DIRECTORATE-GENERAL FOR EXTERNAL POLICIES OF THE UNION DIRECTORATE B POLICY DEPARTMENT AD HOC STUDY IMPLEMENTING THE EU CONCEPT ON MEDIATION: LEARNING FROM THE CASES OF SUDAN AND THE GREAT LAKES Abstract This report concludes that the European Union can play an important role in mediation efforts to prevent or end conflict, but that to do so most effectively it needs to become more coherent and flexible in its approach. As a pre-requisite, the EU needs to develop a broader awareness of the motivations and strengths it brings to mediation efforts. Preventing or ending conflict through mediation is a concern for the EU and an area where the Union believes that it can play a useful role. In 2009 the EU adopted the 'EU Concept on Mediation and Dialogue Capacities'. However, despite worthwhile aspirations, this has yet to be fully integrated into EU structures and systems and is not widely known. This report assesses the Concept and the role that the EU has played in mediation, and related efforts to resolve crises and consolidate peace and stability, through a detailed analysis of two case studies -- Sudan and the Great Lakes region of Africa. Our research found that at times the EU is well placed to take a leading role in mediation. This was true in the Great Lakes, where the Union has a history of serious engagement and influence. But in Sudan the EU has not been well positioned to be a lead mediator, although it has played a useful role in supporting, and sometimes financing, the efforts of others. The report suggests that a number of institutional reforms could improve the effectiveness of the EU with regards to mediation. At a time of financial austerity in particular, when member states are constrained in the resources they can commit to mediation efforts, the EU has the opportunity to demonstrate real value as a force multiplier, rather than a duplicator to or distraction from the efforts of member states and others. The effectiveness of the EU as a mediator is intimately tied up with its effectiveness as a foreign policy actor. Well thought out and effective support to mediation efforts will play an important role in defining the EU's developing external reputation. EXPO/B/AFET/FWC/2009-01/lot5/16 June 2011 PE 433.473 EN Policy Department DG External Policies This ad hoc study was requested by the European Parliament's Committee on Foreign Affairs. AUTHORS: Roger MIDDLETON, Consultant Researcher with the Africa Programme, CHATHAM HOUSE, Royal Institute of International Affairs, London, UK Paul MELLY, journalist and Associate Fellow of the Africa Programme, CHATHAM HOUSE, Royal Institute of International Affairs, London, UK Alex VINES, Research Director, regional and security studies and Head of the Africa Programme, CHATHAM HOUSE, Royal Institute of International Affairs, London, UK Standard briefing carried out within the framework agreement between ECOLOGIC INSTITUTE and the European Parliament. Ref.: EP/EXPO/B/SEDE/FWC/2009-01/Lot5/16 ADMINISTRATOR RESPONSIBLE: Gerrard, QUILLE Directorate-General for External Policies of the Union Policy Department WIB 06 M 081 rue Wiertz 60 B-1047 Brussels LINGUISTIC VERSIONS Original: EN ABOUT THE EDITOR Editorial closing date: 13 June 2011. © European Parliament, [2011] Printed in [Belgium] The Information Note is available on the Internet at http://www.europarl.europa.eu/activities/committees/studies.do?language=EN If you are unable to download the information you require, please request a paper copy by e-mail : [email protected] DISCLAIMER Any opinions expressed in this document are the sole responsibility of the author and do not necessarily represent the official position of the European Parliament. Reproduction and translation, except for commercial purposes, are authorised, provided the source is acknowledged and provided the publisher is given prior notice and supplied with a copy of the publication. 2 Implementing the EU Concept on Mediation: learning from the cases of Sudan and the Great Lakes TABLE OF CONTENTS EXECUTIVE SUMMARY........................................................................................................ 5 METHODOLOGY AND REPORT STRUCTURE:..................................................................... 6 LIST OF ABBREVIATIONS.................................................................................................... 7 1 CRITICAL ANALYSIS OF THE ‘CONCEPT ON STRENGTHENING EU MEDIATION AND DIALOGUE’................................................................................................ 9 2 THE EU ARCHITECTURE IN SUPPORT OF MEDIATION EFFORTS.................. 13 2.1 Financial aspects.......................................................................................................................................13 2.2 Organization ..............................................................................................................................................14 2.2.1 High Representative/Vice President of the Commission...........................................................14 2.2.2 EU Special Representative.....................................................................................................................15 2.2.3 EEAS structure and staffing ..................................................................................................................16 2.3 Coordination..............................................................................................................................................16 2.4 Mediation capacity and the Initiative for Peacebuilding...........................................................17 3 CASE STUDIES ................................................................................................. 18 3.1 Sudan and the EU.....................................................................................................................................18 3.1.1 Current and potential mediation areas............................................................................................18 North/South talks.....................................................................................................................................18 Darfur............................................................................................................................................................21 South-South conflicts .............................................................................................................................22 3.1.2 EU support to Concordis International.............................................................................................23 3.1.3 The role of the EUSRs for Sudan..........................................................................................................24 3.1.4 Conclusions ................................................................................................................................................24 3.2 Europe in the Great Lakes crisis ..........................................................................................................27 3.2.1 The story so far: from peace enforcement to mediation – and support for stability.......27 A troubled beginning .............................................................................................................................27 The current role and the route forward: underpinning stabilization and development28 3.2.2 The role of the EUSRs to the Great Lakes.........................................................................................29 Role in times of ‘hot crisis’.....................................................................................................................29 Role during periods of relative ‘normality’......................................................................................30 Tensions between the EUSR and the EEAS .....................................................................................32 3.2.3 EU contribution to mediation and state-building........................................................................33 4 CRITICAL ANALYSIS OF THE IMPLEMENTATION OF THE EU CONCEPT IN THE NEW EU FOREIGN POLICY SYSTEM............................. 37 3 Policy Department DG External Policies 4.1 The EU as a mediator ..............................................................................................................................37 4.2 The EU as a support for stabilization and good governance....................................................41 5 RECOMMENDATIONS ..................................................................................... 43 5.1 General.........................................................................................................................................................43 5.2 Sudan............................................................................................................................................................44 5.3 Great Lakes region ...................................................................................................................................45 4 Implementing the EU Concept on Mediation: learning from the cases of Sudan and the Great Lakes EXECUTIVE SUMMARY This report concludes that the European Union can play an important role in mediation efforts to prevent or end conflict, but that to do so most effectively it needs to become more coherent and flexible in its approach. As importantly, the EU needs to develop a broader awareness