AFRICAN UNION UNION AFRICAINE UNIÃO AFRICANA Addis Ababa, ETHIOPIA P. O. Box 3243 Telephone 517 700 Cables: OAU, ADDIS ABABA REPORT OF THE CONSULTATIVE MEETING BETWEEN THE AFRICAN UNION AND REGIONAL ECONOMIC COMMUNITIES ON THE AFRICAN STANDBY FORCE AND THE MILITARY STAFF COMMITTEE 14-16 April 2003 Addis Ababa, Ethiopia
REPORT OF THE CONSULTATIVE MEETING BETWEEN THE AFRICAN UNION AND REGIONAL ECONOMIC COMMUNITIES ON THE AFRICAN STANDBY FORCE AND THE MILITARY STAFF COMMITTEE, Addis Ababa, 14-16 April 2003 I. OPENING 1. The meeting was opened by Amb. Sam Ibok, Director of Peace and Security Directorate, in the AU Commission, who welcomed the participants on behalf of the Interim Chairperson of the AU Commission, H.E. Mr. Amara Essy, and the Interim Commissioner for Peace, Security and Political Affairs, Amb. Said Djinnit. He thanked them for honoring the invitation to participate in the consultations for the establishment of the African Standby Force (ASF) and the Military Staff Committee (MSC), both being cardinal elements in the Protocol establishing the Peace and Security Council (PSC) to the African Union. 2. The Director extended specific welcome to representatives of the United Nations, particularly the UNDPKO, Sub-regional organizations, and representatives of partner organizations and countries to the meeting. 3. Amb. Ibok situated the meeting in a historical context by highlighting the fact it is part of the efforts to equip the continent with appropriate mechanisms that can enable it to respond speedily and effectively to situations of conflict. He went on to spell out the purpose of the meeting as: To consider the coordination of military doctrines, concepts of operations, training, logistical arrangements, as well as the financing and management of the Peace Support Operations within the context of a single African security and defence architecture. 1
To consult with the SROs on the concept and modalities for establishing the African Standby Force and Military Staff Committee as called for in the Protocol establishing the Peace and Security Council. To reflect on the problems of coordination and harmonization in peace operations between the African Union and the Sub-regional organizations, as well as with the United Nations. To lay the parameters for collaboration with external partners, such as the G8 and others. 4. Finally, the Director indicated that the meeting was expected to consider and where necessary, enrich the comprehensive recommendations on the establishment of an African Standby Force and Military Staff Committee, and related issues, that will be submitted to the African Chiefs of Defence Staff and subsequently to the Policy Organs of the African Union. II. PRESENTATIONS A. Overview of the Concept Paper on the African Standby Force and Military Staff Committee by Major-General (Rtd) Tim Ford 5. General Tim Ford who led the team of UN consultants that assisted in the preparation of the concept paper provided an overview of the draft document on the African Standby Force and Military Staff Committee by highlighting the mission scenarios for the employment of the ASF, main outputs, and the recommendations to be forwarded to the ACDS. 6. General Ford highlighted the following mission scenarios: Scenario 1 AU/SROs military advice to political mission Scenario 2 AU/SROs observer mission co-deployed with the UN Mission 2
Scenario 3 AU/SROs Standalone AU/SROs observer mission Scenario 4 AU/SROs peacekeeping force for Chapter VI and preventive deployment missions Scenario 5 AU/SROs peacekeeping force for complex multidimensional missions-low-level spoilers Scenario 6 AU interventions (in genocide situations where the international community does not act promptly). 7. Gen. Ford then outlined three outputs of the Concept Paper: a. Suggested action plan for ASF b. Military Staff Committee procedures c. Implications for Third ACDS Meeting B. Presentation on RECAMP by Danton Xavier, Chef de Bataillon 8. Chef de Bataillon Danton Xavier gave a brief history of RECAMP by pointing out that in its 4 years of existence Recamp it has been able to adjust and adapt to the African situation. Its priority areas have also been expanded to widen the scope of contributing countries, strengthen its sub-regional capabilities in conflict prevention, and enhance future RECAMP logistical material in Africa. Although the programme has now been renamed RECAMP 21, its operational principles remains that of helping African states to develop their capabilities in dealing with conflicts on the continent and they will progressively assume responsibilities of their security. 9. The new focus of RECAMP 21 is on preventing crises, through diplomatic conflict prevention, training of peacekeeping forces, and establishing partnerships and offering of support services to African countries. This operates in three phases. The first phase involves troops training at country and regional levels; the second phase involves policies and diplomatic action; and the third phase involves logistical support to troops involved in crisis areas. 3
C. Presentation on the G8 Initiative by Brigadier-General Pal Martins, Representative of NEPAD 10. Brig-Gen. Martins recalled the 2002 Kananaskis G8 meeting at which the NEPAD Heads of State Implementation Committee attended and at which they presented the NEPAD Initial Action Plan. The G8 countries made a commitment to support the NEPAD plan and in turn responded wit the G8 African Action Plan. The two plans covers the following eight priority areas: demobilization, disarmament and reintegration, security sector reform, small arms and light weapons, early warning, early action, exploitation of resources in conflict areas, strengthening the conflict prevention mechanisms, and peace support operations. This initiative was followed-up by a harmonization of the AU and NEPAD peace and security agenda that was presented to a joint G8-NEPAD Joint Task Group on Peace Support Operations in Berlin, Germany, in March 2003. 11. Further, Brig-Gen. Martins pointed out that the G8 were willing and ready to support the African peace and security agenda and called upon the Africans to take the lead in defining the parameters of this partnership with them. In so highlighting the window of opportunity that exists to further the goals of peace and security in the continent, he underscored the need for Africans to harmonize their continental and regional level initiatives by establishing a common strategy that will be presented to the G8 Summit in Evian, France, in June 2003. It is this common strategy that will form the basis on which the G8 partners will support African peace and security agenda. D. Presentation on BMATT by Lt. Col. Dennis Bottomley 12. Lt. Col. Bottomley pointed out that BMATT has also undergone a name change to British Peace Support Team (BPST). Although BPST was based in Kenya, it has a regional thrust covering countries in East Africa, Horn of Africa, Great Lakes and the Indian Ocean. He situated his presentation by laying out the United Kingdom policy for Africa that focuses on regional initiatives, aims at contributing to security sector reforms, encourages Africans to lead, and works 4
closely with other donor countries in promoting peace and humanitarian assistance in the region. 13. Among the achievements of BPST since its establishment, Col. Bottomley mentioned running the most successful international senior officers courses, giving material support to the Kenya Peace Support Training Centre, benefiting regional humanitarian assistance efforts and peace-building processes. Finally, it is in the future plans of BPST to start a humanitarian de-mining training center, expand its regional assistance and support programs, and involve the African Union in being a part of a course they are already running. E. Presentation on SHIRBRIG by Brig. Gen. Sten Edholm 14. Gen. Edholm pointed out that SHIRBRIG was formed in the early 1990s as an early response to the experiences of Rwanda and Srebrinca. It is a standing multinational brigade at high readiness that provides the UN with a well-prepared rapid deployment capability for peacekeeping operations mandated by the UN Security Council. SHIRBRIG has 15 full members, none of which is a UN Security Council Permanent Member but all have experiences in peacekeeping operations. It also has 5 observer members who include Senegal. 15. The general concept of SHIRBRIG is that its peacekeeping operations are mandated by the UN Security Council, has 6 months deployment, 15-30 reaching time, self-defence and extraction, and 60 days self-reliance. Its concept of operation is pre-deployment, deployment, execution and employment, re-deployment, and reconstitution. Once deployed, SHIRBRIG falls under UN Command. 16. The key to SHIRBRIG cohesion is the permanent planning, which has about 20 staff. It took about three years to build up. SHIRBRIG s work plan entails updating and improving its SOPs, holding seminars and training exercises, developing new tactical concepts, undertaking fact finding tours, conducting staff exercises, holding force development seminars, undertaking contingency planning, and preparing readiness and mounting plans. SHIRBRIG 5
closely cooperates with UNDPKO by maintaining regular dialogue, exchanging visit programs, and exchanging documents and information. 17. In highlighting SHIRBRIG s close connection with Africa, Gen. Edholm pointed out that its first deployment was as part of the UN Mission in Ethiopia and Eritrea (UNMEE) and anticipates its future deployments to be in Africa. Besides Senegal, it has plans to incorporate more African participants in its future missions. Furthermore, SHIRBRIG is willing to share all information and lessons learned, and also hopes to support future AU development programs for peace support operations. III. GENERAL COMMENTS AND CONTRIBUTIONS 18. It was pointed out that the phrasing on P. 9 (4.3d) of the concept paper does not comprehensively cover the work of other regional organizations in the area of peace and security. Consequently, it was suggested that the following related to ECCAS, to be included in the revised concept paper. Currently there are 5 countries out of 11 that have ratified the Protocol relating to the establishment of the Peace and Security Council of the Central African region. The Protocol will come into effect upon ratification by 2 other members of ECCAS. 19. It was noted that the Heads of State and Government of CEEAC have adopted, on 17 June 2002, at Malabo, Equatorial Guinea, the rules of procedure of the Commission on Defence and Security of the early warning mechanism of the Central African region and of the Central African Multinational Force, which should be composed of a brigade of 2,000 which shall give effect to the spirit of the ECCAS Peace and Security Council architecture. In this regard, a twophased military exercise named Biyongho 2003, will be organized from 7 to 21 June 2003. The first phase will be held from 7-13 June 2003, and the second phase from 16 to 21 June 2003. 20. It was also suggested that the following should also be added on page 9 (4.3d) of the concept paper. Since 1999, COMESA has 6
developed a programme on peace and security with a focus on conflict prevention, which is carried through preventive diplomacy. The current COMESA programme puts a special focus on building the capacity of civil society, NGOs, private sector, as well as parliamentarians. COMESA has a structure to deal with peace and security matters with the authority at the top. The Ministers of Foreign Affairs meet once a year to consider peace and security matters. There is also a committee of officials at the technical level. 21. It was proposed that the following should also be added to page 9 (4.3d) of the draft of the concept paper. IGAD has recently created a Verification and Monitoring Team (VMT) to follow-up on ceasefire violations in Sudan as provided for in the agreement between the Government of Sudan and the Sudan People s Liberation Movement/Army (SPLM/A). The monitors under the VMT came from IGAD Member States of Djibouti, Ethiopia, Eritrea, Uganda and Kenya. In Somalia, IGAD has created a Committee Monitoring the Cessation of Hostilities pursuant to the Declaration signed by 28 Armed Somali factions on 27 October 2002. The IGAD monitoring committee in the Somali peace process will be expanded to include joint operations with the AU. 22. Further, participants underscored the need to ensure that external initiatives complement African peace and security initiatives. It was also pointed out that: The African Union needs to clarify the expected roles and responsibilities of SROs and external partners in promoting its peace and security agenda. The African Union needs to establish dependable funding sources for the said agenda. There should be close consultation among all the concerned parties in the implementation of the new African security architecture. There is need to promote interoperability and standardization of equipment of African Defence Forces, as it relates to peace support operations. 7
There is need to expedite the ratification of relevant peace and security protocols at the regional and continental levels. IV. FOCAL DISCUSSION ON THE CONCEPT PAPER 23. There was an in depth exchange of views among participants on the concept paper, which they dealt with chapter by chapter. The reflections were guided by additional clarifications by Gen. Ford and other consultants pertaining to the issues and proposals raised in the concept paper. Particular attention was paid to the following chapters: Chapter 5, which deals with the requirements, issues and options for the conceptual framework of the ASF. In the ensuing debate, participants stressed the need for clearly defined mandates and an articulate continental doctrine in peace support operations which will draw from the UN Peacekeeping doctrine. They also emphasized the need for standardization of training and equipment, and the development of policies to ensure the position of logistics and guidelines on reimbursement standards. Chapter 7, which gives a suggested action plan for the ASF. Participants agreed that there was need to develop a clear command structure for multinational peacekeeping deployments. Further, emphasis was placed on the need to design an articulate conceptual framework that would encompass these issues. In this regard, the participants felt that the meeting of the African Chiefs of Defence Staff (ACDS) should consider the following options for the implementation of the ASF at their next consultations: Option 1 establishment of regional brigades that will operate on the mandate defined by SROs, in consultation with the Peace and Security Council (PSC) of the African Union. 8
Option 2 establishment of centralized continental brigades that will operate on the mandate defined by PSC, in consultation with the SROs. Option 3 provide a system that allows for a combination of peacekeeping capabilities and initiatives taken at regional and continental levels. Chapter 8, which focuses on Military Staff Committee (MSC). There was a common view that the MSC will draw membership from the 15 members of the PSC. The issues of frequency of meetings and the MSC chairmanship were raised. Participants felt that in the case of the AU, the chairmanship must be rotated on a twelve-month basis. The meeting of the MSC at Chief of Defence Staff level should take place once a year, taking into account financial considerations. Further, participants underscored the need to utilize the hindsight derived from previous African-initiated peacekeeping missions in various parts of the continent in defining the modalities of putting into place the ASF as one of the key instruments for the realization of the new African security architecture. Lessons should also be drawn from experiences of SHIRBRIG, BMATT, RECAMP and others. 24. Particular emphasis was laid on the need for the African Union to mobilize financial resources to sustain the forces once they have been deployed in a peacekeeping mission. 25. Finally, the Interim Commissioner for Peace, Security and Political Affairs pointed out that the revised concept paper should take as its point of departure the recommendations of the Second Meeting of the African Chiefs of Defence Staff held on 20-21 November 1997 in Addis Ababa, Ethiopia. More so, as it is those recommendations that provided the working background for the current consultations on the ASF and MSC, within the context of the new African security architecture. 9
V. WAY FORWARD 26. The following recommendations were made for the way forward: The ASF should be guided in its operations by the consideration of the primary responsibility of the UN Security Council for the maintenance of international peace and security. There should be a single African Standby Force based on the principle of regional Brigades as recommended by the 2 nd meeting of Chiefs of Staff. The ASF will however be endowed with continent-wide responsibilities. The African Union will continue to welcome external support in its peace support missions with an understanding that the training facilities and infrastructures for these missions will reflect the aspirations of the African leaders and people, as well as the need for African ownership. The African Union, in consultation with SROs and external partners, should establish reliable and sustainable means of funding for peace support operations that should be channeled through multilateral arrangements. The African Union should undertake consultations on its peace and security agenda with the UN Security Council, including with its individual members to secure the much needed support of the international community for initiatives/deployments to be made in the future. The MSC should comprise of 15 members drawn from the membership of the PSC, with a responsibility to implement the mandates given in conflict and post-conflict situations. The Chairmanship of the MSC should be based on the principle of regional rotation. 10
There is need to take into account the reality on the ground, in different areas affected by conflict in strategizing interventions by the ASF at regional and continental levels. There is need to articulate an appropriate operational command structure, relevant for a multinational peacekeeping force, as a critical component of the ASF. The African Union must develop a strategic management capacity at the Secretariat level necessary for the implementation of the envisaged continental security architecture. The African Standby Force arrangements should include a rapidly deployable nucleus at the Headquarters. 11