S/PV.6494 and Res. 1 (10 March • S/PV.5261 (14 September 2005) • S/PV.4049 and Res. 1, Res. 2, and 2011) was an open debate on were the records of the Council Res. 3 (29-30 September 1999) Somalia, presided over by China. summit meeting and the adoption was a two-day meeting on the • S/PV.6409 (22 October 2010) of resolution 1625. Secretary General’s report on the was an open debate at which the • S/PV.5084 (19 November 2004) causes of conflict in Africa Secretary-General’s report on was a meeting on the AU held in (S/1998/318). assistance to AU peacekeeping Nairobi, Kenya. • S/PV.3819 (25 September 1997) operations was discussed. • S/PV.5043 (24 September 2004) was the first ministerial-level • S/PV.6257 (13 January 2010) was was an open debate on Africa debate on Africa. a thematic debate on cooperation featuring an address from the • S/PV.3046 (31 January 1992) was with regional and subregional Chairman of the AU. the first Security Council meeting organisations, presided over • S/PV.4978 (25 May 2004) was a held at the level of heads of state. by China. meeting in which the Council’s first • S/PV.6206 (26 October 2009) Notes by the President of the Security decision on Darfur was adopted, Council on the Working Group in was a debate on the report of the following an Arria formula briefing Conflict Prevention and Resolution AU-UN panel which covered in Africa on the subject. modalities for support to AU • S/PV.4739 and Corr. 1 (11 April • S/2010/654 (21 December 2010) peacekeeping operations. extended the mandate of the

36 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org Working Group until the end 2002 open debate. Selected General Assembly Documents of 2011. • S/2002/207 (1 March 2002) • S/2009/650 (15 December 2009) outlined the terms of reference of • A/RES/65/274 (18 April 2011) extended the mandate of the the Working Group. was a resolution on cooperation Working Group until the end Other between the UN and the AU. of 2010. • A/RES/63/275 (12 May 2009) was • S/2010/392 (9 July 2010) was the • S/2008/795 (18 December 2008) a resolution authorising the financ- joint communiqué issued after a extended the mandate of the ing of UN support to AMISOM. consultative meeting at UN head- Working Group until the end • A/RES/62/275 (7 October 2008) quarters with the AU PSC and top of 2009. noted “with appreciation” the AU Commission officials. • S/2007/771 (31 December 2007) establishment of the AU Peace- • S/2009/303 (11 June 2009) was extended the mandate of the keeping Support Team. the report of the Council mission Working Group until the end • A/RES/62/232 (22 December to the AU, Rwanda, the DRC and of 2008. 2007) authorised UNAMID’s Liberia, which contained the • S/2005/833 (30 December 2005) budget. communiqué of 16 May 2009 from contained the 2005 report on the • A/RES/61/296 (5 October 2007) the consultative meeting between activities of the Working Group. requested the UN system to inten- the members of the Security • S/2005/828 (27 December 2005) sify its assistance to the AU. Council and the AU. contained the report on the 15 • A/61/630 (12 December 2006) • S/2007/421 (11 July 2007) was the December Working Group semi- was the joint declaration on the report of the Security Council visit nar on cooperation between the Ten-Year Capacity-Building to Addis Ababa, Accra, Abidjan, UN and AU. Programme for the AU. Khartoum and Kinshasa contain- • S/2005/814 (21 December 2005) • A/RES/60/1 (24 October 2005) ing the joint communiqué from the extended the mandate of the was the 2005 World Summit 16 June 2007 meeting. Working Group until the end Outcome. • S/Agenda/5084 (18 November of 2006. • A/RES/49/57 (9 December 1994) 2004) was the provisional agenda • S/2004/1031 (30 December 2004) contained the Declaration on the for the 5084th meeting of the extended the mandate of the Enhancement of Cooperation Security Council featuring the item Working Group until the end between the UN and Regional “Institutional Relationship with the of 2005. Arrangements or Agencies in the African Union.” • S/2004/989 (21 December 2004) Maintenance of International • Agreement Between the United contained the 2004 report on the Peace and Security. Nations and the Organization of activities of the Working Group. African Unity on Co-Operation • S/2003/1188 (22 December 2003) Between the Latter and the United contained the 2003 report on the Nations Economic Commission for 14. AU Documents activities of the Working Group. Africa (15 November 1965) • S/2003/1183 (18 December 2003) • S/23500 (31 January 1992) Peace and Security Council extended the mandate of the Documents requested the Secretary-General Working Group until the end recommend ways to strengthen • PSC/PR/Comm.(CCLXXI) (8 April of 2004. and make the UN more efficient. 2011) requested UNAMID make • S/2002/1352 (12 December 2002) all necessary preparations for Selected Press Statement contained recommendations the Darfur Political Process “as from the Chairman of the Working • SC/10065 (21 October 2010) a matter of priority.” Group. was a statement on Somalia, • Assembly/AU/ Dec.338(XVI) • S/2002/607 (31 May 2002) con- taking note of the decisions on (31 January 2011) called on the tained the summary of the 22 May Somalia at the 15 October meeting Council to provide greater support of the AU PSC. to AMISOM.

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• PSC/PR/Comm(CCXIV) (8 Conflicts in Africa and the Promo- Appendix January 2010) renewed AMISOM. tion of Sustainable Peace. Members and Chairs of the • PSC/MIN/Comm(CXLII) (21 July • Assembly/AU/Dec.145(VIII) (29-30 AU PSC 2008) requested suspension of January 2007) in its paragraph 20 The process of election of the members ICC proceedings against Sudan. called upon the UN to examine the of the PSC is based on the provisions of • PSC/HSG/Comm(CXXXIX) (29 possibility of funding AU peace- the AU Constitutive Act, the Protocol June 2008) renewed AMISOM. keeping operations. Relating to the Establishment of the PSC • PSC/PR/2(LXXXV) (8 August 2007) • ASS/AU/Dec.1 (I) (9-10 July 2002) and the Modalities for election of Mem- contained the working methods of ended the transition period. bers of the PSC adopted by the Policy the PSC. Other Documents Organs of the AU in March 2004. The ini- • PSC/PR/2 (LXXXIII) (30 July 2007) • African Peace and Security tial members of the PSC were elected was the Conclusions of the Retreat Architecture: 2010 Assessment during the Fourth Ordinary Session of of the PSC of the AU, Dakar, Study (4-10 November 2010) the Executive Council held in Addis Senegal, 6-7 July 2007. • Audit of the African Union Ababa, Ethiopia in March 2004. Newly • PSC/PR/Comm (LXXIX)) (22 June (18 December 2007) elected members take office on 1 April. 2007) authorised UNAMID. • Framework for the Operationaliza- • PSC/PR/Comm(LXIX) (19 January tion of the Continental Early Initial members starting their terms in 2007) authorised AMISOM. Warning System as Adopted by April 2004: • PSC/PR/Comm(LXVIII) n Governmental Experts Meeting on Countries with three-year terms: (14 December 2006) welcomed Early Warning and Conflict Preven- Algeria, Ethiopia, Gabon, Nigeria and an Egyptian concept paper tion Held in Kempton Park (South South Africa on coordination with the UN n Africa) (17-19 December 2006) Countries with two-year terms: Security Council. • Agreement with the Sudanese Cameroon, Congo, Ghana, Kenya, • PSC/MIN/Comm (LXIII) (20 Parties on the Modalities for the Lesotho, Libya, Mozambique, Sene- September 2006) increased the Establishment of the Ceasefire gal, Sudan and Togo strength of AMIS and extended Commission and the Deployment it until 31 December 2006. In March 2006 ten vacancies arose as a of Observers in the Darfur (28 • PSC/PR/Comm(LXII) (13 Septem- result of the expiry of the term of office of May 2004) outlined provisions for ber 2006) formally endorsed the ten PSC Members elected in 2004. the deployment of AU observers IGASOM’s mission plan. The retiring members were eligible for to Darfur • PSC/PR/Comm(XLV) (12 January re-election. The Commission informed • Rules of Procedure of the AU 2006) accepted the deployment member states accordingly and that the PSC, adopted in March 2004 of UN peacekeepers in Darfur election would be carried out during the • Protocol Relating to the Establish- “in principle”. Eighth Ordinary Session of the Execu- ment of the Peace and Security • PSC/PR/Comm(XXIX) (12 May tive Council scheduled for Khartoum in Council of the African Union 2005) endorsed IGASOM. January 2006. At that Session, the (9 July 2002) established the • Press Release No 098/2004 (28 Executive Council elected the following AU PSC. October 2004) described AMIS members for two-year terms: Botswana, • AHG/Dec.1 (XXXVII) (9-11 July deployments. Burkina Faso, Cameroon, Congo, 2001) described the transitional • PSC/PR/Comm.(XVII) (20 October Egypt, Ghana, Malawi, Rwanda, Sene- process from the OAU to the AU. 2004) expanded AMIS to an autho- gal and Uganda. • The Constitutive Act of the African rised force of 3,320 personnel. Union (11 July 2000) established PSC members starting in April 2006 Decisions and Declarations of the the AU. were: Assembly of the AU • EAHG/Draft/Decl. (IV) Rev.1 n Countries with three-year terms: • AP/ASSEMBLY/PS/DECL.(I) (8-9 September 1999) was the Algeria, Ethiopia, Gabon, Nigeria and (31 August 2009) was the Tripoli Sirte Declaration. South Africa Declaration on the Elimination of n Countries with two-year terms: Botswana, Burkina Faso, Cameroon,

38 Security Council Report One Dag Hammarskjöld Plaza, 885 Second Avenue, 21st Floor, New York, NY 10017 T:1 212 759 9429 F:1 212 759 4038 www.securitycouncilreport.org Congo, Egypt, Ghana, Malawi, The terms of all 15 members expired as The next elections for ten two-year Rwanda, Senegal and Uganda of 31 March 2010. The Commission Council seats will be in January 2012; informed member states accordingly Elections for five three-year Council In March 2007 five vacancies arose as a and that elections would be carried out seats will be in January 2013. result of the expiry of the term of the five during the Sixteenth Ordinary Session PSC members elected in March 2004 for of the Executive Council scheduled for three-year terms. The retiring members Addis Abba in January 2010. were eligible for re-election. The Com- mission informed member states that PSC members since April 2010 are: elections would be carried out during n Countries with three-year terms: the Tenth Ordinary Session of the Execu- Equatorial Guinea, Kenya, Libya, tive Council scheduled for Addis Ababa Nigeria and Zimbabwe in January 2007. The following members n Countries with two-year terms: were elected for three years: Algeria, Benin, Burundi, Chad, Côte d’Ivoire, Angola, Ethiopia, Gabon and Nigeria. Djibouti, Mali, Mauritania, Namibia, Rwanda and South Africa PSC members starting in April 2007 were: Rotating Chairmanship of the PSC from April 2010 to March 2012 n Countries with three-year terms: Algeria, Angola, Gabon, Ethiopia and Country Month Year Nigeria Benin April 2010 n Countries with two-year terms: Burundi May " Botswana, Burkina Faso, Cameroon, Chad June " Congo, Egypt, Ghana, Malawi, Côte d’Ivoire July " Rwanda, Senegal and Uganda Djibouti August " In March 2008, two-year terms of ten Equatorial Guinea September " members were expiring. The Commis- Kenya October " sion informed member states Libya November " accordingly and that elections would be carried out during the Twelfth Ordinary Mali December " Session of the Executive Council Mauritania January 2011 scheduled for Addis Ababa in January Namibia February " 2008. At that session, the Executive Nigeria March " Council elected the following ten mem- Rwanda April " bers for a term of two years: Benin, Burkina Faso, Burundi, Chad, Mali, South Africa May " Rwanda, Swaziland, Tunisia, Uganda Zimbabwe June " and Zambia Benin July " PSC members starting in April 2008 Burundi August " were: Chad September " n Countries with three-year terms: Côte d’Ivoire October " Algeria, Angola, Ethiopia, Gabon Djibouti November " and Nigeria Equatorial Guinea December " n Countries with two-year terms: Benin, Burkina Faso, Burundi, Chad, Mali, Kenya January 2012 Rwanda, Swaziland, Tunisia, Uganda Libya February " and Zambia Mali March "

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