Dealing with Conflict in Africa The United Nations and Regional Organizations Edited by Jane Boulden Boulden-FM.qxd 9/22/03 7:34 AM Page i Dealing with Conflict in Africa This page intentionally left blank Boulden-FM.qxd 9/22/03 7:34 AM Page iii Dealing with Conflict in Africa: The United Nations and Regional Organizations Edited by Jane Boulden Boulden-FM.qxd 9/22/03 7:34 AM Page iv DEALING WITH CONFLICT IN AFRICA © Jane Boulden, 2003 All rights reserved. No part of this book may be used or reproduced in any manner whatsoever without written permission except in the case of brief quotations embodied in critical articles or reviews. First published 2003 by PALGRAVE MACMILLAN™ 175 Fifth Avenue, New York, N.Y. 10010 and Houndmills, Basingstoke, Hampshire, England RG21 6XS. Companies and representatives throughout the world. PALGRAVE MACMILLAN is the global academic imprint of the Palgrave Macmillan division of St. Martin’s Press, LLC and of Palgrave Macmillan Ltd. Macmillan® is a registered trademark in the United States, United Kingdom and other countries. Palgrave is a registered trademark in the European Union and other countries. ISBN 1–4039–6080–1 hardback Library of Congress Cataloging-in-Publication Data Dealing with conflict in Africa: the United Nations and regional organizations/edited by Jane Boulden. p. cm. Includes bibliographical references and index. ISBN 1–4039–6080–1 (cl: alk. paper) 1. United Nations—Peacekeeping forces—Africa. 2. Regionalism (International organization) 3. Security, International. I. Boulden, Jane, 1962– JZ6377.A35D43 2003 341.5Ј84––dc21 2003051795 A catalogue record for this book is available from the British Library. Design by Newgen Imaging Systems (P) Ltd., Chennai, India. First edition: December, 2003 10987654321 Printed in the United States of America. Boulden-FM.qxd 9/22/03 7:34 AM Page v Contents Acknowledgments vii List of Acronyms viii About the Authors xi Introduction 1 Jane Boulden Part I Overall Themes and Issues 9 1. United Nations Security Council Policy on Africa 11 Jane Boulden 2. The Peacekeeping Potential of African Regional Organizations 35 Eric G. Berman and Katie E. Sams 3. Do Regional Organizations Matter? Comparing the Conflict Management Mechanisms in West Africa and the Great Lakes Region 79 Clement E. Adibe Part II Case Studies 109 4. Liberia 111 ‘Funmi Olonisakin 5. Sierra Leone 127 W. Ofuatey-Kodjoe 6. The Ethiopia–Eritrea War 153 Leenco Lata Boulden-FM.qxd 9/22/03 7:34 AM Page vi vi ● Contents 7. The Sudan 185 Monica Kathina Juma 8. Burundi 215 Gilbert M. Khadiagala 9. The Democratic Republic of the Congo, 1996–2002 253 Tatiana Carayannis and Herbert F. Weiss Conclusions 305 Jane Boulden Annex 1 African Regional Organizations and their Membership 317 Index 319 Boulden-FM.qxd 9/22/03 7:34 AM Page vii Acknowledgments his volume is the product of a research project on “International Organisation and the Security Issues of the Post–Cold War Era,” T run by the Centre for International Studies (CIS) at the University of Oxford. The research project has benefited from generous support from the MacArthur Foundation, the Ford Foundation, and the governments of Norway and Sweden. Beginning in 2000, the CIS has pursued this research agenda by engaging in research on a number of interrelated themes, including the role of inter- national organizations in the transition from war to peace, the response of international organizations to new threats to international peace and security, the attitudes of states and groups to international organizations, and the issues associated with regionalism, regional organizations, and security. This book addresses this last theme by examining how regional actors in Africa, in conjunction with the UN (or in its absence), have sought to deal with con- flict, and what that tells us about regional responses to security issues gener- ally as well as the relationship between regional actors and the UN. The chapters included in this book are the product of a workshop that was held jointly by the Centre for International Studies with the Ralph Bunche Institute for International Studies at the Graduate Center of the City University of New York in May 2001. As editor I am indebted to the con- tributors to this volume and also to Professor Thomas G. Weiss at the Ralph Bunche Institute for providing such congenial surroundings and institutional support for the workshop. Special thanks are due to Professor S. Neil MacFarlane, Director of the Centre for International Studies while the work for this volume was undertaken, for his commitment and support to the project. In addition, I would like to thank Gabriella Pearce at Palgrave, New York, for her ongoing patience and support of this work. Boulden-FM.qxd 9/22/03 7:34 AM Page viii List of Acronyms ACRI African Crisis Response Initiative AFDL Alliance des Forces Démocratiques pour la Libération du Congo AFL Armed Forces of Liberia AFRC Armed Forces Revolutionary Council (Sierra Leone) ALiR Alliance pour la Libération du Rwanda ANAD Accord de non-aggression et d’assistance en matière de défense, also: Treaty of Non-Aggression, Assistance and Mutual Defense AU African Union BMATT British Military Advisory and Training Team CAR Central African Republic CEWARN Conflict Early Warning and Response Mechanism (IGAD) CMC Conflict Management Centre CNDD National Council for the Defense of Democracy, also: Conseil National pour la Défense de la Démocratie (Burundi) COPAX Council for Peace and Security in Central Africa DDR Disarmament, demobilization and reintegration DDRRR Disarmament, demobilization, repatriation, reintegration and resettlement DOP Declaration of principles DRC Democratic Republic of the Congo EAC East African Community ECA Economic Commission for Africa ECCAS Economic Community of Central African States ECOMOG ECOWAS Cease-fire Monitoring Group ECOWAS Economic Community of West African States ELF Eritrean Liberation Front EPLF Eritrean Peoples Liberation Front Boulden-FM.qxd 9/22/03 7:34 AM Page ix List of Acronyms ● ix EU European Union FAC Forces armées congolaises FAR Forces Armées Rwandaises FAZ Forces Armées Zairoises FDD Forces for the Defense of Democracy, also: Force pour la Défence de la Démocratie (Burundi) FNL Forces Nationales de Libération (Burundi) FRODEBU Front for Democracy in Burundi GUNT Gouvernement d’union nationale de transition (Chad) IDPs Internally displaced peoples IGAD Intergovernmental Authority on Development IGADD Intergovernmental Authority on Drought and Desertification IMC International Monitoring Committee (Burundi) INPFL Independent National Patriotic Front of Liberia IPF IGAD Partners Forum ISDSC Inter-State Defence and Security Committee (SADC) JMC Joint Military Commission MIPROBU Mission for the Protection and Restoration of Trust in Burundi MISAB Mission interafricaine de surveillance des accords de Bangui ML Mouvement de Libération (DRC) MLC Mouvement pour la libération du Congo MNFs Multinational forces MONUC UN Organization Mission in the Democratic Republic of the Congo (Mission de l’Organization des Nations Unies en République Democratique du Congo) NAM Non-aligned Movement NATO North Atlantic Treaty Organization NCOs Noncommissioned Officers NGO Non-governmental Organization NMOG Neutral Military Observer Group NPFL National Patriotic Front of Liberia NSCC New Sudan Council of Churches OAU Organization of African Unity OLMEE OAU Liaison Mission in Ethiopia-Eritrea OMIB Observer Mission in Burundi OMIC Observer Mission in the Comoros ONUC United Nations Operation in the Congo OLS Operation Lifeline Sudan Boulden-FM.qxd 9/22/03 7:34 AM Page x x ● List of Acronyms PPP People to People Peace (Sudan) RCD Rassemblement congolais pour la démocratie RECAMP Renforcement des capacités africaines de maintien de la paix RPF Rwandan Patriotic Front RUF Revolutionary United Front SADC Southern African Development Community SANDF South African National Defence Force SCOPK Special Committee on Peacekeeping SMC Standing Mediation Committee (ECOWAS) SPDF Sudan People’s Defence Forces SPLM/A Sudan People’s Liberation Movement/Army SRSG Special Representative of the Secretary-General TPLF Tigray Peoples Liberation Front TSZ Temporary Security Zone (Ethiopia-Eritrea) UN United Nations UNAMIR United Nations Assistance Mission for Rwanda UNAMSIL United Nations Mission in Sierra Leone UNHCR United Nations High Commissioner for Refugees UNITA National Union for the Total Independence of Angola UNMEE United Nations Mission in Ethiopia and Eritrea UNOMIL United Nations Observer Mission in Liberia UNOMSIL United Nations Observer Mission in Sierra Leone UNOSOM United Nations Operations in Somalia UPRONA Union for National Progress Party (Burundi) USAID United States Agency for International Development Boulden-FM.qxd 9/22/03 7:34 AM Page xi About the Authors Clement E. Adibe is Associate Professor of Political Science at DePaul University. His recent publications include “Foreign Policy Decision-Making in Anglophone West Africa,” in Gilbert Khadiagala and Terrence Lyons, eds. African Foreign Policies: Power and Process. Boulder: Lynne Rienner, 2001; and “Muddling Through: An Analysis of the ECOWAS Experience in Conflict Management in West Africa,” in Liisa Laakso, ed. Regional Integration for Conflict Prevention and Peace Building in Africa. Helsinki: University of Helsinki, 2002. Eric G. Berman is presently Visiting Scholar at the Thomas J. Watson Jr. Institute for International Studies at Brown University. Previously, he worked for the UN in a variety of posts in New York,