Abstract
To provide an operational dimension to the security provisions of the AU’s constitution, a system for support was created. This system is called the APSA and includes an early warning system, quick response time, conflict prevention, management and resolution. The APSA has two building blocks, namely the Common African Defence and Security Policy (CADSP) and the Peace and Security Council (PSC). To give effect to the functions and objectives of the PSC, three primary means were created, namely the Panel of the Wise (PoW), the Continental Early Warning System (CEWS), and the African Standby Force (ASF). The three means are central to the framework of the APSA and are supported by the African Union Peace Fund (AUPF) and the means set up by regions for the prevention and management of conflict.
This article aims to analyse the process that contributes to the achievement of the APSA’s goal of peace and security. The strategic model of EWM is used for these purposes. Goals are pursued through the use of actions and means. The question is: In what way can the three elements of the model contribute to peace and security? The main part of the research focuses on how external actors and the decision-making process in the AU contribute to this goal. A major finding is that actions are useful in preventing conflict in certain situations, but in general are ineffective in creating conditions for peace and security. Diplomatic means do present mixed results in achieving the goal of peace and security.
There are several strategic objectives set by the AU to pursue peace and security in Africa. These include the anticipation and prevention of conflict that may lead to genocide and crimes against humanity; the carrying out of peace missions and the creation of peace in post-conflict situations; the promotion of means of peace, security and stability between regions and the AU; the promotion of democratic practices and standards of good governance; the protection of the rule of law; and the facilitation of humanitarian assistance in armed conflicts and natural disasters.
This investigation focuses on two aspects that have the potential to advance or hinder the general defence and security interests of the African continent: the presence of external actors, and means that influence decision-making in the AU. The strategic objectives identified here are considered as coherent factors that influence the two aspects and are assessed in context. These aspects have consequences for the peace and security situation in two ways. External actors are linked to the security dimension of the APSA (other threats), while means that influence decision-making are linked to the peace dimension (war and conflict).
There are various means within the framework of the APSA that are used to achieve the goal of peace and security. The first one is the PSC, the standing decision-making organ of the AU for the prevention, management and resolution of conflicts. The second one is the PoW, a consultative body of the African Union, comprised of five appointed members who each serve a three-year term. Its mandate is to provide opinions to the PSC on issues relevant to conflict prevention, management, and resolution. The third one is ASF, an international, continental African, and multidisciplinary peacekeeping force with military, police and civilian contingents that acts under the direction of the African Union. Then there are economic sanctions and the AUPF, which are the primary means for support to operational peace and security activities in Africa.
There are two important actions in the protocol of the PSC to aid diplomatic means. The first is preventive diplomacy and the second is the creation of peace through goodwill, mediation and reconciliation. Preventive diplomacy seeks to resolve disputes before they turn into violence. Creating peace involves a ceasefire and agreement between the warring parties. Preventive diplomacy is central to the APSA’s premise that peace and security are necessary to bring stability and progress to Africa.
It has been claimed in recent years that the APSA lacks the capacity to solve security challenges in Africa. A noticeable problem is the presence of external actors who follow uneven methods to challenge the state-centred membership of the AU. Furthermore, the actors strive to protect their security interests in Africa that are contrary to internationally accepted models of conflict prevention, military intervention and resolution. Two external groups are identified, namely the Russian private military company (PMC) Wagner and Chinese security contractors (CSCs).
In countries where Wagner operates, the following actions are used: First, the group exploits the weak legal systems of countries where conflict is the order of the day, for example the Central African Republic (CAR), Mali and Niger. A second action is to undermine the sovereignty of countries where they are present. This means that host countries increasingly rely on Wagner to provide security, leading to a patron-client relationship. Third, the business model of Wagner is designed in such a way that the group operates only in countries where conflict or the potential for conflict exists.
In Africa, CSCs contribute to the APSA’s goal of peace and security in the following way. First, they cooperate with local security companies to recruit and train qualified personnel and guards. In the second place, they provide resources such as arms and ammunition to boost military diplomacy and scholarships and loans to undergo security training, and establish stronger security partnerships with local countries. A negative aspect is the undermining of host countries’ role as the provider of security and stability.
Decision-making in the PSC is important for formulating strategic objectives and determining what actions are needed to support the diplomatic means. If information is not available, the direction of the objectives can produce incomplete and incorrect results. Means of decision-making are important to reach consensus between countries on whether military intervention is necessary in a particular conflict situation, for example in the Democratic Republic of the Congo (DRC). The correct decision-making is beneficial not only for the deployment of troops in a region, but for the APSA’s overarching goal of peace and security. Wrong decisions can lead to the implementation of goals that prolong conflict and worsen the situation.
The summary indicates that means and actions used by the AU to pursue the goal of peace and security have mixed reactions for the application of the EWM-model. The PSC decision to suspend Mali from the AU after a coup that overthrew the government is an example where peace and security was set as the goal and transition to a new government the action.
The PoW acted as mediator in various African conflicts, for example in Kenya’s elections in the 2000s and advisory reports sent to the AU following the Arab Spring uprisings. The finding is that the PoW is a useful means to give value to the application of the EWM model.
The CEWS is indeed a means of sending early warnings for the detection of conflict to the PSC but has limited capacity to react quickly. It therefore contributes to a limited extent to the APSA’s goal of achieving peace and security on the continent and is not significant in adding value to the application of the EWM model.
The ASF is the means of the APSA that has so far made no contribution to attain peace and security. The main obstacle to implementing the ASF is the mobilisation of troops from the 55 states of Africa. This has negative consequences for the application of the EWM model. First, the PSC’s decision to respect the sovereignty of member states is an obstacle in the deployment of troops. The objective of peace and security cannot be carried out on a continental level, due to certain countries’ opposition to military intervention in the domestic affairs of member states. Second, there are questions as to whether the ASF can survive as a continental force, because regions see the deployment of regional response forces as a better option to prevent and resolve conflict and violence.
Findings about the role of the external actors are as follows. Wagner acts as a means to expand Russia’s strategic sphere of influence in areas of Africa and add no value to the application of the EWM model. CSCs act as a means to protect China’s economic interests on the African continent. The Chinese government does support the APSA and launches programs and actions to maintain and further expand the structure. China therefore directly contributes to Africa’s security and adds value to the application of the EWM model.
Keywords: African Peace and Security Architecture (APSA); African Union (AU); collective security; ends-ways-means (EWM) model; strategic analysis
- This article’s featured image was created by artsysolomon and obtained from Pixabay.