Consideration of the ToRs of the PSC Subcommittee on Counter-Terrorism and PCRD
Date | 14 August 2025
Tomorrow (15 August), the African Union (AU) Peace and Security Council (PSC) will convene its 1297th session to consider the Terms of Reference (ToR) of the PSC Sub-committee on Counter-Terrorism. Although not initially on the August 2025 programme of work, the PSC is also expected to consider the ToR for the Sub-committee on Post-Conflict Reconstruction and Development (PCRD).
Following opening remarks from Mohamed Khaled, Permanent Representative of Algeria to the AU and Chairperson of the PSC for August 2025, Bankole Adeoye, AU Commissioner for Political Affairs, Peace and Security (PAPS), is expected to make introductory remarks. Michael Wamai, Expert from Uganda and the Chairperson of the Committee of Experts (CoE) of the PSC for July 2025, is expected to make a presentation on the ToR of the PSC Sub-committee on PCRD. In addition, Mohamed Lamine Nait Youcef, Expert from Algeria and Chairperson of the CoE of the PSC for August 2025, will make a presentation on the ToR of the PSC Sub-committee on Counter-Terrorism.
Building on the CoE’s 78th meeting on the ‘review of the Draft Terms of Reference of the Peace and Security Council Subcommittee on Counter-Terrorism’ held on 1 August, the Sub-Committee’s establishment aligns with the Malabo Decision of May 2022, the 249th PSC meeting of November 2010 and the 1182nd PSC meeting of 2023, which emphasised the urgent need to activate this body to address the growing complexity of terrorism in Africa. The proposed ToR outlines the Sub-Committee’s objectives, mandate, composition and operational modalities, aiming to enhance the PSC’s ability to respond to terrorism through African-led strategies, coordination with Regional Economic Communities (RECs)/Regional Mechanisms (RMs) and collaboration with AU bodies like the African Union Counter-Terrorism Centre (AUCTC), AFRIPOL and CISSA. The Sub-Committee is tasked with monitoring PSC decisions, assessing trends in continental terrorism, and promoting a multidimensional approach to addressing the structural causes of terrorism.
Africa continues to face an unprecedented surge in terrorist activities, with the Sahel region emerging as the global epicentre of terrorism. According to the AUCTC, terrorist attacks increased by 99% and related deaths by 53% in 2023 compared to the previous year, with West Africa accounting for 45% of attacks and 62% of deaths in Q2 of 2024. Burkina Faso, Mali, Niger, Somalia and the Democratic Republic of Congo (DRC) remain the most affected, with groups like Jama’a Nusrat ul-Islam wa al-Muslimin (JNIM), Al-Shabaab and Islamic State West Africa Province (ISWAP) expanding their reach. The spread of terrorism to coastal West African states like Benin, Togo and Côte d’Ivoire, alongside emerging links between piracy and terrorism in the Gulf of Guinea, underscores the evolving threat landscape. Initiatives such as the AU Ministerial Committee on Counter-Terrorism (AUMCCT) and the African Counter-Terrorism Coordination Task Force (A2CTF), as mandated in the 1237th PSC meeting of October 2024, have been established to mitigate this. However, challenges such as the dissolution of the G5 Sahel Joint Force, political instability and foreign interference have hampered regional coordination. The 2024 Global Terrorism Index highlights Burkina Faso as the world’s most terrorism-affected country, emphasising the need for a shift from military-centric to holistic, governance-focused strategies.
The PSC and AU Assembly have issued several decisions to strengthen counter-terrorism efforts. The 2022 Malabo Declaration called for the immediate operationalisation of the PSC Sub-Committee on Counter-Terrorism and the establishment of the AUMCCT. The 1182nd PSC meeting, on the other hand, urged the full activation of the Sub-Committee and the A2CTF, emphasising context-specific interventions. Additionally, the 1237th PSC meeting welcomed the AU Commission’s report on combating terrorism, condemning foreign interference and calling for sustainable funding for AU-led peace support operations (PSOs) under UNSC Resolution 2719. It also emphasised psychosocial support for victims and the operationalisation of the AU Special Fund for Counter-Terrorism. Notwithstanding, The Abuja Process Declaration of 2024 reinforced the need for regional cooperation and institutional building to address terrorism’s evolving nature. Despite these decisions, implementation gaps persist, including delays in operationalising the Sub-Committee, limited funding for counter-terrorism initiatives, and weak coordination between AU bodies and RECs/RMs. The PSC further noted the growing nexus between terrorism and transnational organised crime, such as illicit resource exploitation, which remains inadequately addressed.
The draft ToRs provides a foundational framework for the Sub-Committee’s role in coordinating counter-terrorism efforts, monitoring PSC decisions, and promoting African-led solutions. However, several gaps warrant attention. First, there is ambiguity in the mandate scope: while the ToR outline broad functions such as recommending strategies and monitoring PSC decisions, they lack specificity on operational mechanisms, timelines and accountability frameworks. Funding mechanisms are also insufficiently addressed; although a proposed annual budget is mentioned, sustainable funding sources are not identified, despite the PSC’s call for predictable financing in its October 2024 meeting and the operationalisation of the AU Special Fund for Counter-Terrorism remains stalled. In addition, while the ToR references a multidimensional approach to addressing structural causes of terrorism, it does not explicitly integrate governance, socioeconomic development, or climate-induced insecurity, which the AU Commission’s 2024 report identified as key drivers. The framework does not also address the growing use of advanced technologies, including drones and digital platforms, by terrorist groups and finally, the need for psychosocial support for victims, particularly women and youth, is imperative. The ToR does not incorporate mechanisms to ensure gender-sensitive or victim-centered approaches.
To strengthen the ToRs and enhance the Sub-Committee’s effectiveness, the PSC and AU Commission should clarify operational mechanisms by defining specific procedures for punitive measures, intelligence sharing and strategy development, including timelines for reporting and decision-making and adopt a quarterly review mechanism to track progress on PSC decisions. In light of the increasing number of PSC Sub-Committees, the PSC should give due consideration to ensuring that the Sub-Committees receive the necessary support to execute their given mandates effectively and efficiently, while exploring partnerships with international donors without compromising African ownership. Regional coordination can be improved by establishing a formal framework with RECs and RMs, including joint task forces and regular consultations, to harmonise regional counter-terrorism strategies and address gaps left by the G5 Sahel’s dissolution. The mandate should explicitly integrate governance, socioeconomic development, and climate resilience, potentially in collaboration with the AU Centre for PCRD, to address the root causes of terrorism. Emerging technologies should also be addressed by including measures to counter drones, cyberattacks and digital propaganda, leveraging technical partnerships with AFRIPOL and CISSA. Victim-centred approaches, on the other hand, should be prioritised through programmes for psychosocial support and reintegration, particularly for women and youth, with gender mainstreaming embedded in all activities. Finally, accountability should be strengthened by introducing a robust monitoring and evaluation framework, with regular reporting to the PSC and AU Assembly on progress and challenges.
On the other hand, the PSC will consider the ToR for the Sub-committee on PCRD. The establishment of the Sub-Committee on PCRD is rooted in the AU’s recognition of the evolving nature of conflicts in Africa, which demand coherent, coordinated and sustainable post-conflict reconstruction strategies. The AU’s Policy on PCRD, revised in 2024, emphasises holistic approaches combining peacebuilding, institutional capacity-building, socio-economic recovery and reconciliation. The Sub-Committee, established under Article 8(5) of the PSC Protocol, is designed to receive assignments and mandates on specific post-conflict situations from the PSC. It will monitor political, socio-economic, and security developments across the continent in collaboration with the relevant units of the AU Commission, the AU PCRD Center, AUDA-NEPAD, APRM, other AU organs, institutions, entities and RECs/RMs and make recommendations to the PSC on required interventions. The Sub-Committee will oversee the implementation of PCRD activities and decisions adopted or endorsed by the PSC, providing regular updates on progress. It will also seek, at a technical level, relevant information from AU Member States, RECs/RMs, and partners regarding actions taken to implement PCRD measures, and offer recommendations to enhance their effectiveness. Furthermore, it will identify key areas for capacity building, financial support and technical assistance needed by Member States in post-conflict situations, and propose appropriate measures for PSC consideration. Lastly, the Sub-Committee will advise on resource mobilisation strategies, including innovative financing solutions, to sustain long-term PCRD efforts and ensure lasting recovery and development.
Recent PSC and Assembly decisions underscore the urgency of this initiative. The 1293rd PSC meeting on 4 August highlighted the worsening humanitarian and security crisis in Sudan, calling for enhanced PCRD efforts to address famine and conflict escalation. Similarly, the 1291st meeting in July 2025 addressed the situation in Libya, emphasising the need for coordinated post-conflict strategies. The AU Assembly’s Decision [Ext/Assembly/AU/Dec.(XVI)] and 1122nd PSC meeting of November 2022 further reinforced the mandate for PCRD, stressing the prevention of conflict relapse through governance and socio-economic interventions. The Sub-Committee’s formation comes at a time when Africa faces persistent and emerging threats, including terrorism, unconstitutional changes of government and complex political transitions. The PSC’s recent engagements, such as the July 2025 Joint Consultative Meeting with the Pan-African Parliament (PAP) in Midrand, South Africa, emphasised enhancing institutional synergy to implement PSC decisions and promote post-conflict recovery.
To afford this sub-committee its relevance, institutional synergy is important. In this regard, the Sub-Committee should prioritise coordination with RECs/RMs, the PCRD Centre in Cairo, AUDA-NEPAD and the APRM to prevent fragmented efforts, while leveraging existing platforms like the I-RECKE Policy Sessions to share best practices. Tailored PCRD strategies are also essential, with the Sub-Committee developing country-specific frameworks to address unique post-conflict challenges. Finally, sustainable financing must be pursued, with the AU Commission exploring innovative funding models, including public-private partnerships, to ensure the long-term sustainability of PCRD initiatives.
It is also worth noting that the Sub-Committees will be composed of the fifteen (15) Member States of the PSC, represented at the level of experts. Given the nature of their work, each Member State on the Council—and therefore in each Sub-Committee—will designate two experts, with one serving as the main representative and the other as a substitute, though both will be able to participate in the Sub-Committees’ activities.
The expected outcome of the session is a communiqué or a summary record. The PSC may welcome and endorse the refined ToRs for the PSC Sub-Committees on Counter-Terrorism and PCRD, commending the Committee of Experts for their engagement in the process. Council is also likely to direct the AU Commission to utilise the ToRs on counterterrorism and PCRD in the mandating, implementation, management and oversight of all counterterrorism and PCRD efforts, with a view to enhancing institutional coordination between relevant AU Organs, as well as between the AU and AU-RECs/RMs in the prevention, response and resolution of conflicts on the Continent. Furthermore, Council may urge the prompt operationalisation of the Sub-Committees, encourage regular and robust monitoring and evaluation and call for sustainable and predictable financing.
