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Power-Sharing More than Humanitarianism: A Strategic U.S. Approach Toward Africa More than Humanitarianism: A Strategic U.S. Approach Toward Africa Report of an Independent Task Force Sponsored by the Council on Foreign Relations Founded in 1921, the Council on Foreign Relations is an independent, national membership organization and a nonpartisan center for scholars dedicated to producing and disseminating ideas so that individual and corporate members, as well as policymakers, journalists, students, and interested citizens in the United States and other countries, can better understand the world and the foreign policy choices facing the United States and other governments. The Council does this by convening meetings; conducting a wide-ranging Studies program; publishing Foreign Affairs, the preeminent journal covering international affairs and U.S. foreign policy; maintaining a diverse membership; sponsoring Independent Task Forces; and providing up- to-date information about the world and U.S. foreign policy on the Council’s website, www.cfr.org. THE COUNCIL TAKES NO INSTITUTIONAL POSITION ON POLICY ISSUES AND HAS NO AFFILIATION WITH THE U.S. GOVERNMENT. ALL STATEMENTS OF FACT AND EXPRESSIONS OF OPINION CONTAINED IN ITS PUBLICATIONS ARE THE SOLE RESPONSIBILITY OF THE AUTHOR OR AUTHORS. The Council will sponsor an Independent Task Force when (1) an issue of current and critical importance to U.S. foreign policy arises, and (2) it seems that a group diverse in backgrounds and perspectives may, nonetheless, be able to reach a meaningful consensus on a policy through private and nonpartisan deliberations. Typically, a Task Force meets between two and five times over a brief period to ensure the relevance of its work. Upon reaching a conclusion, a Task Force issues a report, and the Council publishes its text and posts it on the Council website. Task Force reports reflect a strong and meaningful policy consensus, with Task Force members endorsing the general policy thrust and judgments reached by the group, though not necessarily every finding and recommendation. Task Force members who join the consensus may submit additional or dissenting views, which are included in the final report. “Chairman’s Reports” are signed by Task Force chairs only and are usually preceded or followed by full Task Force reports. Upon reaching a conclusion, a Task Force may also ask individuals who were not members of the Task Force to associate themselves with the Task Force report to enhance its impact. All Task Force reports “benchmark” their findings against current administration policy in order to make explicit areas of agreement and disagreement. The Task Force is solely responsible for its report. The Council takes no institutional position. For further information about the Council or this Task Force, please write to the Council on Foreign Relations, 58 East 68th Street, New York, NY 10021, or call the Communications office at 212-434-9679. Visit our website at www.cfr.org. Copyright © 2005 by the Council on Foreign Relations®, Inc. All rights reserved. Printed in the United States of America. This report may not be reproduced in whole or in part, in any form beyond the reproduction permitted by Sections 107 and 108 of the U.S. Copyright Law Act (17 U.S.C. Sections 107 and 108) and excerpts by reviewers for the public press, without express written permission from the Council on Foreign Relations. For information, write to the Publications Office, Council on Foreign Relations, 58 East 68th Street, New York, NY 10021. Task Force Chairs Anthony Lake Christine Todd Whitman Project Directors Princeton N. Lyman J. Stephen Morrison Task Force Members J. Dennis Bonney Nicholas P. Lapham* Lael Brainard Rick A. Lazio Chester A. Crocker* Princeton N. Lyman Alex de Waal J. Stephen Morrison Nicholas Eberstadt* Michael E. O’Hanlon* Richard Furman Raymond C. Offenheiser Helene D. Gayle Samantha Power Victoria K. Holt John H. Ricard Gregory G. Johnson Gayle E. Smith Richard A. Joseph Christine Todd Whitman Anthony Lake *The individual has endorsed the report and submitted an additional or a dissenting view. Working Group Members Anthony Carroll Jeffrey R. Krilla Timothy Docking Marina S. Ottaway Laura Fitz-Pegado Dave Peterson Christopher Fomunyoh Carol Pineau Tom Gibbian Witney W. Schneidman Stephen Hayes Joseph Siegle Makila James Contents Foreword xiii Acknowledgments xv Map xvii List of Acronyms xix Task Force Report 1 Introduction 3 2005 Was the Year for Africa, But We Missed the Point 5 The Expanding Energy Sector 28 The New Playing Field: China’s Rising Role 39 Security and Terrorism Concerns 53 The HIV/AIDS Pandemic 60 Conflict Resolution and Peacekeeping 75 Democracy and Human Rights 87 Investing in Growth 102 Conclusion 122 Additional or Dissenting Views 126 Task Force Members 130 Task Force Observers 134 Appendixes 136 Foreword This was the “year of Africa.” Africa figured prominently at world summits. Rock stars staged concerts to focus public attention on the continent. The industrialized democracies pledged to double aid to Africa and forgive the debt of fourteen of the continent’s poorest countries. Attention and commitments, through, are not the same as results. For this reason, the Council on Foreign Relations established an Independent Task Force to examine whether the United States was getting Africa policy right. Africa is of growing international importance. By the end of the decade, for example, sub-Saharan Africa is likely to become as important a source of U.S. energy imports as the Middle East. China, India, Europe, and others are competing with each other and with the United States for access to oil, natural gas, and other natural resources. The world’s major powers are also becoming more active in seeking out investments, winning contracts, and building political support on the continent. Africa is also one of the battlegrounds in the fight against terrorism. Osama bin Laden based his operations in Sudan before setting up shop in Afghanistan. Terrorists struck U.S. embassies in Africa years before the 9/11 attacks. Africans are actively recruited for terrorist operations in South Asia and the Middle East, including Iraq. Mass killings in the Darfur region of Sudan and the persistence of conflict on the continent challenge the world’s will to spotlight, prevent, and stop atrocities. Africa is also the epicenter of the world’s most serious health pandemic, HIV/AIDS. The Task Force evaluated U.S. Africa policy in light of Africa’s growing importance. The Task Force’s main finding is that U.S. policy toward Africa should change to reflect Africa’s growing strategic importance. Washington should maintain its historic and principled humanitarian concerns, while broadening the basis for U.S. engagement on the continent. The Task Force also recommends that the United States advance a policy to help “integrate Africa more fully into the global economy,” so that the advantages of globalization no longer bypass the continent. xiii I am grateful to two outstanding public servants, Christine Todd Whitman and Anthony Lake, for agreeing to chair this Task Force. They brought political insight, intellectual leadership, and a wealth of experience to a critical but often neglected set of issues. I would also like to thank the members of the Task Force, who came to this effort from many different backgrounds, for the purpose of advancing the shared interests of the United States and Africa. Project Directors Princeton N. Lyman, the Ralph Bunche senior fellow for Africa Policy Studies, and J. Stephen Morrison, director of the Africa Program at the Center for Strategic and International Studies, did a tremendous job in bringing the many issues and recommendations together into this report. I am grateful to them, as I am to the entire Task Force. Richard N. Haass President Council on Foreign Relations December 2005 xiv Acknowledgments The Council was fortunate to have two distinguished Americans as chairs for this Task Force, Christine Todd Whitman and Anthony Lake, who brought broad experience and strong leadership to the work. They recognized the growing importance of Africa to the United States and emphasized the need for this report to speak of that importance not only to policymakers but to the American public. We also thank the members of the Task Force, who brought a wide variety of skills and knowledge to our deliberations. Throughout the past year, in meetings, written input, and many e-mail exchanges, they contributed to every aspect of the analysis, findings, and recommendations. Special thanks are also due to individual Task Force members who provided venues for previewing the report with business, philanthropic, and civic organizations, and for organizing two dynamic working groups on the promotion of private investment and the improvement of governance and institutions in Africa. The Africa Advisory Board for the Council’s Africa Studies program provided the original inspiration and guidance for the establishment of the Task Force. Members of the committee later reviewed the draft report and provided other insights. Special thanks go to the board’s chairman, Vincent Mai, and its members: Franklin Thomas, Frank Ferrari, Kenneth Bacon, Kofi Appenteng, Walter Kansteiner, Peggy Dulaney, Bryan Hehir, Gay McDougal, Alan Patricof, Antranig Sarkissian, Frank Savage, and Carl Ware. The Task Force benefited significantly from the contributions made by Task Force observers and working group participants, who provided additional expertise and important input. The Task Force is also grateful to several persons outside the Task Force who agreed to review the report at various stages. These included three members of the Council’s International Advisory Board: Khehla Shubane, Mark Chona, and Baba Gana Kingibe. Also contributing in this regard were Professor Ephraim Isaac; Ken Hackett, executive director of Catholic Relief Services; and Jennifer Cooke, codirector of the CSIS Africa Program. xv Council President Richard Haass gave strong support and encouragement for the creation of the Task Force, read drafts, and provided valuable recommendations for the report’s presentation and argumentation.
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