Update on AU Post-Conflict, Reconstruction and Development (PCRD)
Update on AU Post-Conflict, Reconstruction and Development (PCRD)
Date | 28 November 2022
Tomorrow (28 November), the African Union (AU) Peace and Security Council (PSC) will convene its 1122nd session to receive update on AU Post-Conflict, Reconstruction and Development (PCRD). The update will be one of the two agenda items that the PSC is set to consider during this session.
Emilia Ndinelao Mkusa, Permanent Representative of Namibia to the AU and Chairperson of the PSC for the month of November is expected to make opening remarks. Bankole Adeoye, AU Commissioner for Political Affairs, Peace and Security (PAPS), is scheduled to introduce the progress report and present an update on the activities implemented during the year.
This session comes within the context of the commemoration of the second edition of PCRD awareness week (24 to 30 November 2022), which is being marked under the theme of ‘towards repositioning Post-Conflict Reconstruction and Development in Africa: greater awareness and sustained peacebuilding’. PCRD awareness week was first launched last year in November with the aim to raise awareness on and promote collective action of AU Member States and partners, on the recovery and development needs of post-conflict societies. It is to be recalled that the Assembly (Assembly/AU/Dec. 815(XXXV)) as well as the PSC during its 1047th session of November 2021 endorsed the institutionalization and regularization of the awareness week as an annual event.
In tomorrow’s session, members of the PSC are expected to discuss on progress and challenges in the implementation of AU PCRD policy since its last dedicated session on PCRD in November last year. PSC’s 670th session of March 2017 recognized that the ‘PCRD dimension remains the weakest link’ within the implementation processes of both the African Peace and Security Architecture (APSA) and the African Governance Architecture (AGA). However, in recent years the Commission has stepped-up efforts in mainstreaming PCRD in its activities, as well as its support to Member States that are in political transition and post-conflict situations.
Examples that highlight the increasing implementation of PCRD support in member states include: Implementation of Quick Impact Projects (QIPs) and Peace Strengthening Projects (PSPs) in Somalia; the development of Regional Stabilization Strategy for the Lake Chad Basin and the Stabilization Strategy for the Sahel; support in the areas of reconciliation and healing in South Sudan, support in the establishment of Human Rights Commission and in the areas of disarmament, demobilization and reintegration (DDR) as well as security sector reform (SSR) in Central African Republic; and support in the areas of SSR, rule of law, and transitional justice in the Gambia, where the AU deployed a PCRD mission.
In past, liaison offices were AU’s main tool of channelling its PCRD support to Member States. This is expanded as the example of the AU Technical Support Team to the Gambia (AUTSTG) shows the deployment of technical mission involving experts tasked to support peacebuilding activities ranging from SSR, transitional justice to establishment of bodies like national human rights commission. In 2021, similar types of missions were initiated for the Comoros and Chad. For example, small team of experts (two international experts on constitutionalism & Rule of Law, and election, and one national expert) are being deployed ahead of the 2024 election in the Comoros.
In terms of progress in the operationalization and strengthening AU’s PCRD policy and its architecture since PSC’s 1047th session, two important developments are likely to be highlighted. The first is the initiation of the revision of AU PCRD Policy Framework, which has been in place since its adoption in 2006. It is to be recalled that the PSC, at its 1047th session, requested for the ‘urgent review of the AU PCRD Policy Framework in order to ensure that it is re-aligned and adaptable to the emerging challenges in the continental peace and security landscape’. The Assembly (AU/Dec.815XXXV of 6 February 2022) made a similar call, further requesting the Commission to submit the revised Policy in the upcoming ordinary session which is expected to happen in February 2023. AU Commission accordingly convened a high-level expert engagement to review the Policy from 9 to 14 September 2022 in Accra, Ghana. In his presentation, Bankole is likely to highlight the major areas of revision, including the addition of two pillars (youth and environmental security) and one principle (humanitarian principles); the definition of human security; and the expansion in scope.
The second major development is the formal launch of the AU PCRD Centre in Cairo, Egypt in December 2021 with the mandate to serve as a hub of operational excellence on peacebuilding efforts on the continent. However, as the AU Champion on PCRD, Egypt’s President Abdel Fattah El-Sisi, highlighted in his statement issued on 22 November, the full operationalization of the PCRD Centre need to be fast tracked for the Centre to deliver on the critical role that it is envisaged to play. According to the Commission’s progress report on the AU PCRD policy implementation, the shortlisting of candidates for 11 positions has been undertaken as of November. The Centre is expected to have 30 staff members when it becomes fully operational. Bankole may also highlight ongoing efforts to the formulation of an AU policy on psychosocial support to survivors in post-conflict contexts in line with PSC request at its 593rd session in April 2016.
While AU has made notable strides in creating the necessary normative and institutional frameworks and providing supports to Member States in the areas of PCRD, there are number of challenges and outstanding issues which PSC should consider for the effective implementation of AU’s PCRD policy. In terms of challenge, the most prominent one remains the resource constraint as PSC noted with concern during its 593rd, 670th, and 958th sessions, among others. For example, lack of funding was the main reason why the AU PCRD mission in the Gambia was brought to an end. In various of its sessions on PCRD, PSC considered at least three options to address the resource constraints. The first is revitalization of the African Solidarity Initiative (ASI). The PSC, during its 1047th session, underlined the ‘urgent need’ for the revitalization of this initiative as ‘an important framework for mobilization of in-kind support from within the Continent’. The second is engaging the African Development Bank, African private sector, African stakeholder-organizations, as well as international partners such as World Bank, UN Development Programme, and UN Peace building Commission. The third is the use of AU’s peace fund. Among the priority activities proposed for the utilization of the peace fund under window 2 (institutional capacity) include operationalization and capacity building of the AU PCRD Centre and enhancing Member States’ capacity in the areas of DDR and SSR. Additionally, the PSC sub-committee on PCRD, which was supposed to provide the necessary political leadership and oversight on the implementation of PCRD activities, is also yet to be operationalized despite PSC’s repeated request for its re-activation.
The expected outcome of tomorrow’s session is a communique. PSC is expected to welcome the commemoration of the second PCRD awareness week. Echoing the 21 November statement of the Chairperson of the AU Commission, PSC may note the significant achievements made towards the operationalization and implementation of the AU PCRD Policy, including the revision of the PCRD policy framework and formal launch of the Cairo PCRD Centre. PSC may also commend the Commission for the different initiatives and supports to Member States that are aimed at consolidating peace and preventing conflict relapse. On the Cairo PCRD Centre, PSC may reiterate the call of the AU Champion on PCRD, Egypt’s President Abdel Fattah El-Sisi, for the AU Commission to ‘fast track the operationalization of the work of the Center and to endorse its functional structure’. In relation to the challenges, PSC may call upon the Commission to expedite the pilot utilization of the peace fund in line with the identified priority activities. It may further request the Commission to step-up mobilization of resources, particularly through the revitalization of the ASI and engagement of African private sector and financial institutions, as well as international partners including UN PBC. It may also call upon the UN Security Council to ensure adequate, predictable and sustainable financing for peacebuilding efforts in Africa. PSC may urge the Commission to strengthen mainstreaming PCRD and peacebuilding aspects in all its activities including in the relevant country situations and thematic issues, as well as field visits. It may also request the Commission to expedite the preparation of AU Policy on psychosocial support to survivors in post-conflict contexts.
5th Annual Consultative meeting between the PSC and the UN PBC
5th Annual Consultative meeting between the PSC and the UN PBC
Date | 28 November 2022
Tomorrow (28 November), the African Union (AU) Peace and Security Council (PSC) is expected to convene its 1122nd session in which one of the agenda items will focus on the 5th annual consultative meeting with the United Nations (UN) Peacebuilding Commission (PBC) on climate change and peacebuilding in Africa.
The Consultative meeting is expected to start with opening remarks from Emilia Ndinelao Mkusa, Permanent Representative of Namibia to the AU and Chairperson of the PSC for November, and, Muhammad Abdul Muhith, Permanent Representative of Bangladesh to the UN and Chair of the UN PBC. The PSC will also receive interventions from Bankole Adeoye, AU Commissioner for Political Affairs, Peace and Security (PAPS), Elizabeth Spehar, Assistant Secretary General for Peacebuilding Support Office and Parfait Onanga-Anyanga, Special Representative of the UN Secretary-General to the AU and Head of the United Nations Office to the African Union (UNOAU).
PSC and UN PBC have been able to regularize their engagement in recent years within the context of the joint AU-UN framework for enhanced partnership in peace and security signed in 2017 and the AU-UN framework for the implementation of Agenda 2063 and the 2030 Agenda for Sustainable Development (2018), which lay the foundation for continued cooperation between AU and UN on peace and security on the continent. PSC and UN PBC have convened four annual consultative meetings since 2018. The last consultative meeting was held on 11 November 2021 during the inaugural AU PCRD week on the accompaniment of African countries undergoing political transitions with peacebuilding tools. The fifth annual consultative meeting will focus on climate and peacebuilding in Africa. This timely thematic focus comes at the backdrop of the conclusion of the two-week-long United Nations Climate Conference (COP27) in Sharm el-Sheikh, Egypt. Moreover, the issue of climate change and security is high on the agenda of the PSC; the latter has convened around 12 sessions dedicated to climate change and security in Africa since 2016.
According to the concept note prepared for tomorrow’s session, the consultative meeting aims to exchange views on the ‘impact of climate change on peacebuilding, particularly in support of Agenda 2063 and the “Silencing the Guns” initiative’ and presents the two sides the opportunity to explore options that would synergize and coordinate ‘strategic and operational responses to the climate crisis in the pursuit of building and sustaining peace in the continent’. The consultative meeting is expected to specifically tackle the following questions:
- How is climate change impacting peacebuilding on the continent?
- What are the differential effects of climate change and conflicts on women, girls, youth,and other vulnerable groups?
- What are the existing local-specific mechanisms, good practices, and opportunities forclimate sensitive programming for peacebuilding?
Africa remains the most vulnerable continent to climate change despite its low contribution to greenhouse gas emissions (less than 4 percent). The PSC has recognized the link between climate change and security in Africa in various of its sessions. Its 1051st session of November 2021, for instance, acknowledged the ‘wide-ranging risks of climate change, as a threat multiplier, to the peace and security landscape in the continent including on food and water insecurity, loss of livelihoods, failure of management of natural resources, the scarcity of water resources, climate-induced displacements, and possibly aggravating existing vulnerabilities, tensions and conflicts’.
Amani Africa’s statement on climate and security nexus that was released ahead of COP27 also noted ‘mounting consensus and evidence that the climate crisis carries adverse consequences for political stability and peace and security’ despite the uncertainty over the causal links between climate and conflict. The statement identified four points in which climate change and security intersects in Africa. The first is where climate induced scarcity of natural resources leads to violent competition over control and access to such ever depleting resources. The second is where climate change induced extreme weather events operate as multipliers of conflict factors, through their interaction with existing national and local political, social, and environmental stresses. The third is where climate related disaster interferes with and undermines peace processes and transitions, while the fourth is when climate change in causing disasters and humanitarian emergencies leads to not only displacements that could undermine social cohesion but also impedes development efforts and resilience of societies for averting and managing political tensions and conflicts.
Negative effects of climate change particularly manifests in fragile contexts where ‘governance systems and institutions are not strong’, ‘coping mechanisms are weak’, ‘the natural resources are a key source of livelihoods’, and ‘there are stark gender inequalities.’ As such, given that climate change, developmental, and peace and security challenges of the continent are interconnected and mutually reinforcing, it is imperative to adopt a comprehensive strategy that are climate-sensitive and addresses underlying causes of insecurity in a holistic manner. Indeed, during its 1051st session, PSC underlined ‘the importance of adopting a climate-sensitive planning dimension in peacekeeping and post-conflict reconstruction and development efforts to prevent any relapse to armed conflicts in fragile communities’. In this respect, AU-Lake Chad Basin Commission regional strategy for the stabilization, recovery & resilience of the Boko Haram affected areas of the Lake Chad Basin and UN integrated strategy for the Sahel (UNISS) and its Support Plan (2018-2030) offer important lessons in terms of developing such a comprehensive strategy that integrates peacebuilding as a major component in addressing multidimensional challenges including climate change. On the part of UN PBC, they are also likely to mention the UN Secretary-General’s Peacebuilding Fund and its various climate informed peacebuilding projects with an active portfolio of over USD 251 million across Africa.
Of particular interest to the participants of the consultative meeting is the recent launch of the Climate Responses for Sustaining Peace (CRSP)- an initiative of COP27 Presidency in partnership with the AU as well as the United Nations Development Programme (UNDP). Anchored on four pillars (strengthening the climate adaptation and peacebuilding nexus; sustaining peace through climate resilient food systems; advancing durable solutions to the climate-displacement nexus; and accelerating climate finance for sustaining peace), the initiative aims to ensure that integrated climate responses contribute to sustainable peace and development.
In terms of specific conflict contexts, tomorrow’s session may also put the limelight on how extreme whether events induced by climate change (floods and drought from repeated failure of rains) is undermining peacebuilding in South Sudan and in Somalia. The experiences in these countries clearly illustrate that unless accompanied by and integrates measures that address the impacts of climate change peacebuilding could not be pursued successfully.
The expected outcome from the consultative meeting is a press statement. It is expected that the two bodies welcome the progress made in strengthening their relations while reiterating the call made at the previous consultative meeting for an impact-driven collaboration with greater emphasis on coherent planning, operational complementarity, and leveraging on comparative advantages in specific contexts. The two bodies may also recognize some of the positive efforts made by AU in strengthening its PCRD and peacebuilding responses, notably the revision of the AU PCRD Policy and the launch of Cairo PCRD Centre. However, they may also recognize the resource constraint and in this regard, the two sides may emphasize the need for adequate, predictable, and sustainable funding for AU peacebuilding efforts. In relation to the theme of the meeting, while acknowledging the negative impact of climate change on the peace, security, and stability of the continent, they may further underscore the imperative of strengthening the climate adaptation and peacebuilding nexus. They may also welcome the launch of the CRSP initiative and call upon international partners to support the same, in addition to other continental, regional, and national initiatives in pursuit of addressing underlying causes of multidimensional challenges that many African countries are facing. They may also emphasize the need for climate sensitive planning and implementation of peacebuilding interventions and may in this respect call for enhanced climate action in implementing peacebuilding interventions in South Sudan and Somalia. Cognizant of the disproportionate impact of climate change on most vulnerable groups, the two bodies may also stress the importance of paying a particular attention in integrating the needs and priorities of women and youth.