Report of the Independent Panel of Experts’ Assessment of the African Standby Force and Plan of Action for Achieving Full Operational Capability by 2015 Report of the Independent Panel of Experts’ Assessment of the African Standby Force and Plan of Action for Achieving Full Operational Capability by 2015 10 December 2013 Contents Acronyms and abbreviations 4 Preface 6 Executive summary 8 Achieving full operational capability by 2015 8 Funding of African Standby Force operations 9 Strategic review 9 Mandating and decision-making 9 Planning elements 10 Pledged capabilities 11 Mission support 12 Concluding recommendation: Rethinking the link between the African Standby Force and African Union operations 13 Introduction 13 Background 15 Aims, scope, methodology and assumptions 16 Observations, findings and recommendations 18 Mandating and decision-making 18 Planning elements 20 Pledged capabilities 23 Mission support 25 Overall findings and recommendations 27 Achieving full operational capability by 2015 28 Funding of African Standby Force operations 28 Strategic review 29 Concluding recommendation: Rethinking the link between the African Standby Force and African Union operations 30 Annex A: Summary of recommendations 32 Annex B: African Standby Force Action Plan 2014–2015 37 Annex C: Secretariat and planning elements observers who supported the Independent Panel of Experts 44 Report of the Independent Panel of Experts’ Assessment of the African Standby Force Acronyms and abbreviations ACIRC African Capacity for the Immediate Response to Crisis AFISMA African-led International Support Mission to Mali AFISM–CAR African-led International Support Mission to the Central African Republic AHRM Administration and Human Resources Management AMIB African Union Mission in Burundi AMIS African Union Mission in Sudan AMISOM African Union Mission in Somalia APSA African Peace and Security Architecture APSTA African Peace Support Trainers’ Association ASF African Standby Force AU African Union AUC African Union Commission C3IS Command and Control, Communication and Information Systems CCCPA Cairo Regional Centre for Training on Conflict Resolution and Peacekeeping in Africa CPX Command Post Exercise DPA Department of Political Affairs EASF East African Standby Force EASFCOM East African Standby Force Coordination Mechanism EC European Commission ECCAS Economic Community of Central African States ECOMIL Economic Community of West African States Mission in Liberia ECOWAS Economic Community of West African States EU European Union FOC Full Operational Capability 4 Report of the Independent Panel of Experts’ Assessment of the African Standby Force FPU Formed Police Units FTX Field Training Exercise MICOPAX Mission for the Consolidation of Peace in the Central African Republic MoU Memorandum of Understanding MS Member States MSC Military Staff Committee NARC North African Regional Capability OLC Office of the Legal Counsel PLANELM Planning Element PSC Peace and Security Council PSD Peace and Security Department PSOD Peace Support Operations Division RDC Rapid Deployment Capability REC Regional Economic Community RM Regional Mechanism SADC Southern African Development Community SOPs Standard Operating Procedures STCDSS Specialized Technical Committee on Defense, Safety and Security TCE Training Centres of Excellence T/PCCs Troop/Police-Contributing Countries TNA Training Needs Analysis UN United Nations UNAMID United Nations–African Union Mission in Darfur UNOAU United Nations Office to the African Union 5 Report of the Independent Panel of Experts’ Assessment of the African Standby Force Preface The report of the Independent Panel of Experts on the assessment of the African Standby Force and its Rapid Deployment Capability (ASF-RDC) is submitted pursuant to the decision by the Assembly of African Union (AU) Heads of States and Government during its 20th Ordinary Session held in Addis Ababa, Ethiopia, from 27 to 28 January 2013. The summit requested the African Union Commission (AUC) to identify progress made and challenges encountered, with a view to propose recommendations that would allow for the full operationalisation of the African Standby Force (ASF) by 2015. Subsequently, the AUC constituted a multidisciplinary team of experts, which I led to undertake this important endeavour. The ASF-RDC was established as part of the African Peace and Security Architecture (APSA), in accordance with the AU Constitutive Act and Article 13 of the 2002 Protocol Relating to the Establishment of the Peace and Security Council of the African Union. Since its establishment over a decade ago, progress has been made in building regional capacities to deploy for peace support operations, when necessary. Unfortunately, the attainment of Full Operational Capability (FOC) of the ASF, expected to be achieved by the end of 2015, remains a work in progress. As a result, this has sometimes made it difficult for the AU to respond to crises in a timely and effective manner. It is against this background that my team carefully reviewed the political and technical indicators that could allow for the attainment of FOC of the ASF. Accordingly, the assessment adopted a qualitative methodology, which involved the distribution of questionnaires to the regional economic communities (RECs) and regional mechanisms (RMs), physical visits and consultations with representatives from the AUC and planning elements (PLANELMs) of the RECs/RMs. The overall assessment was hinged on four main indicators, as follows: i. First, the Panel interrogated the multiple levels of decision-making that have often delayed timely responses to crises. Subsequently, recommendations were made on the mandating and decision-making processes; the division of roles and responsibilities between the United Nations (UN), AU and RECs/RMs; and the respective roles of the Peace and Security Council, chairperson of the AUC and PLANELMs in the planning, management and liquidation of AU peace operations. ii. Second, the Panel assessed regional and continental PLANELMs and provided recommendations in respect of the structure; composition and responsibilities of PLANELMs; brigade headquarters and logistical depots; force structure and generation processes; ability of PLANELMs to keep track of and verify pledged capabilities, as per tables of organisation and equipment; and the ability of the PLANELMs to develop contingency plans, oversee training and conduct exercises. 6 Report of the Independent Panel of Experts’ Assessment of the African Standby Force iii. A third set of recommendations on pledged capabilities was made to address the extent to which regions hold the requisite military, police and civilian pledged capabilities as per tables of organisation and equipment, whether these capabilities are being trained and exercised, and whether their operational readiness is being verified, as well as the processes by which member states make the pledged capabilities available to the AUC or RECs/RMs. iv. Finally, recommendations were made in relation to mission support in the areas of sustainment of the mission; strategic lift capability (utilising road, rail, air and maritime networks); financing; unit-level self-sustainability; critical mission infrastructure and logistics; logistical depots; deployment stocks and reimbursement. A cross-cutting issue that was also assessed is linked to predictable and sustainable funding, which was perceived as an important foundation for guaranteeing FOC for the ASF-RDC. It is the wish of the Panel that the PLANELMs, including the continental PLANELM in Addis Ababa, Ethiopia, put in greater effort to ensure that the recommendations in this report are considered in all relevant planning and implementation processes, with a view to achieve a continent-wide FOC. In this regard, a plan of action for achieving the FOC provides a concrete roadmap in the four thematic areas of mandating and decision-making processes, PLANELMs, pledged capabilities and mission support. Through this effort, we are assured of a fully operational capability that exists to ensure a stable and peaceful Africa within the context of the APSA. The Panel also encourages all relevant stakeholders, especially at the policy implementation level of the AU organs within the APSA framework, to refer to the report, ensuring that its recommendations are internalised and considered in all their endeavours. Last but not least, the Panel would like to express profound appreciation for the highly competent Peace Support Operations Division (PSOD) Secretariat, as well as representatives from the RECs/RMs whose dedication and hard work, sometimes in very difficult administrative circumstances, allowed for the successful completion of this assessment. 1. Professor Ibrahim Gambari (Nigeria) – Chair 2. Dr Cedric de Coning (South Africa) – Deputy Chair 3. General Robert Kibochi (Kenya) – Member 4. Ambassador Soad Shalaby (Egypt) – Member 5. Police Commissioner Paul Sondo (Burkina Faso) – Member 7 Report of the Independent Panel of Experts’ Assessment of the African Standby Force Executive summary 1. On the basis of a decision of the 20th Ordinary Session of the AU Heads of State and Government, held in Addis Ababa, Ethiopia, on 27 and 28 January 2013, and the 9th Ordinary Meeting of the Specialized Technical Committee on Defense, Safety and Security (STCDSS), held in the same city on 30 April 2013, the chairperson of the AUC appointed an Independent Panel of Experts to conduct a comprehensive assessment of the ASF. 2. The Panel consisted