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EINE KOOPERATION MIT VARIABLER GEOMETRIE Die Afrikanische Union Und Die Regionalen Wirtschaftsgemeinschaften Inhalt

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EINE KOOPERATION MIT VARIABLER GEOMETRIE Die Afrikanische Union Und Die Regionalen Wirtschaftsgemeinschaften Inhalt PERSPEKTIVE Das aktuelle System der kol- lektiven Sicherheit in Afrika FRIEDEN UND SICHERHEIT bewegt sich in einem Span- nungsverhältnis zwischen kontinentaler Integration und EINE KOOPERATION regionalen Realitäten. Das Verhältnis zwischen der MIT VARIABLER Afrikanischen Union (AU) und den Regionalen Wirtschafts- gemeinschaften (RECs) ist be- stimmt durch eine vielschich- GEOMETRIE tige Kooperation. Die Afrikanische Union und die Regionalen Wirtschaftsgemeinschaften Da die Afrikanische Friedens- und Sicherheitsarchitektur (APSA) seit langem vor politi- Amandine Gnanguênon schen und praktischen Her- August 2019 ausforderungen steht, suchen die Staaten nach dem richti- gen Kurs im Umgang mit den unterschiedlich gelagerten Bedrohungen, wobei die Ad-hoc-Koalitionen zweifels- frei zur weiteren Erosion des Verhältnisses zwischen AU und RECs beitragen. FRIEDEN UND SICHERHEIT EINE KOOPERATION MIT VARIABLER GEOMETRIE Die Afrikanische Union und die Regionalen Wirtschaftsgemeinschaften Inhalt Kollektive Sicherheit in Afrika: Von der kontinentalen Integration zu den regionalen Realitäten ........................ 2 Das Verhältnis von AU und RECs zwischen Kooperation und Konkurrenz .......... 3 Ad-hoc-Kooperationen als Reaktion auf die mangelnde Operationalität ............ 5 Die Suche nach dem richtigen Kurs im Umgang mit unterschiedlich gelagerten Bedrohungen ..................................................... 6 Abkürzungsverzeichnis ........................................................................................8 1 FRIEDRICH-EBERT-STIFTUNG – EINE KOOPERATION MIT VARIABLER GEOMETRIE KOLLEKTIVE SICHERHEIT IN AFRIKA: Da die meisten Länder Mitglied mehrerer Organisationen VON DER KONTINENTALEN INTEGRATION sind, ist der ökonomische Integrationsprozess in jeder einzel- ZU DEN REGIONALEN REALITÄTEN nen Region von mindestens zwei Zusammenschlüssen ab- hängig: beispielsweise von der Westafrikanischen Wirt- Die Afrikanische Union (AU) setzte sich 2002 das Ziel, ein schafts- und Währungsunion (UEMOA) und der Wirtschafts- System der kollektiven Sicherheit zu erneuern und zu festi- gemeinschaft Westafrikanischer Staaten (ECOWAS) oder gen, das von einer kontinentalen Integration, dem Anspruch auch von der Zentralafrikanischen Wirtschaftsgemeinschaft der Organisation für Afrikanische Einheit (OAU), ausgeht (CEEAC) und der Zentralafrikanischen Wirtschafts- und Wäh- und sich den regionalen Dynamiken entsprechend entwi- rungsgemeinschaft (CEMAC). Die OAU verfehlte ihr Anfang ckelt. Die Zusammenarbeit zwischen der OAU bzw. später der 1980er-Jahre gesetztes Ziel der Rationalisierung, sprich der AU und den Regionalen Wirtschaftsgemeinschaften der Koordinierung und Harmonisierung politischen Handelns (RECs) verläuft in vier Stufen, die das sicherheitspolitische mit Blick auf die Herstellung einer Identität zwischen REC Verhältnis bis heute bestimmen. und Region. Auch die UN-Wirtschaftskommission für Afrika stellte 2006 fest, dass das Problem fortbesteht. Ihrem Bericht Schon vor ihrer staatlichen Unabhängigkeit galten die regio- zufolge gehören von den 53 afrikanischen Ländern nur 7 ei- nale Kooperation und Integration als unerlässlicher Bestand- ner einzigen REC an, 27 Länder sind Mitglied zweier und 18 teil jeglicher Entwicklungsstrategie für die afrikanischen weitere gar dreier RECs. Diese Überschneidungen setzen die Länder. Als die OAU 1963 gegründet wurde, existierten be- Organisationen nicht nur in Konkurrenz zueinander, sondern reits zahlreiche ökonomische Zusammenschlüsse; ein Exper- sie verschärfen sich mit der Ausweitung des Aufgabenbe- tenbericht beziffert die Zahl der zwischenstaatlichen Orga- reichs auf die Sicherheitspolitik. nisationen (IGO) in Afrika heute auf mehr als 200.1 Mit der Aufteilung des Kontinents in fünf Regionen legte die OAU Die Konflikte in Liberia (1989), Somalia (1990) und Ruanda 1976 den Grundstein zur Kooperation zwischen der konti- (1993) waren eine erste Bewährungsprobe für die afrikani- nentalen und den regionalen Organisationen. Auf dieser in- schen Staaten. Angesichts einer Intensivierung der Konflikte stitutionellen Aufteilung gründet das regionale Rotations- und ihrer drohenden Ausweitung auf die Anrainerstaaten, prinzip bei der Benennung der afrikanischen Staaten, die im suchten einzelne RECs (ECOWAS, SADC) durch rege regio- Sicherheitsrat der Vereinten Nationen vertreten sind. Sie nale Aktivitäten die Schwächen der OAU auszugleichen. De- dient auch als Bezugspunkt für die Wahl der 15 Mitglieder ren Effizienz erwies sich nämlich – trotz der Verabschiedung des Friedens- und Sicherheitsrats der Afrikanischen Union der Deklaration über die Errichtung eines Mechanismus für (PSC, Peace and Security Council) und der fünf Persönlich- Konfliktverhütung, -bewältigung und -lösung (1993) – als keiten im Rat der Weisen (Panel of the Wise), sprich: zweier beschränkt durch politische und praktische Zwänge. Die Elemente der APSA, in denen jede Region vertreten ist. Der RECs verselbständigten sich also und lösten sich vom ur- Lagos-Aktionsplan und die Schlussakte von Lagos (1980) sprünglich durch die OAU gesetzten Rahmen, während der stießen einen Rationalisierungsprozess an, der die institutio- stärkere Zusammenhang zwischen Sicherheits- und Ent- nellen Überlappungen, die Streuung von Ressourcen und wicklungspolitik zu weiteren Unklarheiten über die Aufga- die Legitimitätsstreitigkeiten verschiedener regionaler Insti- benverteilung führte. tutionen verringern sollte. Mit dem Ziel der Einigung des Kontinents unterzeichneten die Staats- und Regierungs- In dieser Praxis des forum shopping zeigt sich eine Vorstellung chefs 1991 den Vertrag von Abuja, mit dem nach europäi- regionaler Integration, die auf einer Kosten-Nutzen-Rechnung schem Vorbild die Afrikanische Wirtschaftsgemeinschaft fußt. Die Mehrfachmitgliedschaft ist gängige Praxis von Staa- (AEC) ins Leben gerufen wurde. Die regionale Integration ten, die bestimmte politische Bündnisse zu wahren und die des Kontinents fußt auf der Koordination, Harmonisierung Vorteile einer Zugehörigkeit zu mehreren Zusammenschlüssen und fortschreitenden Integration der neugegründeten RECs, auszunutzen suchen. Wesentliche Beweggründe für beispiels- die als Stützpfeiler der AEC fungieren sollen – dieser Status weise die Aufstellung der zentralafrikanischen Multinationa- wurde 14 bereits bestehenden regionalen und subregiona- len Truppe der CEMAC (FOMUC) im Jahr 2002 waren deren len Organisationen zuerkannt, die weiterhin unabhängig frankophone Struktur und die organisatorische Unterstützung sind und je eigenen Verträgen unterliegen; seit 2006 ist die Frankreichs. Anschließend gab sich die CEEAC 2003 mit dem Anzahl dieser Organisationen auf acht begrenzt.2 Rat für Frieden und Sicherheit in Zentralafrika (COPAX) ein po- litisches Organ, das ihr sicherheitspolitische Befugnisse ver- leiht. Es brauchte allerdings bis 2008, um die FOMUC durch 1 Réunion des Experts Gouvernementaux sur la Rationalisation des eine CEEAC-Operation, nämlich die Mission zur Friedenssiche- Communautés Economiques Régionales (CER) [Sitzung regierungs- amtlicher Experten zur Rationalisierung der Regionalen Wirtschafts- rung in Zentralafrika (MICOPAX) zu ersetzen. Zwar weist jede gemeinschaften, REC], Ouagadougou (Burkina Faso), 27.–31. März Region ein gewisses Maß an Rivalität auf, bemerkenswert ist 2006, Abschlussbericht der Beratungen von Accra und Lusaka. indes die Annäherung zwischen der SADC, der Ostafrikani- 2 Namentlich sind das die Zwischenstaatliche Entwicklungsbehörde schen Gemeinschaft (EAC) und dem Gemeinsamen Markt für (IGAD), die Ostafrikanische Gemeinschaft (EAC), die Entwicklungs- gemeinschaft des Südlichen Afrika (SADC), die Zentralafrikanische das Östliche und Südliche Afrika (COMESA) im Rahmen des Wirtschaftsgemeinschaft (CEEAC), die Wirtschaftsgemeinschaft trilateralen Abkommens von 2008. Westafrikanischer Staaten (ECOWAS), die Gemeinschaft der Staa- ten des Sahel und der Sahara (CENSAD), der Gemeinsame Markt für das Östliche und Südliche Afrika (COMESA) und die Union des Arabi- Mehrfachmitgliedschaften stehen oft in Verbindung mit der schen Maghreb (UAM). geographischen und/oder strategischen Lage eines Landes. 2 Das VerhÄltnis von AU und RECS zwischen Kooperation und Konkurrenz Abbildung 1 Die fünf Regionen Afrikas nach OAU-Definition ATLANTISCHER TUNESIEN Madeira (PT) MITTELMEER OZEAN MAROKKO Kanaren (ES) ALGERIEN LIBYEN ÄGYPTEN Westsahara (unbestimmter Status) ROTES MEER KAP MAURETANIEN MALI VERDE NIGER TSCHAD SUDAN ERITREA ARABISCHES SENEGAL MEER GAMBIA BURKINA GUINEA-BISSAU FASO DSCHIBUTI GUINEA NIGERIA SIERRA LEONE ELFEN - ÄTHIOPIEN BEIN- GHANA KÜSTE ZENTRALAFRIKANISCHE LIBERIA SÜDSUDAN REPUBLIK KAMERUN TOGO BENIN SOMALIA SÃO TOME UND PRINCIPE UGANDA KENIA REPUBLIK DEMOKRATISCHE GABUN KONGO REPUBLIK RUANDA KONGO ÄQUATORIAL- INDISCHER GUINEA BURUNDI OZEAN Ascension TANSANIA (UK) SEYCHELLEN KOMOREN ANGOLA MALAWI St. Helena Mayotte ATLANTISCHER SAMBIA (UK) (FR) OZEAN SIMBABWE MOSAMBIK MAURITIUS NAMIBIA Straße von Mosambik BOTSWANA Réunion MADAGASKAR (FR) ESWATINI Marokko hatte sich 1984 aus der OAU zurückgezogen und ist LESOTHO seit 2017 Mitglieder der AU. Mauretanien gehörte 1976 zur SÜDAFRIKA Region Westafrika und ist seit 2004 Mitglied von Nord afrika. Der Südsudan wurde 2011 in die AU aufgenommen. © Gnanguênon | Eric Gaba (CC BY-SA 3.0) Angola beispielsweise positioniert sich als swing state3, gen ausreichend kräftige politische Impulse und fungieren sprich als sicherheitspolitischer Akteur in Zentralafrika und nun als Rahmen für militärische Operationen. Die regionalen als Wirtschaftspartner
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