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Progress with the African Standby Force Jakkie Cilliers and Mark Malan

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Progress with the African Standby Force Jakkie Cilliers and Mark Malan Progress with the African Standby Force Jakkie Cilliers and Mark Malan ISS Paper 98 • May 2005 Price: R10.00 INTRODUCTION1 Republic (CAR), the Comoros, the Democratic Republic of Congo (DRC), Rwanda and Somalia), Having failed to reach agreement on the structure as well as the Ethiopia-Eritrea border dispute and of an inter-African force for the military aspects of conflict.2 In the field of peacekeeping, the mechanism conflict management, the Organisation for African endowed the OAU with the capacity, though limited, Unity (OAU) occasionally undertook or endorsed to mount observer missions and small operations in less complex ceasefire monitoring missions such as five countries, namely Rwanda (NMOG l and NMOG the Bamako Ceasefire Commission (1963). The Pan- ll); Burundi (OMIB); the Comoros (OMIC l, ll and African peacekeeping force that operated in Shaba lll); DRC (JMC); and Ethiopia-Eritrea (OLMEE). The Province of Congo (Kinshasa) in 1978–79 was the budgets for these very limited operations ranged from first OAU peace support undertaking; followed by US$105,000 to around US$3 million. the Chadian operation (1979–82), which was also the only OAU peacekeeping venture of a The rather unsatisfactory record of the complex nature during this period. ad hoc mechanisms for intervention called for a reappraisal in subsequent In the immediate aftermath of the fall of It took several years. On the one hand, the UN Security the Berlin Wall, the OAU re-examined its Council’s early commitment to Africa ran security and peace agenda. It recognised years and a new into problems in Somalia in 1993; and the prevalence of destabilising conflicts Secretary General this factor contributed to its disgraceful that would seriously impede collective before the UN inaction during the genocide in Rwanda and individual efforts to realise the in 1994. After Somalia and Rwanda, the continent’s political and socioeconomic returned to UN showed less interest, responsibility objectives. The outcome of the peacekeeping in and commitment to resolving conflicts 1990 summit was the “Declaration in Africa than Asia, the Americas and of the Assembly of Heads of State Africa. Europe. It took several years and a and Government of the Organisation new Secretary General before the UN of African Unity on the Political and returned to peacekeeping in Africa. On Socio-Economic Situation in Africa the other hand, regional organisations and the Fundamental Changes Taking Place in the in west and southern Africa, led by countries such as World”, according to which leaders agreed to work Nigeria, South Africa and Zimbabwe, began to show together towards the peaceful and rapid resolution much greater willingness and capacity to launch of all conflicts on the continent. To this end, African peace operations when no action was forthcoming Heads of State adopted the Cairo Declaration of from the UN or the OAU. 1993 establishing the OAU’s Mechanism for Conflict Prevention, Management and Resolution, which The OAU was formally transformed into the African marked the beginning of the organisation’s second- Union (AU) in Durban in 2002. Pursuant to Article generation peace and security agenda. 5(2) of the Constitutive Act of the African Union, the Protocol on the Peace and Security Council The OAU Mechanism was instrumental in enabling (PSC) was established as a collective security and the organisation, through the Central Organ, the early warning arrangement to facilitate timely and Secretary General and the Conflict Management efficient response to conflict and crisis situations in Centre (CMC), to react more promptly and effectively Africa, replacing the OAU Mechanism.3 Within the to the numerous existing and new conflicts. It thus framework of Article 13 of the PSC Protocol, the facilitated the intervention of the OAU in a number AU Commission is mandated to establish an African of conflicts (Angola, Burundi, the Central African Standby Force (ASF).4 Progress with the African Standby Force • page 1 Paper 98 • May 2005 IISSSS - PPaperaper 998.indd8.indd 1 22005/06/01005/06/01 008:52:148:52:14 The PSC Protocol provides for the conversion of the also requested that the chairperson of the Commission • a brigade (mission level) headquarter and support those involving low-level spoilers. ASF completed existing situation room at the Commission into a fully conclude memoranda of understanding between the AU unit of up to 65 personnel and 16 vehicles; deployment required within 90 days of an AU fledged Continental Early Warning System to “facilitate and the regions to guide relations between the various • a headquarter company and support unit of up to mandate resolution, with the military component the anticipation and prevention of conflicts”.5 It also bodies on peace and security. 120 personnel; being able to deploy in 30 days; provides for the creation of a Panel of the Wise, made • four light infantry battalions, each composed of up to • Scenario 6. AU intervention, for example in genocide up of African elder statesmen and women, to advise the Whereas the original concept had called for substantive 750 personnel and 70 vehicles; situations where the international community does council and the chairperson of the Commission and to progress by mid-2004, delays in the approval of the • an engineer unit of up to 505 personnel; not act promptly. Here it is envisaged that the AU undertake preventive action. Should prevention fail, or policy framework, which had first been submitted to • a light signals unit of up to 135 personnel; would have the capability to deploy a robust military an emergency develop, the protocol makes provision Heads of State in 2003, the absence of substantive follow- • a reconnaissance company (wheeled) of up to force in 14 days. for an African Standby Force that would be ready to up consultations and exchange of information between 150 personnel; undertake peacekeeping or intervention missions, while the AU and the regions/regional economic communities • a helicopter unit of up to 80 personnel, ten vehicles According to initial planning, the ASF would be a Military Staff Committee would advise and assist the (RECs), as well as the process of transformation within and four helicopters; established in two phases: council in this and other matters. The Peace Fund, the Commission of the African Union, impeded progress • a military police unit of up to 48 personnel and inherited from the OAU, is to be increased in size and at continental level. Regions such as ECOWAS and IGAD 17 vehicles; • Phase 1 (up to 30 June 2005): The AU’s objective used to “provide the necessary financial resources for proceeded with their own arrangements, some of which • a light multi-role logistical unit of up to 190 personnel would be to establish a PLANELM for the management peace support missions and other operational activities are not in accordance with the guidelines approved at and 40 vehicles; of Scenario 1–2 missions, while the five regions related to peace and security”.6 the continental level. Regions also developed other • a level II medical unit of up to 35 personnel and would establish regional standby forces up to brigade arrangements in the absence of substantive guidance. ten vehicles; size to achieve capabilities up to Scenario 4. The purpose of this paper is to provide an overview • a military observer group of up to 120 officers; • Phase 2 (1 July 2005 to 30 June 2010): It is envisaged of the progress that has been made towards the Key planning assumptions • a civilian support group consisting of logistical, that by 2010 the AU will have developed the capacity establishment of the African Standby Force (ASF) at administrative and budget components. to manage complex peacekeeping operations, continental and regional levels.7 The text necessarily Whereas the concept presented to the OAU in 2003 while the five regions will continue to develop draws heavily on a number of official documents that proposed a single standby high readiness brigade The policy framework sets the following additional the capacity to deploy a mission headquarters have been produced in the wake of a (SHIRBRIG) type of arrangement at military, police and civilian standby list for Scenario 4, involving AU/regional series of recent planning meetings at continental level and the subsequent targets to be maintained centrally by peacekeeping forces. various levels across the continent. The final concept development of standby brigades at sub- the AU: The core functions regional level, the final concept adopted These dates have proven ambitious, and The first section provides a review of the adopted ... by Heads of State provided for five • 300–500 military observers (MilObs); of the PLANELMs while substantive progress has been made continental framework as it has evolved provided for five standby brigades, one in each of Africa’s • 240 civilian police (CivPol); and are planning, in three of the five regions will not to date and been adopted by the AU. five regions, supported by civilian police • an unspecified roster of civilian experts be met. Subsequent sections deal with progress standby brigades, (CivPol) and other capacities. In doing so, to fill the human rights, humanitarian, preparation and in three regions in Africa, namely the one in each of the concept for peacekeeping in Africa governance, demobilisation, disarma- training, including Planning elements and brigade Economic Community of West African Africa’s five regions, reverted to that agreed to by two earlier ment, repatriation and reconstruction the verification headquarters States (ECOWAS), the Intergovernmental meetings of African Chiefs of Defence structure. Authority on Development (IGAD) and supported by Staff in July 1996 and October 1997. of brigade To provide for multidimensional the Southern African Development civilian police and The AU has decided that the civilian headquarters and strategic-level management capability, Community (SADC). The conclusion When fully established, the ASF will roster of experts is not a Phase 1 priority the ASF policy framework requires the highlights the most salient challenges to other capacities.
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