Report of the PSC field mission to Sudan and UNAMID
Amani Africa
Date | 18 May, 2018
Tomorrow (18 May) the Peace and Security Council (PSC) will hold a session on the report on its field mission to Sudan and UN/AU Hybrid Mission in Darfur (UNAMID). The Peace and Security
Department and the Joint Special Representative for Darfur and head of UNAMID Jeremiah Mamabolo are scheduled to brief the PSC. The PSC Secretariat is expected to introduce the report. The consideration of the Special Report of the Chairperson of the AU Commission and the Secretary General of the UN on the Strategic Review of UNAMID envisaged in the agenda for this session as set out in the updated PSC program of work for May has been postponed for June.
The agenda for the session anticipates the participation in this session of the UN office to the AU (UNOAU) and representatives of the African members (A3) of the UN Security Council (UNSC) and
the five permanent members of the UNSC. The PSC undertook its field mission to Sudan from 5 to 9 May. Apart from engaging various stakeholders around the ongoing review and downsizing of UNAMID and the preparations for smooth transition, the field mission aimed at providing the PSC with first hand information on the current state of the peace and security situation in Darfur. This visit follows the Joint visit to Darfur of Smail Chergui, the AU Commissioner for Peace and Security and Jean-Pierre Lacroix, the UN Under Secretary-General for Peacekeeping in April 2018.
In Khartoum, the PSC held discussions with the General Commissioner of the Humanitarian Aid Commission on humanitarian issues and with Sudan’s Commissioner for DDR on the disarmament, demobilization, and reintegration process being implemented by the Government of Sudan in Darfur. It also met the Director of the Darfur Peace Follow up Office and discussed the implementation of the residual activities on Doha Document for Peace in Darfur (DDPD). The senior government officials with whom the PSC met include the Minister of Defense of Sudan and the Acting Minister of Foreign Affairs of Sudan. The PSC also met with the African Group of Ambassadors.
In Darfur, it met with the Acting Governor of Northern Darfur State and other officials of the state and discussed the political, security and humanitarian situation in Northern Darfur. It visited Soroti and interacted with IDPS on the security and humanitarian situation at Zam Zam IDP camp. The PSC delegation also held a meeting with the Joint Special Representative and UNAMID team in El Fasher in Darfur.
From its visits and interactions, the PSC has established that the security situation in Darfur has stabilized. Most notable in this regard is the cessation of direct hostilities between government forces and armed groups in Darfur. The implementation of the weapons collection campaign of the government seems to be limiting militias and bandits from freely using their weapons and thereby contributing further to the improvement of the security situation.
Despite such improvements in the security situation in Darfur, concerns remain. There are incidents of inter-communal violence leading to major displacement of civilians. Over 11,000 civilians fled their homes to IDP camps following inter-communal clashes in Jebel Marra area last month. Another source of threat for civilians comes from attacks from armed militias and criminals. There are also incidents of clashes relating to the compulsory collection of weapons. From the perspective of lasting peace and realization of full political solution, there are fundamental challenges. Despite the improvement in the security situation, IDPs could not return to their territories. Their land has been taken over. Additionally, no full political settlement accepted by all armed and political forces in Darfur has been achieved. Notwithstanding the absence of direct hostilities, armed rebel groups still exist in Darfur. While the manifestations of the conflict in terms of direct armed fighting has ended or been reduced, the underlying causes of the conflict and the consequences of the conflict remain unresolved.
As highlighted during the PSC briefing on the joint visit of Chergui and Lacroix, these remaining issues underscore a need for supporting the stabilization process in Darfur and the effort for full political solution. This also emphasizes that the implementation of the phasing out or withdrawal of
UNAMID should be done without creating security vacuum and the risk of relapse of conflict in Darfur.
The briefing on UNAMID would focus on the ongoing review and downsizing of UNAMID. Currently, phase two of the reconfiguration of the mission running until end of June is underway. The repatriation of three infantry battalions from the mission handing over the team sites to formed police units has been ongoing, with the repatriation of the two battalions from Rwanda and Senegal.
As the delay in the departure of the third battalion from Ethiopia until the end of June for addressing prevailing security conditions shows, there is a level of flexibility required in the implementation of the reconfiguration of UNAMID. With the closure also of three military sector headquarters (Sectors East, North and West) during this second phase, the force will be left with two sectors the Jebel Marra Task Force, with its headquarters at Zalingei, and the State Security Assistance Force, with its headquarters at Nyala.
In April, the Joint AU-UN Strategic Review of UNAMID undertook a two-week visit to Sudan. Apart from considering a new mission concept with adjusted priorities, the review will lead to a report that will be submitted to the PSC in early June. While, as it pushes for the withdrawal of UNAMID, the Government of Sudan has requested the UN for a peacebuilding support in Drafur, it remains uncertain if Darfur would be put under the UN Peacebuilding Commission mandate.
This session presents the PSC the opportunity to assess the ongoing reconfiguration of UNAMID and to set some of the parameters for further review and reconfiguration of the mission. In this respect, while there is support for and consensus in the PSC for the process of withdrawal of UNAMID, there is recognition that this has to be done in a planned and phased way. As the PSC indicated in its statement on its filed visit urging ‘all Sudanese parties to commit to the full realization of peace and stability in Darfur’, there is a need both for mobilization of support for stabilization of the region and full political settlement in Darfur.
The expected outcome of the session is a communiqué. This will present the PSC’s appreciation of the current security and humanitarian situation in Darfur and its assessment of the implementation of the reconfiguration of UNAMID. While expressing its expectation to receive the Special Report of the Chairperson of the AU Commission and the Secretary General of the UN on the Strategic Review of UNAMID, the PSC could also articulate its expectations on the pace and scale of the reduction of the force size of UNAMID and the review of UNAMID’s mandate whose renewal is due on 30 June.
The role that the AU could play in supporting the stabilization process in Darfur and the steps to be taken in this respect including the conduct of a needs assessment are also matters that could feature in the outcome of this session.
The status of the RCI-LRA and renewal of its mandate
Amani Africa
Date | 16 May, 2018
Tomorrow (16 May) the Peace and Security Council (PSC) will hold a briefing session on the status of implementation of the Regional Cooperation Initiative for the Elimination of the Lord’s Resistance Army (RCI-LRA) and the renewal of the mandate of the regional operation. The agenda for the session, which was added subsequent to the adoption of the program of the PSC for the month of May, envisaged submission of a report of the African Union (AU) Commission Chairperson to guide the deliberations and the Council’s actions. Instead of the report, expected to be finalized after the meeting of the Joint Coordination Mechanism (JCM) – the political management body of the RCI-LRA –, the PSC will receive a briefing on the status of implementation of the RCI-LRA.
Apart from the briefing that Smaïl Chergui, African Union (AU) Commissioner for Peace and Security, is expected to provide, the representatives of the RCI-LRA member countries, namely the Central African Republic (CAR), the Democratic Republic of Congo (DRC), South Sudan and Uganda and Economic Community of Central African States (ECCAS) are expected to participate and make statements. The countries most affected by the LRA notably CAR and to some extent DRC are expected to call for the sustaining of the RTF operations. Others expected to make statements include representatives of the UN, the US and the European Union.
It is to be recalled that the US, which provided Special Forces and logistical support to the operations of the Regional Task Force (RTF), suspended its engagement in March 2017. Subsequently, Uganda, which has been the main contributor of the RTF announced withdrawal of its 2,000 troops from the CAR. The operation of the RTF headquarter in the CAR has also been suspended, thereby limiting AU’s engagement with the sectors which operate within their national territories.
Given the limited capacity and participation of the CAR in the anti-LRA operation and the lack of cross-border operation between CAR and DRC, there are concerns that the withdrawal of Ugandan forces would result in a security vacuum, which the LRA forces could use to regroup. While the details would only come from the AUC Chairperson’s report, it is of interest for PSC members to know how the withdrawal of troops and US logistical support and freezing of the RTF headquarters is affecting on the anti-LRA operations and the mandate of the RCI-LRA. As the recent meeting of the Sector Commanders of the AU RTF held at the AU headquarters on 28-29 March highlighted, one issue of particular interest is the reactivation of the RTF with the re-establishment of the force headquarters. Yet, the required funding for the force headquarters has to be mobilized.
For PSC members, this session also presents an opportunity for receiving update on the implementation of the various follow up items from its last decision. This is particularly the case with respect to the realignment of the Concept of Operations (CONOPS) of the RTF with the new developments of the withdrawal of Ugandan troops and US Special Forces. The same is true of the PSC’s call for the convening of a summit the RCI-LRA countries to provide guidance on the future configuration of the RCI-LRA.
In terms of the status of implementation of the RCI-LRA, the briefing is also expected to update PSC members on the level of threat that the LRA continues to pose and recent developments in terms of the counter-LRA operations. It would also provide highlights on the state of coordination with the UN, including within the framework of the joint convening of the Sector Commanders meeting in collaboration with the UN Regional Office in Central Africa.
With respect to renewal of the mandate of the RCI-LRA, it is anticipated that the PSC will be requested to renew the mandate of the mission for a short period, pending the finalization of the Chairperson’s report that will follow the meeting of the JCM of the RCI-LRA. The usual one-year period of renewal of mandate is expected to take place on the basis of the details that the Chairperson’s report would provide on the plan for the RCI-LRA operation and its mandate.
The expected outcome of the session is a communiqué. Apart from welcoming the efforts to sustain the counter LRA operation, the PSC is expected to call for mobilization of logistical and other support to the RTF contingents and to design and implement projects for the stabilization and rehabilitation of the LRA affected areas. Expressing its expectation for receiving the report of the AUC Chairperson, the PSC is also expected to renew the mandate of the RCI-RTF for a short period of three months.
Continental Results Framework on Implementation of the Women, Peace and Security Agenda in Africa
Amani Africa
Date | 15 May, 2018
Tomorrow (16 May) the Peace and Security Council (PSC) will hold its session on the Continental Results Framework (CRF) for Monitoring and Reporting on the Implementation of the Women, Peace and Security agenda in Africa. In its last two meetings on women, peace and security (in 2017), the PSC called for the finalization and presentation of the CRF for its consideration. It is expected that the first report on this framework will be presented to the PSC.
During this session, Bineta Diop, the Special Envoy of the Chairperson of the African Union (AU)Commission for Women, Peace and Security, is set to provide the briefing to the PSC on the theme and the report. Smaïl Chergui, African Union (AU) Commissioner for Peace and Security, is expected to make a statement. Others expected to participate in this session include the African members of the UN Security Council (A3), representatives of Regional Economic Communities (RECs)/Regional Mechanisms (RMs) and the UN.
The CRF was developed following the Council’s 476th meeting, which urged ‘the AU Commission, through the coordination of the Office of the Special Envoy on Women, Peace and Security to formulate a Continental Results Framework to monitor the implementation by AU Member States and other relevant stakeholders of the various instruments and other commitments on women, peace and security in Africa.’ The presentation of the continental results framework duringtomorrow’s session comes following the 21 November 2017 session of the PSC emphasizing the need for ‘the finalization of the Continental Results Framework for monitoring and reporting on the implementation of the Women, Peace and Security Agenda in Africa for consideration by Council, as soon as possible’.
The objectives of this session, as highlighted in the summary the PSC program of work for this session are ‘to encourage AU member states to renew their commitment and to elaborate national action plans on the implementation of Resolution 1325.’ The session also aims to achieve collaboration with RECs/RMs to harness mechanisms to monitor and report on the implementation of the women, peace and security agenda, to enhance partnership with CSOs and Centers of Excellence to support the implementation of the CRF, and perhaps importantly to sensitize member states in the derive for monitoring and reporting on the theme.
The statement from Smaïl Chergui is expected to welcome the framework as an important instrument for tracking progress in the women, peace and security agenda. While various measures have been taken over the years as part of the women, peace and security theme, the statement would make particular mention to recent initiatives notably the establishment of the Network of African Women in Conflict Prevention and Mediation (FemWise-Africa). It is also expected to highlight the contribution of PSD to the elaboration of the CRF and how the CRF complements all these existing mechanisms and importantly how it helps in addressing existing gaps and challenges in implementing the women, peace and security agenda.
In her briefing, Diop is expected to inform the PSC on the development of the continental framework and the constituent elements of the framework. As a framework to monitor progress made by member states on their commitments, the CRF avails to member states a set of indicators for reporting on their gender commitments to the various reporting mechanisms. Various stakeholders including states, RECs/RMs, AU bodies and civil society would through this framework have useful tool not only for identifying what is working and the progress being made but also in understanding and targeting existing gaps and challenges in implementing the agenda. Other issues that the briefing might touch on include the important role and contribution that various actors bring in advancing the cause of this agenda, including in the elaboration of the framework. These role players include not only state-centered ones such as regional and continental intergovernmental bodies and national state actors but also non-state actors such as women’s groups and research and training institutions.
Beyond presenting the elaboration of the CRF and introducing the framework itself, the report on the continental results framework would be of interest for understanding how the framework works and how states could use the framework both for assessing their performance and reporting on their progress in implementing their commitments. Through canvasing the progress made in terms of measures adopted at national, regional and continental levels and existing challenges, the report also helps in putting in perspective the CRF. The report would also be useful in drawing attention to the importance of statistical data, analysis and research on measures taken and on the state of women with respect to the various indicators as well as the funding for the women, peace and security agenda.
From the perspective of the PSC, the CRF will be seen through the prism of its role and its follow up on its standing thematic agenda on women, peace and security. Indeed, since its establishment as a standing thematic agenda of the PSC at its 223rd meeting, ‘women, peace and security’ has become institutionalized. As the report and the intervention from PSD would highlight, apart from featuring on the PSC agenda annually, the theme has over the past few years been anchored institutionally around the Office of the Special Envoy of the Chairperson on Women, Peace and Security and the PSD’s Gender and Peace and Security Program. Member states and RECs/RMs would in particular be keen to be informed how the CRF would be used, including the benchmarks for undertaking the assessment and preparation of reports on performance. Also of interest is what expectations and role this framework sets for national, regional and continental actors in terms of assessing their performance and reporting on the implementation of the commitments of states on women, peace and security. PSC members would also like to hear about coordination and collaboration with various relevant actors, such as the Special Rapporteur of the African Commission on Human and Peoples Rights on the Rights of Women and international actors most notably relevant UN bodies.
The expected outcome of this session is a communiqué. PSC is expected to welcome this framework and call on member states, RECs/RMs and civil society to support the use and implementation of the framework in making assessment and preparing national reports on progress made. The PSC would also call on member states to put in place national implementation mechanisms and the institutionalization of gender analysis and mainstreaming in national, regional and continental policies and programs. Other themes to receive attention in the outcome of the PSC session include the strategies to be followed in operationalizing the CRF including the promotion of national measures, coordination between all regional, continental and national processes and the provision of support for states’ assessment and reporting endeavors.
African Free Movement of People
Amani Africa
Date | 11 May, 2018
Session on free movement of people and migration crisis
Tomorrow (11 May) the PSC will hold its session on the African free movement of people and the migration crisis. This is now one of the themes that Rwanda champions within the AU system. It is to be recalled that in last year’s 21 July session on the same theme, on which today’s session builds, Rwanda addressed the PSC in its capacity as Chair of the Committee of Intelligence and Security Services of Africa (CISSA) on Free Movement of People in Africa and Mitigating Security Impediments.
During this session, the PSC is expected to once again receive briefings from the CISSA. Additional briefings are expected from the Departments of Political Affairs and Peace and Security. Others expected to make statements include representatives of Regional Economic Communities /Regional Mechanisms (RECs/RMs). It is the third session of the PSC focusing on this theme during the past year and half.
This session comes on the heels of the successful extraordinary summit that was held on 21 March 2018 in Kigali, Rwanda during which the AU Protocol on the Free Movement of Persons, Rights of Residence and Establishment was adopted. The briefing from the Department of Political Affairs, the AU Commission’s department that was responsible for the elaboration of the Protocol, would focus on sustaining the momentum on the signing of the Protocol and on addressing the concerns that member states, particularly those who did not sign the Protocol, have. Given the large number of member states (27) that signed the Protocol, discussions are expected to focus also on how to expand signature and accelerate its ratification. In this regard, the AU Commission is expected to provide updates to the PSC on its plans and strategy for promoting ratification.
During this session, member states are expected to share their experiences on the economic benefits of cross border movement of peoples, including for peace and security. In this respect the PSC is expected to commend member states who provide for a regime that allows issuance of visas for Africans on arrival. This session would also assess the status of implementation of the AU Assembly decision of July 2016 [Assembly/AU/Dec.607 (XXVII)]. In this respect, an issue of particular importance relates to the issuance of an African passport by member states and steps that should be taken to make progress.
Particular attention is also expected to be given on the security related challenges associated, in fact or perception, with free movement of peoples and how best these challenges would be addressed, including through enhanced security cooperation. This is an area that CISSA and the Department of Peace and Security are expected to provide analysis of the risks, potential or actual, which is often associated with free movement of people. It would also highlight the actions and processes that is required of member states, including the enhancement of their institutional and regulatory capacity to facilitate the free movement of people.
TThis session is also expected to underscore that free moment of persons is one of the crucial parts in efforts aimed at deepening continental integration as outlined in Agenda 2063. In sharing their experiences, RECs/RMs such as the Economic Community of West Africa (ECOWAS) and the East African Community are expected to share regional best practices and mechanisms to address the security threats associated with free movement of people.
Another area expected to receive attention is the so-called the African migration crisis. Understandably, this would highlight not only the tragedy befalling African migrants as they travel within the continent across difficult terrains of the Sahara and Mediterranean Sea. But also it is expected to underscore the importance of the Protocol on the free movement of people for addressing the crisis as well.
AnotherThe expected outcome of the meeting is a press statement. It is anticipated that it would welcome the adoption of the Protocol on the Freedom of Movement and urge member states to ratify it. Importantly, the outcome of the session is expected to endorse and support initiatives notably those at the level of CISSA and the AU Commission to address the security concerns that continue to impede efforts of member states towards free movement of people. The PSC would also indicate how it plans to follow up on this agenda, although it is remains unclear if this theme would become a standing thematic agenda of the PSC.
AU-UN Special Report on the Strategic Review of UNAMID and the renewal of its mandate
Amani Africa
Date | 11 May, 2018
Tomorrow (11 May) the Peace and Security Council (PSC) will hold a session on the Special Report of the Chairperson of the AU Commission and the UN Secretary-General on the Strategic Review of the UN/AU Hybrid Mission in Darfur (UNAMID). The PSC will also consider the renewal of the mandate of UNAMID whose current mandate ends on 30 June.
Ademore Kambudzi, Acting Head of the Peace and Security Department is expected to deliver a statement on behalf of Smail Chergui, the AU Commissioner for Peace and Security. The Joint Special Representative for Darfur and Head of UNAMID Jeremiah Mamabolo is also scheduled to brief the PSC. The agenda for the session anticipates the participation in this session of the UN office to the AU (UNOAU) and representatives of the African members (A3) of the UN Security Council (UNSC) and the five permanent members of the UNSC. The Government of Sudan is also expected to make statement emphasizing the need for supporting the stabilization of Darfur and to this end for putting Darfur on the agenda of the UN Peacebulding Commission. Although much of the ongoing UN efforts in ending and reducing its peacekeeping operations is a result of the push from the US for budget cuts, the US seem to have concern over setting a final timeline for finalizing the withdrawal of UNAMID, which it is expected to raise during its intervention tomorrow.
During the session, the PSC is expected to make an assessment of the progress made in the review and reconfiguration of UNAMID. Currently, phase two of the reconfiguration of the mission running until end of June is underway. The repatriation of three infantry battalions from the mission handing over the team sites to formed police units has been ongoing, with the repatriation of the two battalions from Rwanda and Senegal. As the delay in the departure of the third battalion from Ethiopia until the end of June for addressing prevailing security conditions shows, there is a level of flexibility required in the implementation of the reconfiguration of UNAMID. With the closure also of three military sector headquarters (Sectors East, North and West) during this second phase, the force will be left with two sectors the Jebel Marra Task Force, with its headquarters at Zalingei, and the State Security Assistance Force, with its headquarters at Nyala.
In the statement of the PSD, Kambudzi is expected to highlight the progress made including in terms of the security situation in Darfur, while noting the remaining security challenges in Darfur
including the intermittent clashes pitting the Sudan Liberation Army/Abdul Wahid faction against government forces and nomads in the Jebel Marra area. The statement would also underscore the need for full political settlement, peacebuilding initiatives and the responsibility that the Government of Sudan bears for taking initiatives for addressing the root causes and remaining legacies of the conflict in Darfur.
Apart from updating the PSC on the efforts of UNAMID to deal with the current security and humanitarian situation in Darfur, Mamabolo’s briefing is expected to address the status of the implementation of the second phase of the reconfiguration of UNAMID. It is also anticipated to address UNAMID’s expectations on its mandate and on its plan on the implementation of its mandate while implementing its phased withdrawal during the coming year. In April, the Joint AU-UN Strategic Review of UNAMID undertook a two-week visit to Sudan. Apart from considering a new mission concept with adjusted priorities, the review has culminated in the special report of AUC Chairperson and UN Secretary-General finalized on 1 June.
The Special Report provides an analysis of the conflict, highlighting the current security situation and conflict drivers in Darfur, the political and humanitarian situation, as well as the development needs critical for avoiding a relapse into conflict. Importantly, the report provides details on the redefined priorities of UNAMID focusing on protection of civilians and mediation both of the political process between government and non-signatory armed forces on the basis of the Doha Document for Peace in Darfur (DDPD) and at the local level to address inter-communal and other local conflicts. It also envisages a limited area of operation for UNAMID, with the withdrawal and liquidation of UNAMID set to end in December 2020.
In its deliberation, the PSC will also benefit from the filed visit that the it undertook to Sudan from 5 to 9 May and the briefing that it received in April from Smail Chergui and Jean-Pierre Lacroix, the UN Under Secretary-General for Peacekeeping on their joint visit to Darfur. From both the briefings it received from Chergui and Lacroix and its filed visit, the PSC has established that the security situation in Darfur has stabilized. Most notable in this regard is the cessation of direct hostilities between government forces and armed rebel groups in Darfur. The implementation of the weapons collection campaign of the government seems to be limiting militias and bandits from freely using their weapons and thereby contributing further to the improvement of the security situation.
Despite such improvements, concerns remain. There are incidents of inter-communal violence leading to major displacement of civilians. Over 11,000 civilians fled their homes to IDP camps following inter-communal clashes in Jebel Marra area in April. Another source of threat for civilians comes from attacks from armed militias and criminals. Apart from the lack of full political settlement and of resolution of the underlying causes and the legacies of the armed conflicts, there are also incidents of clashes relating to the compulsory collection of weapons. There are members of the PSC who may require clarification about plans for addressing the concerns that IDPs expressed to PSC members during its field visit to Darfur over the withdrawal of UNAMID. Despite supporting the December 2020 timeline for the final liquidation of UNAMID, it is also expected that AU PSD and PSC members would call for flexibility in terms of both the implementation of the withdrawal plan and the area of operation of UNAMID until 2020. On both counts, the expectation is that the process should allow adequate space for UNAMID to address changes that may arise in the security situation in Darfur. This would entail that UNAMID continues to have a wider area of operation than envisaged in the Special Report.
In terms of measures to be taken for preventing the withdrawal of UNAMID from creating security vacuum, as has been noted earlier, the Government of Sudan, while pushing for UNAMID’s withdrawal, has sent a request to the Secretary-General to have Darfur under the UN Peacebuilding Commission mandate. Indications are that some permanent members of the UNSC may not support that, while it is expected to receive the support of members of the PSC as one measure for preventing return of the armed conflict in Darfur. The outcome of the session will be a communiqué. This will present the PSC’s appreciation of the current security and humanitarian situation in Darfur and its assessment of the implementation of the reconfiguration of UNAMID. While welcoming the Special Report of the Chairperson of the AU Commission and the Secretary General of the UN on the Strategic Review of UNAMID including the December 2020 end date for completion of the liquidation of UNAMID, the PSC could also articulate its expectations on the modalities of implementation of the revised concept of operation of UNAMID. Its endorsement of the process of withdrawal would come with a caveat of its plan to continue to monitor the situation and take appropriate action that developments on the ground warrant. The PSC would also renew the mandate of UNAMID for another twelve month. The role that the AU could play in supporting the stabilization process in Darfur including in disarmament, demobilization and reintegration and security sector reform and the steps to be taken in this respect including the conduct of a needs assessment are also matters that could feature in the outcome of this session.