Dealing with Conflict in Africa

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1 Dealing with Conflict in Africa

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3 Dealing with Conflict in Africa: The United Nations and Regional Organizations Edited by Jane Boulden

4 DEALING WITH CONFLICT IN AFRICA Jane Boulden, 2003 Softcover reprint of the hardcover 1st edition All rights reserved. No part of this book may be used or reproduced in any manner whatsoever without written permission except in the case of brief quotations embodied in critical articles or reviews. First published 2003 by PALGRAVE MACMILLAN 175 Fifth Avenue, New York, N.Y and Houndmills, Basingstoke, Hampshire, England RG21 6XS. Companies and representatives throughout the world. PALGRAVE MACMILLAN is the global academic imprint of the Palgrave Macmillan division of St. Martin s Press, LLC and of Palgrave Macmillan Ltd. Macmillan is a registered trademark in the United States, United Kingdom and other countries. Palgrave is a registered trademark in the European Union and other countries. ISBN ISBN (ebook) DOI / Library of Congress Cataloging-in-Publication Data Dealing with conflict in Africa: the United Nations and regional organizations/edited by Jane Boulden. p. cm. Includes bibliographical references and index. 1. United Nations Peacekeeping forces Africa. 2. Regionalism (International organization) 3. Security, International. I. Boulden, Jane, 1962 JZ6377.A35D dc A catalogue record for this book is available from the British Library. Design by Newgen Imaging Systems (P) Ltd., Chennai, India. First edition: December,

5 Contents Acknowledgments List of Acronyms About the Authors Introduction 1 Jane Boulden vii viii Part I Overall Themes and Issues 9 1. United Nations Security Council Policy on Africa 11 Jane Boulden 2. The Peacekeeping Potential of African Regional Organizations 35 Eric G. Berman and Katie E. Sams 3. Do Regional Organizations Matter? Comparing the Conflict Management Mechanisms in West Africa and the Great Lakes Region 79 Clement E. Adibe Part II Case Studies Liberia 111 Funmi Olonisakin 5. Sierra Leone 127 W. Ofuatey-Kodjoe 6. The Ethiopia Eritrea War 153 Leenco Lata xi

6 vi Contents 7. The Sudan 185 Monica Kathina Juma 8. Burundi 215 Gilbert M. Khadiagala 9. The Democratic Republic of the Congo, Tatiana Carayannis and Herbert F. Weiss Conclusions 305 Jane Boulden Annex 1 African Regional Organizations and their Membership 317 Index 319

7 Acknowledgments This volume is the product of a research project on International Organisation and the Security Issues of the Post Cold War Era, run by the Centre for International Studies (CIS) at the University of Oxford. The research project has benefited from generous support from the MacArthur Foundation, the Ford Foundation, and the governments of Norway and Sweden. Beginning in 2000, the CIS has pursued this research agenda by engaging in research on a number of interrelated themes, including the role of international organizations in the transition from war to peace, the response of international organizations to new threats to international peace and security, the attitudes of states and groups to international organizations, and the issues associated with regionalism, regional organizations, and security. This book addresses this last theme by examining how regional actors in Africa, in conjunction with the UN (or in its absence), have sought to deal with conflict, and what that tells us about regional responses to security issues generally as well as the relationship between regional actors and the UN. The chapters included in this book are the product of a workshop that was held jointly by the Centre for International Studies with the Ralph Bunche Institute for International Studies at the Graduate Center of the City University of New York in May As editor I am indebted to the contributors to this volume and also to Professor Thomas G. Weiss at the Ralph Bunche Institute for providing such congenial surroundings and institutional support for the workshop. Special thanks are due to Professor S. Neil MacFarlane, Director of the Centre for International Studies while the work for this volume was undertaken, for his commitment and support to the project. In addition, I would like to thank Gabriella Pearce at Palgrave, New York, for her ongoing patience and support of this work.

8 List of Acronyms ACRI AFDL AFL AFRC ALiR ANAD AU BMATT CAR CEWARN CMC CNDD COPAX DDR DDRRR DOP DRC EAC ECA ECCAS ECOMOG ECOWAS ELF EPLF African Crisis Response Initiative Alliance des Forces Démocratiques pour la Libération du Congo Armed Forces of Liberia Armed Forces Revolutionary Council (Sierra Leone) Alliance pour la Libération du Rwanda Accord de non-aggression et d assistance en matière de défense, also: Treaty of Non-Aggression, Assistance and Mutual Defense African Union British Military Advisory and Training Team Central African Republic Conflict Early Warning and Response Mechanism (IGAD) Conflict Management Centre National Council for the Defense of Democracy, also: Conseil National pour la Défense de la Démocratie (Burundi) Council for Peace and Security in Central Africa Disarmament, demobilization and reintegration Disarmament, demobilization, repatriation, reintegration and resettlement Declaration of principles Democratic Republic of the Congo East African Community Economic Commission for Africa Economic Community of Central African States ECOWAS Cease-fire Monitoring Group Economic Community of West African States Eritrean Liberation Front Eritrean Peoples Liberation Front

9 List of Acronyms ix EU FAC FAR FAZ FDD FNL FRODEBU GUNT IDPs IGAD IGADD IMC INPFL IPF ISDSC JMC MIPROBU MISAB ML MLC MNFs MONUC NAM NATO NCOs NGO NMOG NPFL NSCC OAU OLMEE OMIB OMIC ONUC OLS European Union Forces armées congolaises Forces Armées Rwandaises Forces Armées Zairoises Forces for the Defense of Democracy, also: Force pour la Défence de la Démocratie (Burundi) Forces Nationales de Libération (Burundi) Front for Democracy in Burundi Gouvernement d union nationale de transition (Chad) Internally displaced peoples Intergovernmental Authority on Development Intergovernmental Authority on Drought and Desertification International Monitoring Committee (Burundi) Independent National Patriotic Front of Liberia IGAD Partners Forum Inter-State Defence and Security Committee (SADC) Joint Military Commission Mission for the Protection and Restoration of Trust in Burundi Mission interafricaine de surveillance des accords de Bangui Mouvement de Libération (DRC) Mouvement pour la libération du Congo Multinational forces UN Organization Mission in the Democratic Republic of the Congo (Mission de l Organization des Nations Unies en République Democratique du Congo) Non-aligned Movement North Atlantic Treaty Organization Noncommissioned Officers Non-governmental Organization Neutral Military Observer Group National Patriotic Front of Liberia New Sudan Council of Churches Organization of African Unity OAU Liaison Mission in Ethiopia-Eritrea Observer Mission in Burundi Observer Mission in the Comoros United Nations Operation in the Congo Operation Lifeline Sudan

10 x List of Acronyms PPP RCD RECAMP RPF RUF SADC SANDF SCOPK SMC SPDF SPLM/A SRSG TPLF TSZ UN UNAMIR UNAMSIL UNHCR UNITA UNMEE UNOMIL UNOMSIL UNOSOM UPRONA USAID People to People Peace (Sudan) Rassemblement congolais pour la démocratie Renforcement des capacités africaines de maintien de la paix Rwandan Patriotic Front Revolutionary United Front Southern African Development Community South African National Defence Force Special Committee on Peacekeeping Standing Mediation Committee (ECOWAS) Sudan People s Defence Forces Sudan People s Liberation Movement/Army Special Representative of the Secretary-General Tigray Peoples Liberation Front Temporary Security Zone (Ethiopia-Eritrea) United Nations United Nations Assistance Mission for Rwanda United Nations Mission in Sierra Leone United Nations High Commissioner for Refugees National Union for the Total Independence of Angola United Nations Mission in Ethiopia and Eritrea United Nations Observer Mission in Liberia United Nations Observer Mission in Sierra Leone United Nations Operations in Somalia Union for National Progress Party (Burundi) United States Agency for International Development

11 About the Authors Clement E. Adibe is Associate Professor of Political Science at DePaul University. His recent publications include Foreign Policy Decision-Making in Anglophone West Africa, in Gilbert Khadiagala and Terrence Lyons, eds. African Foreign Policies: Power and Process. Boulder: Lynne Rienner, 2001; and Muddling Through: An Analysis of the ECOWAS Experience in Conflict Management in West Africa, in Liisa Laakso, ed. Regional Integration for Conflict Prevention and Peace Building in Africa. Helsinki: University of Helsinki, Eric G. Berman is presently Visiting Scholar at the Thomas J. Watson Jr. Institute for International Studies at Brown University. Previously, he worked for the UN in a variety of posts in New York, Phnom Penh, Geneva, and Nairobi. He has published widely on UN and African security issues, including: Re-armament in Sierra Leone: One Year After the Lomé Peace Agreement, SAS Occasional Paper Series: Number 1, Geneva: Small Arms Survey, 2000, and, most recently, The Provision of Lethal Military Equipment: French, UK, and US Peacekeeping Policies Towards Africa, Security Dialogue, vol. 34, no. 2 (2003). Jane Boulden is MacArthur Research Fellow at the Centre for International Studies, University of Oxford. Her recent publications include a coedited book with Thomas G. Weiss, Terrorism and the UN: Before and After September 11th (Indiana University Press, forthcoming 2004), and Peace Enforcement, The United Nations Experience in Bosnia, Congo and Somalia (Praeger, 2001). Tatiana Carayannis is completing a doctoral dissertation on The Network Wars of the Congo at the Department of Political Science at The Graduate Center of The City University of New York. She also manages the oral history and publication series research of the United Nations Intellectual

12 xii About the Authors History Project, a project of the Graduate Center s Ralph Bunche Institute for International Studies. Her publications include research on the Democratic Republic of Congo, the theory and practice of conflict resolution and irregular forms of war, and the role of ideas at the United Nations. Monica Kathina Juma is senior researcher on peace, security, and migrations at SaferAfrica in Pretoria, South Africa. Previously she was a Program Officer in the Africa Program at the International Peace Academy, New York. Her recent publications include a coedited work with Astri Suhrke titled Eroding Local Capacity, International Humanitarian Action in Africa (Nordic Africa Institute, 2002). Gilbert M. Khadiagala is associate professor and acting director of the African Studies Program at the Johns Hopkins School of Advanced International Studies (SAIS). He is the author of Allies in Adversity: The Frontline States in Southern African Security (1994), Meddlers or Mediators? African Interveners in Eastern African Civil Conflicts (forthcoming), and coeditor with Terrence Lyons of African Foreign Policies: Power and Process (2001). Leenco Lata was a member of the Oromo Liberation Front leadership and played a central role in charting post-mengistu politics in Ethiopia including the process of Eritrea s amicable separation. He is now based in Canada and works as a consultant and writer on Horn of Africa affairs. His 1999 book, Ethiopian State at the Crossroads: Decolonization & Democratization or Disintegration (Red Sea Press, 1999) is the most detailed writing on how transition to democracy was attempted and failed. Funmi Olonisakin is the Director of the Conflict Security and Development Group at the International Policy Institute, King s College London. Prior to this, she worked in the Office of the Special Representative of the Secretary- General for Children and Armed Conflict at the United Nations. She has published widely on Liberia, and on conflict in Africa generally. Her publications include Peacekeepers, Politicians, Warlords: The Liberian Peace Process, with Abiodun Alao and John MacKinlay. Previously she was codirector of the African Security Unit at the Centre for Defence Studies, King s College, London. Katie E. Sams worked for the International Committee of the Red Cross in East Timor in Prior to that, she was a Research Fellow at the United Nations Institute for Disarmament Research in Geneva. Her recent publications include: Peacekeeping in Africa: Capabilities and Culpabilities (with Eric G. Berman) (United Nations, 2000).

13 About the Authors xiii W. Ofuatey-Kodjoe is Professor of Political Science at Queens College and the Graduate Center of the City University of New York (CUNY). He is also the Director of the Fellowship Program at the Ralph Bunche Institute on the United Nations. His publications include The United Nations and the Protection of Individuals in Group Rights, International Social Science Journal, no. 144, 1995, and Regional Organizations and the Resolution of International Conflict, International Peacekeeping, vol. 1, no. 3 (1993). Herbert F. Weiss is Professor Emeritus of Brooklyn College, and Fellow, Ralph Bunche Institute for International Studies at The Graduate Center, The City University of New York. He also serves as Senior Fellow at Columbia University s Institute for African Studies. His 1967 publication, Political Protest in the Congo (Princeton University Press) was awarded the prestigious Herskovits Prize for the best scholarly work on Africa and is considered a classic in the field. He regularly advises public officials at the UN, and in the United States and abroad on Congolese politics and policies regarding Central Africa.