Annual Informal Seminar and Joint Consultative Meeting Between the PSC and the UN SC
Amani Africa
Date | 29 September, 2020
On 29 and 30 September the African Union (AU) Peace and Security Council (PSC) and the United Nations Security Council (UNSC) will have their 5th informal seminar and 14th joint annual consultation.
The annual consultative meeting of the two Councils has been held since 2007, alternating between Addis Ababa and New York. In 2019 the session was held in Addis Ababa, however this year members would not be able to have in person meeting in New York given the travel and physical meeting restrictions due to COVID19. Hence both the annual informal seminar and the consultative meeting are expected to take place through VTC.
As previous practices demonstrate the consultative meeting used to address both conflict situations and thematic issues together. However, in recent years particularly from 2016 onwards the annual consultative meeting focused on country/region specific conflict situations. Whereas the informal joint seminar, which precedes, the annual consultative meeting, serves as a platform for discussing issues or themes of interest for the partnership between the PSC and the UNSC. It is to be recalled that in 2019 the informal seminar addressed issues related to Silencing the Guns and on modalities for conducting joint field missions. While the annual consultative meeting deliberated on the situation in Libya, South Sudan, Central African Republic and the Sahel region.
In preparation for this year’s meeting, a number of preparatory meetings and consultations have been held. In the course of this month, the PSC held two meeting. The first meeting was held on 8 September and the preparatory consultation involved the A3 and the Head of the AU Permanent Observer Mission to the UN. The second meeting was held on 18 September at the 947th session and the PSC agreed on its approach to the thematic and country specific agenda items. It has selected speakers from its members on the respective agenda items. In order to harmonize the views of member states and agree on the contents of the joint communique, the Committee of Experts of the PSC also held a meeting on 28 September.
In terms of outcome document, there were efforts made in adopting a joint communiqué at the end of the meetings and indeed the two Councils were successful in 2018. However this did not materialize in 2019. Hence the two Councils never adopted the draft communiqué from the previous year. Given that the meetings are taking place virtually this might pose an additional challenge in adopting the joint communiqué swiftly this year as well.
5th Informal Joint Seminar
The 5th informal joint annual seminar, taking place on 29 September is expected to address two agenda items: strengthening co-operation between the PSC and UNSC and on Silencing the Guns in Africa.
Djibouti, PSC Chairperson for the month of September and Niger UNSC President of the month are expected to deliver opening remarks. It is also expected that AU Commissioner for Peace and Security, Smail Chergui makes introductory remarks.
The first agenda item of the informal seminar is scheduled to take place under the theme ‘The UN at 75 and AU at 57: Strengthening cooperation between the UNSC and the AUPSC – focusing on improving working methods’. This segment of the seminar is also expected to include reflection around joint field missions, which is a follow up to the discussion held in 2019 during the informal seminar.
For this topic on cooperation from the PSC side Kenya is selected to be the lead speaker and Egypt will play the supporting speaking role. From the UNSC side Niger and Russia will have the lead and support speaking role respectively.
A number of issues may feature around working methods. The role of the A3 is particularly essential in enhancing synergy between the two Councils. Strengthening their role in the UNSC particularly on agendas pertaining to Africa is critical to ensure that Africa’s position is well reflected in the deliberation and decision-making process of the UNSC.
Beyond the annual seminar and consultative meeting it is also important to ensure that there is a constant flow of information and consistent communication throughout the year between PSC and UNSC on agendas of mutual interest. The Council members may also reflect on joint activities that can further enhance the cooperation including briefing sessions, joint reports and field missions.
Regarding joint field missions, there is agreement between the two Councils on the importance of undertaking such joint visits to get first-hand information and to develop common understanding of the conflict situation as well as to formulate harmonized positions.
Since 2015, the joint communiqué issued following the annual consultative meeting expressed the interest of the two Councils to consider joint visits to conflict situations in Africa.
However, the discussion on the specific modalities is still ongoing. It is to be recalled from last year’s annual informal consultative seminar that despite discussions on various options for undertaking joint field missions the two Councils were unable to arrive at an agreed formula. Last year’s exchanges show that the two sides presented their respective proposals. While the lack of progress may be a reflection of doctrinal differences between the two sides, it can also be a result of the lack of a joint approach for developing joint proposals. For this year, an additional factor that may inform the discussion on the modalities for joint field missions is the COVID19 pandemic.
On the agenda item regarding Silencing the Guns in Africa Senegal is selected as the lead speaker and Burundi will assume the support speaking role. From the UNSC side, South Africa as the lead speaker and China as support speaker are also expected to deliver statements.
The year 2020 under the AU theme ‘Silencing the Guns: Creating Conducive Conditions for Africa’s Development’ has been considered as critical year in advancing and consolidating support for the peace and security agenda in the continent. However, after the advent of COVID19, much of the attention has focused on mitigating the spread of the virus and monitoring its impact in the Continent. Yet, the agenda of Silencing the Guns remains more pressing and important. It is expected that the two Councils will take stock of measures taken within the framework of the AU Master Roadmap on Silencing the Guns and Resolution 2475 and explore how to implement targeted measures in pursuit of Silencing the Guns including in the areas of ridding the continent of illicit arms and weapons.
14th Annual Joint Consultative Meeting
The 14th annual joint consultative meeting will take place on 30 September. The meeting is expected to start with opening remarks by Under-Secretary General, Rosemary DiCarlo and AU Commissioner for Peace and Security, Smail Chergui. Unlike the previous years where four country specific agenda items were tabled, for this year the consultative meeting will be addressing two issues: the situation in Mali/Sahel and Somalia. These offer specific conflict situations for pursuing the agenda of Silencing the Guns with targeted measures.
On the situation in Mali/Sahel, Algeria will be the lead speaker whereas Ghana and Egypt will be supporting speakers. Some of the issues expected to be highlighted include the implementation of the 2015 peace agreement of Mali and the need to ensure stable and inclusive process during the transition. France, as the lead speaker and Tunisia and Dominican Republic as support speakers are expected to deliver their statements from the UNSC side.
The evolving political situation in Mali and its impact in the broader security context in the Sahel and in the fight against terrorist groups in the region are some of the key issues expected to feature prominently. On 25 September former defence minister Bah Ndaw and coup leader Assimi Goita have been sworn in as interim president and vice-president respectively for the transitional period that is expected to extend for maximum of 18 months. Ndaw seems to enjoy acceptance from the opposition and domestic political forces. ECOWAS’s Special Envoy Goodluck Jonathan after meeting with Ndaw has also stated of the possibilities for ECOWAS’s sanctions to be lifted with appointment of a civilian prime minister which is expected to be announced by the President of Ghana Nana Akufo-Addo Chairperson of ECOWAS.
However addressing the existential threats related to the deep-rooted socio-economic vulnerabilities as well as security and governance challenges remain a critical task. There is still uncertainty whether the current transitional administration is in fact capable of responding to such urgent and complex matters that have pushed the people to protest President Keita’s leadership.
The overall security situation in the Sahel remains volatile. In this regard the two Councils are also expected to discuss about the operation of G5 Sahel force and the deployment of the additional 3000 AU troops in the region, which is pending upon the approval of the CONOPS by the PSC.
On the second agenda item relating to the situation in Somalia, Ethiopia is selected as a lead speaker and Lesotho and Mozambique will be support speakers. From the side of the UNSC, the United Kingdom, which is the pen-holder on Somalia, is expected to be the lead speaker whereas St. Vincent and the Grenadines and Belgium are scheduled to be the support speakers.
The newly agreed upon election modalities as well as the implementation of the Somali Transition Plan leading to 2021 are expected to feature prominently under the agenda item on Somalia. The independent comprehensive assessment of the security environment that will be developed by the AU, UN and the Government of Somalia to guide the two Councils on partners’ engagement in the post-2021 period may also be addressed. Most notably, the discussion is also expected to address the critical role of AMISOM and the need for its support as well as the modalities of AMISOM’s handover of responsibilities to Somalia Security Forces and its drawdown.
It is expected that a draft joint communiqué will be adopted at the end of the annual consultation. On the 2020 AU theme on Silencing the Guns the Councils may highlight on the need to keep the momentum beyond 2020. The Councils may also underline the importance of multilateral cooperation in defeating the spread of COVID19 and mitigating its impact on conflict hotspots. On the cooperation between the PSC and UNSC the communiqué may underline the need for a more systematic cooperation, which goes beyond the annual consultative meeting. On joint field missions, the Councils may agree on a mechanism for developing joint proposals on the modality for undertaking joint missions. On Mali/Sahel the two Councils may commend ECOWAS’s leadership in managing the situation in Mali. They may take note of the developments in Mali and underline the necessity for the transitional authorities to respect the transitional charter to ensure the restoration of constitutional order in the country and uphold the Mali peace process and existing security partnerships. They may also urge that the developments in Mali should not undermine the fight against terrorism in the region. The Councils may also agree that the fight against terrorism should also address the root causes of conflict. On Somalia, Council members may welcome the agreement between Federal Government of Somalia and the Federal Member States on election modalities. They may call for the rapid completion of the revision of the Somalia Transitional Plan to allow proper planning for the post 2021 period. They may also call for the conduct of the independent comprehensive assessment of the security environment giving due attention to broader and comprehensive stabilization and security requirements, with a view to presenting options for consideration to the PSC and UN Security Council on the role of the AU, UN and international partners in Somalia post-2021.
PSC VTC Session on the situation in Somalia
Amani Africa
Date | 24 September, 2020
Briefing on the future of AMISOM and the upcoming elections in Somalia
Tomorrow (24 September) the African Union (AU) Peace and Security Council (PSC) is scheduled to have a session on the situation in Somalia. The PSC is expected to consider the report of the Chairperson of the Commission on the situation in Somalia. It is envisaged that the meeting will take place through VTC.
The Chairperson’s Report, prepared in accordance with the communiques of the 848th and 923rd sessions of the PSC and para 36 of UN Security Council (UNSC) Resolution 2520(2020), is expected to be introduced by Smail Chergui, the AU Commissioner for Peace and Security. Francisco Madeira, the Special Representative of the AU Commission Chairperson (SRCC) and Head of Mission of the AU Mission in Somalia (AMISOM), is also expected to provide update to the Council. As per the practice of the Council, it is expected that the representative of Somalia will also make a statement during the partially open segment of the session.
The last time the Council met to discuss the situation in Somalia was in May 2020, when it decided to renew the mandate of AMISOM and requested the Commission to review the AMISOM CONOPS, by September 2020, in order to align it with urgent priorities. The AU Commission is also expected to work closely with the United Nations, and the Government of Somalia to conduct, by 15 November 2020, an independent comprehensive assessment of the security environment giving due attention to broader and comprehensive stabilization and security requirements, with a view to presenting options for consideration to the PSC and UN Security Council on the role of the AU, UN and international partners in Somalia post-2021. Discussions are said to be currently underway in this regard.
Tomorrow’s session will be taking place against the backdrop of intense political engagements to address the political tensions among Somali political forces, which, among others, led to a vote of no confidence by Parliament in the Prime Minister and his resultant resignation. As Somalia gears up to hold elections, intense discussions have been underway between the leadership of Federal Government of Somalia and the Federal Member States on the conditions and terms for the holding of the election sanctioned under Somalia’s Constitution. Agreement was reached between the Somalia Federal Government and three of the five regional leaders of Somalia at the meeting held on 21 August in Dhusamareb.
The outcome of the Dhusamareb meeting, which led to the establishment of a technical committee to come up with the election modalities, was very much welcomed. Accordingly, agreement has been reached on a revised national election model known as the “Electoral Constituency Caucuses” with some changes to the outcome of the Dhusamareb meeting. This indirect election system is now expected to replace the one person one vote election envisaged under the Constitution. While the new election model is similar to the past clan-based indirect voting, attempt has been made to try to make it more inclusive by increasing the number of MPS casting the vote. However, this new model has as yet to be approved by the two chambers of parliament. The term of the parliament is to expire in November and President Formajo’s term will end in February next year. While the agreement on the model for the election helps in easing the political tensions, it remains to be seen if this would completely settle the power tussle that fuels the tension both among federal institutions and between the Federal Government and some of the regional governments.
Although members of the UNSC expressed regret that the agreed modalities fall short of the longstanding goal of direct voting for members of parliament in this election cycle, they acknowledged that the agreement was reached on the basis of a Somali led and Somali owned dialogue. Somalia’s international partners also underscored the need for the 2020/21 electoral process to be free, fair, transparent, and inclusive. They also called for a roadmap with clear milestones, agreed among Somali political leaders, to ensure decisive democratic progress going forward. Furthermore, the Partners appealed to the leadership of the Federal Government of Somalia and Federal Member States to continue meeting regularly in a spirit of dialogue and compromise to address urgent national priorities, including security and economic reform as well as inclusive politics.
Having reached agreement with the leaders of the Federal Member States, President Formajo appointed Hassein Roble as his new Prime Minister. This was following the resignation of Former Prime Minister Hassan Ali Khaire from his position after a vote of no confidence against him. Not surprisingly, the Khaire has already announced his candidature to run for the Presidency.
Tomorrow’s meeting is also coming against the background of mounting security threats, and increasing humanitarian challenges and the briefings will provide update on developments since the last PSC session in May. The security situation remains very concerning. Al-Shabaab attacks have intensified lately, giving rise to fears that the terrorist group may elevate its attacks ahead of national elections in the country. Series of deadly terrorist attacks have been perpetrated by the group recently in Mogadishu and several other regions claiming the lives of many innocent civilians. A number of factors have allowed the group to intensify its attack, including the prevailing tension between the center and the region, its exploitation of local dynamics, and issues surrounding delivery on the benchmarks in the Somalia Transitional Plan (STP) including slow pace of progress in the building of the Somali security institutions. The COVID pandemics and heavy rainfall and flashfloods, which coupled with the problem of dessert locusts, have also exacerbated the humanitarian situation in Somalia.
In terms of the role of AMISOM, its support to the Somali National Forces (SNF) in degrading the activities of Al Shabaab remains absolutely critical. It is to be recalled the PSC has been expressing concern over the security implications of AMISOM’s drawdown. In this regard, in its communique of the 923rd session, it has stressed the imperative need for a halt in further reduction of AMISOM uniformed personnel to ensure the safe holding of elections and the successful implementation of the Somali Transition Plan leading to 2021. The briefing from SRCC is expected to provide update on the activities of AMISOM and issues of command and control and the operationalization of the force enablers including air assets specifically raised in the previous session of the PSC.
Another issue in respect of which tomorrow’s session will provide update is the request the PSC made in its 923rd session communique regarding the revision of the STP. The AUPSC in particular called for a comprehensive review of the Somali Transition Plan and its implementation modalities, led by the FGS, with full participation of the AU, UN, EU and key FGS bilateral partners by July 2020, in order to provide a solid basis for the reprioritization of critical elements in the Transition Plan leading to 2021, which would also inform AMISOM’s CONOPs review and guide the confirmation of Somali priority initiatives for post-2021, as well as support by the international community. There has however been inadequate progress. With the very little time left before the election and the end of the year, there is now a pressing need for finalizing this work.
At its meeting tomorrow, Council is expected to take note of the progress made in the discussion between the Federal Government of Somalia and the Federal Member States and welcome the agreement reached on the modalities for the upcoming elections. It may also wish to encourage the Somali Political Stakeholders to continue their dialogue and cooperation to ensure conditions propitious for the holding of elections and promote greater stability in the Country. The AUPSC may also strongly condemned the upsurge of terrorist attacks by Al-Shabaab which claimed the lives of many innocent civilians, paying tribute to the Somali Armed Forces and AMISOM for their continued efforts in the fight against Al-Shabaab. Underscoring the continued critical role of AMISOM, the PSC may also urge for the mobilization of support for AMISOM. With respect to the STP, the Council may reiterate its previous decisions for its comprehensive review and urge that this process is completed without further delay to recalibrate the priority areas for AMISOM’s support and updating its CONOPS. It may also urge the Federal Government and the Federal Member States to speed up the process of recruitment and deployment of SSF and the integration of the regional forces into the SSF. The AUPSC may also express concern over the serious humanitarian situation because of the multiple challenges facing Somalia and appeal to the international community for enhanced support to the country to reach out to those in urgent need of life-saving assistance.
Common African Position on the 2020 Review of the UN Peace building Architecture
Amani Africa
Date | 22 September, 2020
Tomorrow (22 September) the African Union (AU) Peace and Security Council (PSC) is scheduled to hold its 948th session to consider the report of the AU Commission Chairperson on the ‘Common African Position (CAP) on the 2020 Review of the UN Peacebuilding Architecture: Towards an Enhanced Global Peacebuilding System.’ The meeting is expected to take place through VTC.
AU Commissioner for Peace and Security, Smail Chergui, is expected to brief the PSC and introduce the Chairperson’s report. Fatima K Mohammed, Head of the Permanente Observer Mission of the AU to the UN, is also expected to deliver a briefing on the review process and the development of the CAP.
The CAP is prepared in line with the 899th ministerial session of the PSC held in Luanda in December 2019 which requested the AUC ‘…to evolve a draft common African position ahead of the review conference of the UN Peace building Architecture to take place in 2020, for consideration by the PSC.’ The purpose of the CAP is to ensure that African contributions to the 2020 Review of the UN Peace building Architecture are articulated in a comprehensive document that guide African Member States during the inter-governmental negotiation process.
The last review of the UN peace building architecture was undertaken in 2015. This current review is taking place in the context of the twin resolutions A/RES/70/262 and S/RES/2282 (2016) of the UN General Assembly that call for a comprehensive review of UN peace building at its 74th session. The resolutions further underlined the importance of improving partnership and cooperation between the AU and the UN in peace building. To this effect the resolutions urge the Peace building Commission (PBC) to hold regular exchanges of views, joint initiatives, and information-sharing between the Peace building Support Office and the AU Commission.
This cooperation has also materialized through the annual interaction between the PSC and PBC, which was first held in October 2016. This interaction has regularly been held since then in subsequent years. During the most recent interaction held in November 2019, PSC’s 893rd session urged the AUC and the PBC to work in close cooperation with the countries concerned, to promote national priorities by enhancing national ownership, leadership and full participation in the peace building activities and development projects, as well as conflict prevention and addressing root causes of conflicts.
The cooperation between the AU and UN on peacebuilding has been strengthened through overarching frameworks including the Joint UN-AU Framework for Enhanced Partnership in Peace and Security, in 2017, and the AU-UN Framework for the Implementation of Agenda 2063 and the 2030 Agenda for Sustainable Development, in 2018.
In line with the decision of the twin UNGA resolutions, in October 2019, the UN Secretary-General launched the process for the five-year review of the UN Peacebuilding Architecture. To this end the AU Permanent Observer Mission to the UN in partnership with the African Group developed the CAP. The position paper also benefited from inputs from a wide range of stakeholders including the department of Peace and Security, Political Affairs, Gender Women and Development, the Office of the Special Envoy for Women, Peace and Security as well as the AU Missions in South Sudan and Sudan. The document was also developed based on consultations with the African Caucus on Peacebuilding at the UN in New York, Regional Economic Communities/Regional Mechanisms (RECs/RMs) and African civil society organisations, as well as think tanks including Amani Africa.
The CAP identifies a number of key priority areas drawing on AU policy frameworks on peacebuilding namely the AU PCRD Policy of 2006 and the AU Transitional Justice Policy of 2019 as well as based on best practices from previous peacebuilding efforts. Towards informing the review process, the areas that the CAP highlights as priority areas include financing, conflict prevention, governance, transitional justice, combating terrorism as well as partnership. Additionally, it also covers crosscutting thematic issues related to women, peace and security and youth.
In addition to existing policy instruments, the issues captured in the CAP are also linked with the political leadership of the PSC and the technical input of AU Commission structures including the Cairo based PCRD center. With respect to PSC’s role three issues may be of interest for PSC members. The first is the active participation of national stakeholders in the conception, planning and implementation of peace building support. The second is the existence of a political strategy on which peace building support is to be anchored.
Finally, it would also be of interest for PSC members to get details how the CAP envisages both strategic level synergy between the PSC and the PBC in deciding on and regularly following up peace building intervention and the technical level collaboration between the AU and the UN. If the PSC is to play its political leadership role, it is necessary for the PSC to have the countries on the Peace building Commission on its agenda.
The CAP is also expected to include salient features to enhance cooperation among actors that support peacebuilding efforts. In this regard, the three components it highlights to inform and guide inter-institutional cooperation include: ‘assistance in the design of national peacebuilding framework; financial support for peacebuilding; and mechanism for periodic consultation, joint monitoring, review and reporting on progress in implementation of peacebuilding process’. The harmonization of support and partnership in these critical areas and national ownership highly determine the effectiveness of peacebuilding efforts.
The AU may also utilize this opportunity to advance strategic matters relating to increasing its ownership of PCRD efforts in Africa; a more synergized partnership between AU, RECs/RMs and the UN as well as the operationalization of the peacebuilding efforts at the field level.
Between 2007-2020 African countries have received approximately 82.7% of the UN Peacebuilding Fund, which is a demonstration of the PBC’s priority and commitment in the continent. Given that Africa, as a region, is the biggest recipient of the funding it is essential that relevant national and continental actors take active part in informing the peacebuilding efforts of the PBC, which will have effect on a number of countries. In this respect, it would be of interest for PSC members to receive clarification on the strategy to be used for ensuring that African member states participate actively in the negotiation process speaking with one voice.
It is also to be recalled that currently there are about four African countries on the agenda of PBC, namely, Burundi, Central Africa Republic, Guinea-Bissau and Liberia. Hence, tomorrow’s session also serves to review the experiences from these countries for enhancing the cooperation between the AU and PBC in particular country contexts.
The expected outcome is a communiqué. The PSC may underline the importance of the global peacebuilding architecture for consolidating peace, particularly working in close coordination with AU’s PCRD. It may endorse the key recommendations towards effective peacebuilding efforts, which are articulated in the CAP with particular emphasis on the need for peacebuilding to be anchored on a political strategy for ensuring national ownership and full participation of national actors. For the PSC to play a more active role in providing strategic guidance and political support, it may request that the countries on the agenda of the PBC are also included on the agenda of the PSC and that the AU Commission together with the UN provide regular briefing and update on the post-conflict reconstruction and development efforts in those countries. The PSC may also urge the AUC for continued support to member states in ensuring that key recommendations of the CAP are well captured in the UN review process. It may call for a more coordinated and continuous effort between the AU office in New York and the AUC to ensure a coherent messaging on the basis of the CAP and to effectively inform the review process. It may also call on African member states to actively participate in the review process based on the CAP and speak with one voice. The PSC may also make reference to its annual interaction session with UNPBC as a key platform to further deepen the strategic cooperation on peacebuilding.