Briefing on the Situation in the Great Lakes Region
Amani Africa
Date | 21 June, 2021
Tomorrow (21 June) the African Union (AU) Peace and Security Council (PSC) is set to convene its 1005th session to receive a briefing on the situation in the Great Lakes Region.
Following the opening remark from the PSC Chairperson of the month, Burundi’s Permanent Representative to the AU, Joel Nkurbagaya, the AU Commissioner for Political Affairs, Peace and Security, Bankole Adeoye, will make a statement. It is expected that the Special Representative of the Chairperson of the Commission for the Great Lakes Region and Burundi, Basile Ikouebe, will brief the Council. Representative of the Democratic Republic of Congo and H.E. Hanna Tetteh, Special Representative of the Secretary-General (SRSG) and Head of the United Nations Office to the African Union (UNOAU) are also expected to deliver statements. The representative of the International Conference on the Great Lakes Region (ICGLR) as well as the representative of the East African Community (EAC) will also make statements.
This session is convened, among others, in line with the PSC’s request for the AU Commission to provide quarterly briefings to the Council on the situation in the Great Lakes Region during its last dedicated session on the region (974th meeting held on 22 January 2021). In this respect, tomorrow’s session will present the Council with the opportunity to take stock of the latest developments in the region since its last session, as well as review progress in the implementation of the Peace, Security and Cooperation Framework Agreement for the Democratic Republic of Congo (DRC) and the Region (PSC Framework).
The AU along with other co-guarantors1 convened virtual meeting on 3 March to assess state of implementation of the Framework. The meeting welcomed the trend that ‘dialogue and cooperation’ have become ‘a central modus operandi’ in resolving challenges of the region. The meeting also noted remaining challenges including the persistent activities of negative forces, the unabated illegal exploitation of natural resources, strained relations between ‘certain countries’ in the region, the existence of large number of refugees and displaced persons, and the continued violation of human rights. In tomorrow’s session, the PSC is likely to echo the overall assessment of the co-guarantors.
Apart from the PSC Framework, the briefing is also expected to capture latest political, security and humanitarian developments in the region. In the political front, the region continued to witness an improved bilateral and multilateral diplomatic relations. President Felix Tshisekedi of DRC has continued cementing his ties with countries in the Great Lakes region, the latest being with Kenya in April. Following the state visit by Kenya’s President Uhuru Kenyatta to Kinshasa on 20 April, the two countries inked deals to deepen ties in the areas of business and security. Similarly, Rwanda and Burundi are on a path for improved neighbourly relationship as the meeting of the foreign ministers of the two countries attested. Relation between Rwanda and Uganda has not seen major improvement since the Council’s last session on the region. At a multilateral level, the ICGLR was able to convene two Mini- Summits of Heads of State and Government between January and April this year to address the political and security situation in the Central African Republic (CAR).
In the security front, negative forces and non-state actors remain active in eastern DRC and CAR. Sources claim that at least 122 armed groups operate in the mineral-rich eastern DRC, of which the Allied Democratic Forces (ADF) is assumed to be the deadliest. Eastern DRC continues to experience armed groups attacks and intercommunal violence, specifically in the provinces of Ituri and North Kivu, leading the government to declare a ‘state of siege’ in early May for a period of one month. Over the last three months, the Kivu Security Tracker (KST) reported some 362 incidents, resulting in 936 deaths.
On 22 February, an attack on a UN convoy in North Kivu killed three people including Italy’s Ambassador to DRC. On 31 May, gun and machete assaults against civilians in displacement camps in the Ituri province killed more than 50 people, one of the deadliest in recent years allegedly perpetrated by the ADF.
The uptick of violence in eastern DRC despite the presence of UN forces (MONUSCO) has angered population, brewing anti-MONUSCO sentiment. In April, violent protest erupted in Beni, North Kivu, over the perceived failure of MONUSCO to prevent the wave of attacks on civilians. This came amid the plan for a ‘progressive’ and ‘phased’ drawdown of the mission. It is to be recalled that UN Security Council Resolution 2556(2020), which extended the mandate of the mission until 20 December 2021, endorsed the plan of withdrawal from the Kasai province this month and progressively from Tanganyika in 2022, but consolidating its footprint in the conflict-ridden provinces of Ituri, North Kivu and South Kivu.
Cross-border security incidents showed a significant reduction. There are encouraging signs of increased regional security and military cooperation among countries of the region. These include the signing of security and defence cooperation agreements between DRC and Kenya and DRC-Rwanda. Uganda and DRC also discussed their interest for joint military operations against armed groups in eastern DRC. Similarly, Rwanda and Burundi met in March to address cross-border security incidents.
Beyond the security efforts, a plan of action for a comprehensive approach in tackling the threats of armed groups has been developed as part of the operationalization of the Contact and Coordination Group (CCG) during a workshop held from 3 to 6 May in Goma, DRC. Supported by the DRC National Oversight Mechanism and the guarantors of the PSC Framework including the AU, the workshop underscoring the imperatives of ‘comprehensive approach’ and ‘complementarity between military efforts and non-military measures’, agreed on an Action Plan for the next two years that would be implemented in line with commitments under PSC Framework, respect of human rights and international humanitarian law, among others. They were also able to identify four areas of engagement in the fight against negative forces including to facilitate voluntary disarmament and repatriation process, cut supply sources of the armed groups, address the root causes, and improve the DDR programs.
A related issue likely to be raised at tomorrow’s briefing is the need to address illegal exploitation of natural resources, specifically gold and coltan. It has been argued that though minerals are important sources of revenue for governments of the region, the illegal trade and exploitation has been one of the underlying causes of conflict in the region as various actors are illicitly involved in this lucrative business. One possible avenue to address such problem is enhancing natural resource governance through the establishment of effective legal and institutional mechanisms regulating the ownership, extraction, distribution and control of natural resources.
Tomorrow’s session may also highlight latest developments particularly in terms of the effort to address political polarization in the DRC. While a new parliamentary majority has been constituted and a 56-member new coalition government under Prime Minister Jean-Mechel Sama Lukonde Kyenge has been established in April, the viability of the new majority and DRC’s long term political stability largely hinges on the extent to which coalition members of the new majority are able to come around a common political agenda.
The security situation in CAR remains volatile despite the relative lull in violence in recent months. The political situation shows fragility as manifested from last week’s resignation of Prime Minister Firmin Ngrebada along with his entire cabinet. The resignation came following intense week of political wrangling between the government and France, leading to the suspension of financial aid and military cooperation. A welcome development at the level of UN is the adoption of Security Council resolution 2556 in March 2021, which decided to increase the authorized size of its mission (MINUSCA).
Tomorrow’s briefing is also expected to highlight the dire humanitarian situation in the region, especially in the DRC and CAR. In DRC, on top of the 5 million internally displaced persons, the eruption of the mount Nyiragongo volcano in Goma, North Kivu, on 22 May unleashed a new wave of displacement with nearly 416, 000 people uprooted from their homes and 31 people killed. The UN Office for the Coordination of Humanitarian Affairs (OCHA) estimates that around 19.6 million people are in need of humanitarian assistance and protection in 2021. On a positive note, the 12th Ebola outbreak in DRC, which started in North Kivu in February, was declared officially over early May. The situation in CAR also remains bleak as well, with glaring humanitarian needs. According to OCHA, 50 % of its population (2.8 million out of its 4.9 million population) rely on humanitarian assistance, while 25 % is displaced either internally or in neighbouring countries.
The situation in Burundi however shows improvement as thousands of refugees have continued to return to their home voluntarily, owing to the improved situations in the country. The UN High Commissioner for Refugees stated in late April that on average, 2,000 people are being assisted to voluntarily return each week from Rwanda, DRC, and Tanzania. While this is an encouraging step, dignified return and reintegration to their communities as well as addressing the needs of returnees is of particular significance.
The expected outcome of the session is a communique. On the PSC Framework, the Council is expected to express its commitment for its full implementation. In relation to the political and security developments in the region, the PSC is likely to echo the overall assessment of the co-guarantors on the occasion of the 8th anniversary of the PSC Framework where they commended the increased security and economic cooperation while noting the challenges including the persistence of the activities of negative forces, continued illegal exploitation of natural resources, strained relations between ‘certain countries’ of the region, as well as the worsening humanitarian conditions. The Council may particularly note the robust diplomatic engagement by DRC with its neighbouring countries and its contribution in strengthening regional cooperation by deepening economic and security ties. The Council is however likely to condemn the upsurge of violence in eastern DRC due to increased activities of armed groups and intercommunal conflicts. The Council is expected to stress on the imperative of addressing drivers of conflicts including extreme poverty and illegal exploitation of natural resources. The Council may also welcome the operationalization of the CCG with the aim to oversee the non-military measures and the adoption of action plan that identifies areas of engagement. On the humanitarian front, the PSC is expected to express its concern over the grave humanitarian crisis caused by a combination of manmade and natural elements. In that regard, the Council may call on member states, relevant RECs and international partners to redouble their efforts in addressing not only the immediate humanitarian crisis but also the underlying causes of the crisis. Finally, given the intensity and complexity of developments in this region, the Council may reiterate its decision reached at its 974th session to undertake field mission to the region.
1 The other guarantors of the PSC Framework are: the United Nations (UN), the International Conference on the Great Lakes Region (ICGLR), and the Southern African Development Community (SADC)
Open Session on the Plight of Refugees, IDPs and Forced Displacement in Africa
Amani Africa
Date | 08 June, 2021
Tomorrow (08 June) the African Union (AU) Peace and Security Council (PSC) will convene its 1002nd session. This virtual open session will be held under the theme ‘plight of refugees, internally displaced persons (IDPs) and forced displacement in Africa’. Convened as one of the regular thematic agenda of the PSC, this session comes ahead of the commemoration of the World Refugee Day, which is observed on 20 June under the theme ‘Together we heal, learn and shine’.
Following the opening remark from the PSC Chairperson of the month, Burundi’s Permanent Representative to the AU, Joel Nkurbagaya, the AU Commissioner for Political Affairs, Peace and Security, Bankole Adeoye, will make a statement. As a subject that also relates to her portfolio, Commissioner for Health, Humanitarian Affairs and Social Development, Amira Elfadil Mohammed Elfadil, is also expected to brief the PSC. Pursuant to the practice of the PSC, the PSC will also receive briefings from representatives of the United Nations High Commission for Refugees (UNHCR) and World Food Programme (WFP). The chairperson of the Permanent Representatives Committee Sub- Committee on Refugees, Returnees and Internally Displaced Persons is also expected to deliver a statement.
Tomorrow’s session is expected to discuss recent trends about forced displacement leading to the persistence and increase in the scale of IDPs and flow of refugees. With a third of the world’s forcibly displaced persons in Africa, including 7.8 million refugees and asylum-seekers and 19.2 million IDPs, Africa continues to experience alarming trends of displacement. While natural disasters continue to induce forced displacement on the continent, much of the displacements on the continent are due to violence and conflicts.
With more than 21 million forcibly displaced by violence, Africa has experienced the highest number of conflict related displacement in record in 2020. This is on account of both the persistence of existing conflicts, and in some cases, their further deterioration in regions affected by violence and the eruption of new conflicts in previously less affected regions. It is worth noting that the conflict trends leading to forced displacement on the continent include political and electoral violence in politically tense and conflict affected countries, upsurge of violence, including inter-communal violence in countries with protracted conflicts, and the spike in terrorist violence in particular the Lake Chad Basin, the Sahel, Horn of Africa and Northern Mozambique.
All parts of the continent are affected by conflict related displacement, although with notable variations of intensity. In East Africa alone, existing and new conflicts have resulted in 8.3 million IDPs and 4.6 million refugees. In West Africa and the Sahel, over 2.9 million people are displaced due to the ongoing crisis in the Sahel region. The rate of internal displacement has particularly been most alarming in Burkina Faso, where by 2021, more than 1 million people have been internally displaced, showing a four-fold increase from the previous year. In the Lake Chad Basin, over 3.2 million people were reported to have been forcefully displaced by the end of 2020. In Central Africa, the Democratic Republic of Congo (DRC), where over 2 million people are already displaced due to widespread violence, was most recently hit by a volcanic eruption which is estimated to displace about 400,000 people. The relatively recent conflict in Mozambique has also resulted in a serious displacement crisis, with the number of displaced people getting to the one million mark. In North Africa, apart from being host to one of the most protracted refugee situation in Tindouf, Algeria, the intensification of the conflict in Libya displaced about 40,000 people in 2020.
Apart from the foregoing, tomorrow’s session is also expected to examine the humanitarian situation of IDPs and refugees and asylum seekers. Of particular concern in this respect is the rise in food insecurity in Africa over the past couple of years. Coupled with on-going and new conflicts, food insecurity is feared to produce dramatic upsurge of displacement. On top of creating new wave of displacement, the existing food insecurity also directly impacts displaced populations already living under dire circumstances. Such is, particularly the case, in regions with pre- existing conditions of food insecurity.
In addition to food insecurity and climate induced displacement, the COVID-19 pandemic has also highly compounded the humanitarian situation of refugee and IDPs across Africa. The inevitable interruption to humanitarian aid in some cases has imposed a major challenge to displaced communities whose survival depends on the timely delivery of assistance. Due to the COVID-19 response measures, there has also been significant drop in opportunities for resettlement.
In discussing the plight of IDPs, refugees and asylum seekers, the first issue of concern is ensuring the protection of these category of people. In this respect, it is of paramount importance that conflict actors observe human rights and international humanitarian law rules as well as the principles of OAU Refugee Convention and the Kampala Convention on IDPS including on the imperative for respecting non-refoulement and voluntary return, hence desisting from forced return of IDPs, refugees and asylum seekers, as noted by the PSC at its 904th session. It is also of significance that the physical security of IDPs and refugees and asylum seekers is guaranteed and conflict parties, particularly State actors, bear responsibility for creating conditions for ensuring such security. Also of particular importance is the provision of unhindered humanitarian access for humanitarian actors to enable affected people to be provided with humanitarian assistance.
The second issue relate to finding durable solutions to forced displacement. It is of paramount importance in this respect that effective peace making and conflict resolution efforts are deployed. Durable solutions necessitate the resolution of the weak presence of state institutions and public services in conflict affected territories, absence of good governance and democratic inclusion and the perpetration of human rights violations. As conditions of insecurity improve, mechanisms should be created for the safe and voluntary return of IDPs and refugees. There is also a need for designing and implementing programs for the rehabilitation of IDPs, refugees and asylum seekers.
Another area of interest in tomorrow’s session is the role and contribution of the AU towards addressing the plight of IDPs, refugees and asylum seekers. In this respect, the PSC may receive update on the progress towards the operationalization of the African Humanitarian Agency (AHA), which, as noted by the PSC at its 921st session, contribute towards efforts being made to address the humanitarian challenges. Tomorrow’s session may also consider how to activate the role of the Africa Risk Capacity (ARC) that was endorsed by Assembly/AU/Dec.417(XIX). In this respect, one challenge that may receive attention is the treaty on the establishment of the ARC is yet to enter into force since it hasn’t acquired the required level of ratification.
Additionally, the PSC may also review AU’s challenges in financing humanitarian assistance and reiterate its previous call on member States to commit to the implementation of EX.CL/Dec.567(XVII) which decided to increase member States’ contribution to the ‘Refugees and IDPs Fund’ from 2% to 4%. This challenge also relates to the Special Emergency Assistance Fund (SEAF) for Draught and Famine Relief in Africa which can play supportive role for some of the peoples on the continent facing food insecurity. The PSC may also call on the international community to sustain its support for humanitarian assistance, which is the only avenue for sustaining the lives of IDPs, refugees and asylum seekers.
The session also presents an opportunity for horizontal coordination. In this respect, the engagement in tomorrow’s session of the Sub- Committee on Refugees, Returnees and Internally Displaced Persons in Africa, which plays a significant role in providing policy recommendations and solutions with respect to such population groups, is of importance.
The expected outcome of the session is a press statement. The PSC is expected to request the AU Commission to work on the issue of food insecurity among displaced persons, in collaboration with WFP, UNHCR, UN Food and Agriculture Organization (FAO) and other relevant partners. Council may also call on member States to contribute to and replenish the SEAF. In that spirit, Council may encourage member States to participate at the upcoming Continental Humanitarian Summit and Pledging Conference which is expected to take place in Equatorial Guinea, during November this year. The AU Commission may also be requested to expedite operationalisation of the AHA. PSC may reiterate the request it made at its 921st session, for the AU Commission to mobilise support for member States hosting high number of refugees, IDPs and undocumented migrants and to ensure that part of the AU COVID-19 response fund goes towards provision of humanitarian assistance for these groups of people. It may also urge member States to discharge their responsibilities in ensuring the creation of conditions for the protection of the physical security of IDPs, refugees and asylum seekers and for unhindered humanitarian access. The PSC is also expected to call for enhancing efforts in addressing the root-causes of violent conflicts. The PSC may also reiterate the need for host states to ensure utmost respect for non-refoulement and voluntary return, hence desisting from forced return of IDPs, refugees and asylum seekers.
