Ministerial session on the situation in Libya
Amani Africa
Date | 18 May, 2021
Tomorrow (18 May) the African Union (AU) Peace and Security Council (PSC) convenes its 997th session on the situation in Libya. The session is set to be held at the level of ministers.
Algeria’s Foreign Minister, Sabri BouKadoum, who will preside over the session, will make the opening remark. The AU Commission Chairperson, Moussa Faki Mahamat will deliver a remark, while the Commissioner for Political Affairs, Peace and Security, Bankole Adeoye, is expected to present a briefing to the Council. The representatives of the Democratic Republic of Congo, as Chairperson of the AU for 2020, and the Republic of Congo, as Chair of the AU High Level Committee, are also expected to make statement during the partially open segment of the session. As the country concerned, Libya’s Foreign Minister, Najla Mangouch, is also expected to provide update on the peace process and the transitional government. The Special Representative of the Chairperson of the AU Commission, Wahida Ayari, the Head of United Nation (UN) Support Mission in Libya (UNSMIL), M. Jan Kubis, and a representative of the League of Arab States are also expected to deliver a statement.
PSC’s last session on Libya was held on 3 November 2020 following the breakthrough in the Libya peace process which resulted in the signing by the 5+5 Joint Military Commission (5+5 JMC)—consisting of five representatives each from the internationally recognized Government of National Accord (GNA) and the self- styled Libyan National Army (LNA) – of a permanent ceasefire on 23 October 2020. The agreement envisaged the immediate identification and categorization of armed groups to carry out a disarmament, demobilization, and reintegration (DDR), as well as for urgent opening of three main roads joining the East to the West and the North to the South of the Country. It also provided for the withdrawal of all foreign fighters and mercenaries operating in Libya.
The communique of the 961st session of the PSC endorsed the permanent ceasefire agreement of 23 October 2020, and emphasised the importance of supporting the full implementation of the agreement including through the participation of AU in the applicable monitoring mechanisms. It also demanded the ‘immediate and unconditional’ departure of foreign fighters within the timeframe envisaged in the ceasefire agreement; called for the ‘unconditional and urgent closure of all illegal detention centres housing African migrants connected to the trafficking of migrants’.
Since then, Libya has registered additional major milestones towards the restoration of peace and stability in the country. In the political front, UNSMIL successfully convened the Libyan Political Dialogue Forum (LPDF)- composed of 75 participants representing all regions and main political and social constituencies in Libya- from 9 to 15 November 2020 in Tunisia. The LPDF adopted a political roadmap that provided for the convening of parliamentary and presidential elections on 24 December 2021. They also agreed on the formation of a transitional government with a reformed executive authority having a three-member Presidency Council and a separate Prime Minister with two deputies.
On 6 February 2021, delegates of the LPDF elected members of the new executive authority, resulting in the election of Mohammad Younes Menfi to head the three- member Presidency Council and Abdul Hamid Mohammed Dbeibah as a Prime Minister of the Government of National Unity. A new cabinet composed of 35 members submitted by the Prime Minister was approved by the House of Representatives convened in Sirte on 10 March. The Parliament reconvened a session on 15 March in Tobruk for the swearing-in ceremony of the new government, followed by power handover ceremony in Tripoli.
Despite these major developments, the political process is not firmly secure. One illustration of remaining challenges is the postponement of a planned cabinet meeting scheduled to take place in Benghazi following prevention by civilians and armed men affiliated with LNA of an advance team for Prime Minister Dbeibah from leaving the airport following their arrival. As the Permanent Representative of Libya to the UN rightly asserted during his statement to the UN Security Council in February this year, all the tracks that Libya has been following for years are ‘essentially fragile’ in the absence of a dialogue of national reconciliation, which would ensure the sustainability of any outcome.
The legal frameworks for the convening of parliamentary and presidential elections are not yet in place. In its recent resolution on Libya (2570), UN Security Council made its expectation clear that the parliament and relevant authorities need to ‘clarify the constitutional basis for elections and the enactment of legislations’ by 1 July 2021 to allow an orderly preparation by the High National Elections Commission. Given that the time left before the 24 December date for the election is only seven months, there is a need for finalizing the outstanding legal and constitutional issues and equip the High National Elections Commission with the requisite institutional and financial resources to make the necessary preparations.
As far as the implementation of the permanent ceasefire agreement is concerned, it is worth noting that the ceasefire is holding. It is also to be recalled that initially the 5+5 JMC unanimously decided to establish a ‘Libyan- led and Libyan-owned ceasefire monitoring mechanism’ in November 2020. Subsequently, the JMC requested that the ceasefire monitoring is undertaken through the deployment of international monitors under the auspices of UNSMIL. Against this background, last month on 16 April the UN Security Council unanimously adopted 2570 on UN support for the Libyan Ceasefire Monitoring Mechanism. As highlighted in resolution 2570, one possible avenue for AU to support the monitoring mechanism is through the provision of individual monitors under the auspices of UNSMIL.
In respect of the ceasefire agreement as well, challenges abound. First, despite the fact that the three-month deadline for the withdrawal of foreign fighters ended on 23 January, foreign fighters and mercenaries continue to be present in the country. It is to be recalled that the PSC, during its 957th and 961st sessions, requested ‘immediate and unconditional’ withdrawal of all foreign fighters and further warned to ‘name and shame’ all those that are sponsoring foreign fighters. Second, illicit flow of arms in breach of the UNSC arms embargo remains a major problem. As a recent report of the UN Panel of Experts on violations of the UN arms embargo observed, the continuing flouting the embargo has rendered it ‘totally ineffective’. PSC members are expected to deliberate on this issue from the perspective of the serious ramifications of the continuing presence of foreign fighters and the illicit flow of arms to the peace and stability of the region against the backdrop of recent developments in Chad.
Third, the different armed groups and militias that the conflict generated still keep a tight grip over the areas they control; and it remains unclear how far the new government could assert control over them. The recent brief seizure by militias in Tripoli of a hotel that serves as headquarter for the interim government, allegedly because of their unhappiness with the choice of a new chief of intelligence agency, is illustrative of the threat that militia groups continue to pose for the transitional government and the peace process in Libya. Finally, the reopening of the coastal roads is not yet fully realized.
The economic front also showed a steady progress as well, benefiting from successes registered in the security and political sector. Libya’s oil production continues to surge. The output has significantly risen to 1.3 million barrels per day from the low of 228,000 prior to September 2020. It is expected that production capacity would increase to reach a target of 1.45 million b/d at the end of this year. This is critical in reviving Libya’s shattered economy given the importance of the sector to the economy which accounts for 60 percent of aggregate economic output. Further economic reforms including the unification of the Board of Directors of the Libyan Central Bank, the unification of exchange rate, devaluation of the Libyan dinar, the presentation of a unified 2021 budget for the interim government have been also undertaken.
The PSC is also expected to deliberate on the human rights and humanitarian conditions in Libya, particularly in the context of African migrants and refugees. The death of African migrants while crossing the Mediterranean continued unabated. In the latest tragedy, more than 130 migrants lost their lives after a shipwreck off the Libyan coast. According to the UN migration agency (IOM), 557 deaths were recorded on the Central Mediterranean Sea route this year, which nearly tripled compared to the same period last year. Alarmed by the spike of deaths in this route, the two UN agencies (IOM and UNHCR) recently called on the international community to take urgent steps including the ‘reactivation of search and rescue operation in the Mediterranean, enhanced coordination with all rescue actors, ending returns to unsafe ports, and establishing a safe and predictable disembarkation mechanism’ to avoid further loss of life.
In tomorrow’s session, the PSC is also expected to follow up on its request at its 961st session for the ‘unconditional and urgent closure of all illegal detention centres’. Migrants and refugees are held in captives both at official and unofficial detention centres in harsh and life- threatening conditions, subjecting them to serious human right violations including torture, rape, sexual exploitation, and forced labour. They are also targeted by trafficking organizations, armed groups and militias operating in Libya as part of their criminal networks to generate income through engaging in human trafficking. In the light of these persisting challenges, the PSC is expected to receive update from the AU Commission on the outcome of the conclusion of a two-day working visit to Libya by the AU Commission Chairperson along with the Commissioner of Political Affairs, Peace and Security and the Commissioner of Health, Humanitarian Affairs and Social Development in April last month.
The expected outcome of the session is a communique. The PSC is expected to congratulate Mohammad Menfi and Abdul Hamid Dbeiba for their appointment as President and Prime Minister, respectively, and hail the smooth transfer of power to the new interim government as set out in the political roadmap adopted by the Libyan Political Dialogue Forum. As far as the political process is concerned, the PSC is likely to avail the support of the AU for facilitating and supporting a national reconciliation process in Libya. On the preparation for elections slated for 24 December, the PSC may urge relevant authorities to take action regarding outstanding legal and constitutional issues and the provision of institutional and financial resources to the Elections Commission necessary for the convening of the elections on time and to this end may request the AU Commission to initiate electoral support to enable the Libyan authorities finalize relevant legal and institutional preparations for the convening of the elections. On illegal detention centres and the treatment of migrants, apart from reiterating its call for the closure of these illegal centres that expose migrants to grave violations, the PSC may welcome the agreement the AU delegation of the recent visit to Libya reached with the interim government to reactivate the process of dignified and voluntary repatriation and resettlement of African migrants. On the implementation of the ceasefire agreement, the PSC may welcome the adoption of resolution 2570 by the UN Security Council on the Ceasefire monitoring arrangements in Libya, and express its readiness to support the Ceasefire monitoring mechanism including through the provision of individual monitors under the auspice of UNSMIL. With respect to the continuing presence of foreign fighters and mercenaries, the PSC may express its deep concern about the lack of progress for their withdrawal and reiterate its demand for their immediate and unconditional withdrawal. In this respect, the PSC may call on the AU Commission to initiate the establishment of a joint mechanism that oversees and verifies the speedy withdrawal of all foreign fighters and mercenaries from Libya. The PSC may also call on the UNSC to ensure the enforcement of the arms embargo and institute sanctions against those flouting the embargo. The PSC may also endorse the call, in the joint statement of the recent meeting of the Libyan Quartet, for the ‘sustained implementation of measures to fully identify and dismantle’ armed groups and militias, and ‘ensure the subsequent reintegration of those individuals meeting the requirements into national institutions’.
PSC Session on Protection of Children in Conflict Situations in Africa
Amani Africa
Date | 11 May, 2021
Tomorrow (11 May) the African Union (AU) Peace and Security Council (PSC) will convene its 995th session virtually, to discuss on the theme ‘protection of children in conflict situations in Africa’. The session is to be convened in the context of Council’s decision at its 420th meeting to hold annual sessions dedicated to children affected by armed conflicts (CAAC), as well as its decision at its 956th meeting to dedicate two sessions per year, to receive briefings on the situation of children affected by conflict situations, from the African Committee of Experts on the Rights and Welfare of the Child (ACERWC) and related partners. As indicated in its information note, the main objective of the session is for Council to receive updates on the state of children’s rights in conflict situations and to reflect on how well protection of such children is integrated in AU conflict prevention, management and resolution architecture.
The session is set to start with the opening remark of the PSC Chairperson of the month and Permanent Representative of People’s Democratic Republic of Algeria, Salah Francis Elhamdi. Commissioner for Political Affairs, Peace and Security, Bankole Adeoye and Commissioner of Health, Humanitarian Affairs and Social Development, Amira El Fadil will also make key remarks. Presentations are also expected from invited participants including ACERWC Special Rapporteur on CAAC, Save the Children, and United Nations Children’s Fund (UNICEF).
Tomorrow’s session is expected to highlight recent trends about how ongoing conflicts are affecting children in conflict affected areas. Various reports indicate that in the various conflict settings civilians bear much of the brunt of conflicts and crises. Children are among those most affected. This is the case whether in situations of armed conflict such as those in the Horn of Africa and the Great Lakes regions or in situations of terrorist violence in the Sahel, Lake Chad Basin, Somalia and Cabo Delgado province of Mozambique.
Children are affected by violence both as indirect victims and direct targets of the violence. They end up sustaining physical violence, forced into displacement and fleeing into neighbouring countries as refugees as recent events in Cabo Delgado province of Mozambique and Tigray region of Ethiopia have highlighted. They also suffer the most, as the situation in South Sudan attest, from conflict induced hunger and malnutrition in conflict situations. Children are among the main victims of recruitment, use, sexual abuse and exploitation in conflict situations. The recurrent incidents of abduction of school girls and boys by Boko Haram has put spotlight on children as direct targets of terrorist attacks and abductions. Similar incidents of attacks on school have also been reported in conflict affected parts of Cameroon.
Even when children survive the physical effects of conflicts and terrorist violence, they are not spared from being deprived of access to basic necessities such as health care and lose opportunities due to disruption of their access to education. For instance, UN reports show that in Central Sahel alone, 4,000 schools were forced to cease function in early 2020 due to direct attacks and insecurity, leaving about 650,000 students out of education.
The rate of displacement of children has also been most concerning in recent months. By end of April this year, the UN has reported that 168,000 children were forced to flee their homes due to the widespread violence which broke out in Central African Republic (CAR) in the run- up to the elections of December 2020. In addition to the spike in displacement of children, the Covid-19 pandemic has further compounded the situation. Particularly, internally displaced (IDP) and refugee children continue to be excessively affected as a result of the outbreak of the pandemic. With that in mind, Council has emphasised at its 921st session, that part of the AU Covid-19 Response Fund should be directed towards provision of humanitarian assistance to refugees and IDPs among other vulnerable parts of society. Having regard to the accelerating rate of the pandemic in some parts of the continent and the potential impact on IDP and refugee children there, Council may reiterate this point and call on Member States to mobilise more support to those countries that have high numbers of IDP and refugee populations.
The first issue that these various issues affecting children in armed conflict raise is how to ensure protection of children during conflicts. This is not about the deployment of security measures only. In this respect, it is of significance that measures are taken to ensure that conflict actors observe human rights and international humanitarian law (IHL) standards. This necessitates not only urging the actors to abide by these standards and reminding them of the responsibility they bear for violations of those standards but also putting in place mechanisms for monitoring, investigating and reporting incidents of violations. Additionally, it is incumbent on governments to facilitate humanitarian access and initiatives for protecting and supporting civilians and children affected by violence. The situation of displaced and refugee children not only in recent conflict situations but also those from frozen conflicts also deserves particular attention. Recurring incidents of attacks on schools also underscore the importance of and the need for upholding such frameworks as the ‘Safe School Declaration’, aimed at ensuring children in conflict situations continue to enjoy their right to education.
The second issue relates to the settlement of the conditions of conflict and terrorist violence, including the resolution of the underlying causes. In this respect, the issues requiring attention include absence of good governance and democratic inclusion, weak presence of state institutions and public services in areas far from urban centres, depleting resources on which communities depend for their livelihoods, marginalization and inequality and lack of respect for and protection of fundamental rights of affected people. Given the consequences of violence, there is also a need for initiating measures for the reconstruction and rehabilitation of conflict affected regions.
Tomorrow’s session also presents the chance for the PSC to follow up on its request at previous sessions, for the AU Commission to implement Assembly/AU/Dec.718 (XXXII), adopted at the 32nd Ordinary Session of the AU Assembly, convened on 10-11 February 2019. Assembly/AU/Dec.718 (XXXII) underscores four strategic resolutions essential to child protection, which are: the establishment of an accountability, monitoring and reporting mechanism; the development of a child protection architecture for the AU; the establishment of child focal points in all AU missions; and the establishment of an office of Special Envoy on children in situations of conflict. In this respect, the address from the two Commissioners’ remarks is expected to provide update on these four areas relating to AU’s role.
It is also to be recalled that at its previous session, Council was presented with the final ‘Policy on Integration of Child Protection into the African Peace and Security Architecture (APSA)’, developed by the AU Peace and Security Department (PSD). Tomorrow’s session presents the opportunity to examine the level of implementation of decisions related to child protection, within the framework of APSA, including relevant organs of Regional Economic Communities and Regional Mechanisms (RECs/RMs).
The form that the expected outcome of the session takes remains unknown. It is expected that the PSC will express its concern about the plight of children in conflict affected countries in Africa. The PSC may call on all parties to armed conflicts to comply with international, regional and national instruments applicable to the protection of children in conflict situations, including international human rights law and IHL. It may also call on the AU Commission to ensure the full operationalization and implementation of the AU mechanisms for protection of children in conflict situations. To ensure that children in armed conflicts continue to enjoy their basic rights, Council may urge all relevant actors to strive for ensuring that access to humanitarian assistance is guaranteed to enable children to get access to life saving services including food, health care and education. Council may also underscore the importance for Member States, the AU Commission, RECs/RMs and the international community to enhance their child protection capacity in conflict situations at the national, regional and continental levels. In this regard, the PSC may urge the international community to enhance its support for humanitarian assistance particularly for displaced and refugee children.
Briefing on the situation in Somalia and the renewal of the mandate of AMISOM
Amani Africa
Date | 11 May, 2021
Tomorrow (11 May), the African Union (AU) Peace and Security Council (PSC) is expected to consider the situation in Somalia and the implementation of AU Mission in Somalia (AMISOM) mandate based on the report of the Chairperson of the Commission. Although the focus of the discussion is supposed to be on AMISOM, the meeting will likely pay closer attention to the political crisis in Somalia. The country finds itself at crossroads following serious disagreement over the organization of elections. This latest development will also have enormous implications on the future of AMISOM.
Opening remarks are expected to be delivered by the PSC Chairperson of the month and Permanent Representative of People’s Democratic Republic of Algeria, Salah Francis Elhamdi. Commissioner for Political Affairs, Peace and Security, Bankole Adeoye, is also expected to address the PSC. The Council is expecting to receive a briefing on the recent developments from Francisco Madeira, the Special Representative of the AU Commission Chairperson (SRCC) and Head of AMISOM. Representatives of troop contributing countries, the UN and the EU may also make statements in the partially open segment of the session.
It is to be recalled that the AUPSC met on 22nd April to discuss the political and security situation in Somalia following the decision by the lower house of the Somali Parliament, the House of the People, to extend the mandate of the President and the Parliament. The Council condemned this unilateral decision and reaffirmed its support to the 17 September agreement as the only viable way forward to ensure the holding of timely, transparent, and credible elections in Somalia. In this regard, it underscored the need for Somali parties and other stakeholders to return to dialogue and reach a political compromise. Reaffirming the AU’s readiness to support such a process, the Council requested the Chairperson of the Commission to appoint a Special Envoy who will work with the parties and assist them in reaching a mutually acceptable political compromise. Accordingly, Former President of Ghana, John Dramani Mahama, has been appointed as the AU Special Envoy and he is expected to visit Somalia over the coming days to discuss with the country’s political stakeholders on how to resolve the prevailing impasse and pave the way for the holding of elections in the shortest possible time. The Somali Opposition Alliance, Somali National Salvation Forum, in its letter addressed to the Chairperson of the Commission welcomed this decision, while expressing reservation on the inclusion of the Head of AMISOM’s Political Affairs Division as part of the Special Envoy’s team.
Based on the decision of the AUPSC, the 32nd Meeting of the Coordination Committee (MOCC) of the Troop and Police Contributing Countries (T/PCCs) of AMISOM was held on 28 April 2021 at the level of Ambassadors, and Chiefs of Defense Staff and Chiefs/Commissioners of Police. The meeting reflected on the political crisis in Somalia and its serious ramifications for the country’s security situation. Particularly, the MOCC looked at the implications in terms of the implementation of both the Somali Transition Plan (STP) and UN Security Council Resolution 2568 (2021). This resolution, in its paragraph 39, requested the AU to report to the Security Council through the UN Secretary-General on a number of specific issues, including progress on joint operations in support of the STP including the use and effectiveness of coordination mechanisms; progress against revised objectives and functions set out in paragraphs 11 and 12; accountability measures taken to address underperformance, including command and control, and conduct and discipline; measures taken to protect civilians; equipment review outcomes and use of force assets; and staffing of the civilian component.
The Report of the Chairperson provides specific updates on progress made in these areas over the past three months. The report acknowledges, however, the slow progress made in the implementation of the resolution 2568 (2021). In this regard, it emphasized the serious ramifications of the current political impasse in the effective implementation of the milestones set out in the resolution against the specified timeframes. Particularly, it put into question the viability of the STP in the face of the prevailing factionalism and divisions within the Somali Security forces, which was manifest during the recent incident in Mogadishu. This, the report says, is a matter of serious concern for AMISOM, making it difficult for the mission to facilitate joint operations in a divided and factionalized Somali Security Forces (SSF). Most importantly, the report argues that this situation is likely to undermine the ability of the SSF not only to assume security responsibilities from AMISOM but also plan, agree, and conduct joint operations with AMISOM in line with the operational timelines, objectives and functions identified in the STP and UNSCR 2568 (2021). The AU is doing its own independent assessment and it is expected to highlight the AU perspective on the future of AMISOM in view of this serious challenge.
One of the things underlined during the MOCC meeting was, in fact, the need for AMISOM to prepare contingency plans in light of the latest developments in Somalia and take the necessary steps to ensure the capabilities for its implementation. There was also indication of the possible T/PCC Summit, which could likely provide the necessary strategic guidance to AMISOM. In this connection, the Chairperson’s report emphasized that sustained progress in the implementation of the AU’s objectives and mandate in Somalia is largely dependent on the availability of appropriate logistical and financial support to AMISOM. Therefore, it once again underscored the need for continued mobilization of support for AMISOM, including through predictable, sustainable, and flexible financing mechanisms to ensure successful implementation of the AMISOM’s mandate.
In the meantime, things have moved in a positive direction in Somalia since the last meeting of the AUPSC. President Farmaajo, who came under increased pressure both from within and outside, addressed the nation in a televised speech on 26 April 2021, following which the House of the People reversed its April 12 decision and reinstated the 17 September Agreement as a basis for the organization of the upcoming elections. The Prime Minister has also been given the lead role to prepare for peaceful, credible, and transparent elections and ensure its security. This decision, which rescued the country from the brink, was welcomed by IGAD, the AU, and indeed the rest of the international community. Prime Minister Roble met with members of the international community in Mogadishu and assured them of his commitment to hold inclusive & transparent Federal elections. He expressed his intention to invite the Federal Member States to attend the National Consultative Forum to finalize the electoral process in line with the Sept 17 and Feb 16 Agreements. Following his meeting with the opposition, soldiers who rebelled against the term extension are said to have started withdrawing from the capital, Mogadishu. The Prime Minister also inspected the reopening of streets and the removal of barricades to restore normalcy and calm in the city.
The other major development is the announcement made by the Federal Government of Somalia to restore diplomatic relations with Kenya. The relations between the two countries had been strained over the past six months in relation to their maritime dispute and accusations by Somalia against Kenya of meddling in its internal affairs. Qatar is said to have provided good offices in facilitating the restoration of diplomatic ties between the two countries. The Spokesperson of President Formajo announced that “In [the] interest of good neighborliness, the Federal Government of Somalia resumes diplomatic ties with Kenya based on mutual benefit and respect for sovereignty, territorial integrity, non-external interference, peaceful co- existence and equality”. The Kenyan Foreign Ministry in its statement noted this announcement and looked forward to further normalization of relations by the Somali authorities including with regard to trade, communication, transportation, people to people relations and cultural exchanges.
The expected outcome of the session is a communiqué. The PSC is expected to welcome the reversal of the April 12 decision by the House of the People and the reinstatement of the 17 September agreement as a basis for the holding of elections. It may wish to reiterate the need for inclusive dialogue among Somali stakeholders leading to broad political consensus and compromise on the electoral processes within this framework. In this regard, it may welcome the appointment of Former President John Dramani Mahama as the AU Special Envoy and call upon Somali stakeholders to work with him in the search for finding a solution to the political impasse and pave the way for the holding of elections within the shortest time possible. The PSC may also welcome the restoration of diplomatic relations between Somalia and Kenya. With respect to AMISOM, the PSC may express concern over the serious implications of the political crisis in the country for the implementation and timelines of both the STP and UN Security Council Resolution 2568 (2021). It may also echo the call by the MOCC on AMISOM to avoid being drawn into partisan politics in Somala. The PSC may underscore the need for coordinated efforts with other international partners, including IGAD, UN and EU to address the current situation. It may look forward to the outcome of the ongoing AU independent assessment of AMISOM and once again reiterate the need for continued mobilization of support for the mission to ensure the successful implementation of its mandate. The PSC is expected to renew the mandate of AMISOM with its current troop levels until 31 December 2021.
