Africa seeks a win-win outcome from European Union partnership

Sustained communication, transparency and mutual understanding are key to a successful partnership, says ambassador.

Ugandan Ambassador to the African Union (AU), Rebecca Amuge Otengo, shares with PSC Report her hopes for the early-May Europe-Africa meeting in Brussels as her country takes Peace and Security Council (PSC) chairship.

What are Uganda’s priorities for the PSC in May?

First, we will engage with the European Union (EU) in Brussels from 2 to 3 May at the 14th annual joint consultative meeting between the EU and AU PSCs. This will be preceded by the sixth annual Joint informal retreat between the two councils.

As we think the African peace and security situation remains dynamic and fragile, we will look at situations as they arise, notably Sudan. This is now a global issue, given the evacuation of different nationals from that country.

Before the current fighting, we had considered sending a PSC field mission to Sudan and Abyei to take stock of the former’s transition progress and support the return to civilian rule. While reflecting on the possibility of a field mission, we shall remain seized of developments in Sudan, with the possibility of convening another meeting as we observe the unfolding conflict.

What are Africa’s priorities heading into the meeting with the EU, and what conflicts will top the agenda?

Africa and the EU share many interests given their historical and contemporary relationship and geographical proximity. Our goal heading into this meeting is to ensure a win-win situation on pertinent issues. The interaction will include a discussion of peace support operations (PSOs), of which we have many in Africa. Some are AU-led, others are AU-mandated, and some are AU-supported. We seek to enhance cooperation with the organisation, which has been a big supporter of Africa in this area.

We will look to enhance the cooperation in a mutually beneficial way. Other issues for discussion will include the Horn of Africa, Lake Chad Basin, the Sahel and the Great Lakes region. And we will ensure that our partnership is guided by the principle of African solutions to African problems and that it grants the continent the support needed to manage its challenges. We have worked closely, very consultatively and constructively.

Under the AU Mission in Somalia (AMISOM), now the AU Transition Mission in Somalia (ATMIS) umbrella, for example, we have worked together to achieve conditions conducive to Somalian stability. In 2007, the country’s coastline was a haven for pirates, but AMISOM’s sacrifices and support from the EU and other partners have contained Red Sea and Indian Ocean piracy. This has secured vital sea trade routes for both Africa and the EU.

Amid concern that Africa’s cooperation with the EU is driven largely by EU priorities rather than Africa’s, how does the meeting ensure that agenda-setting prioritises Africa?

Neither participant in this engagement imposes agenda items on the other. The agenda is agreed by consensus and through mutual understanding. Thus, we expect harmonious discussions in Brussels. This responsibility derives from our mandate stipulated in the protocol that established our PSC. We see the EU not as a competitor of Africa, but as a strong partner with which we can and do work.

Importantly, the session will build on previous work conducted by the two councils. Thus, we are not meeting in a vacuum. Uganda believes that any positive or negative discussion represents progress in the partnership. The mere fact that there is a platform for engagement with the EU PSC is a win.

Africa and the EU have many interests given their historical and contemporary relationship and proximity

Our experts from both sides have done much to create a harmonised agenda of items acceptable to both sides. We will discuss not only with the EU but will involve Switzerland as it will assume the presidency of the United Nations Security Council (UNSC) in May.

According to AU PSC and UNSC work methods, the two chairs of the month consult to build synergy and coordinate the work of the two councils. So we will continue engaging partners until we reach a win-win situation on issues of vital interest to Africa. Our approach to the partnership remains consultative. We do not impose our interests on our partners, just as we don’t want theirs imposed on us.

Since the last PSC-to-PSC meeting in June 2022, has any notable implementation of outcomes taken place?

That we are returning to the same room means there has been progress. Since our last meeting, we’ve continued liaison at different levels. This year in Brussels, we will look at lessons learnt and how we can enhance our work relationship and advance remaining issues.

While true that, in 2022, the councils did not adopt an outcome document, this did not preclude them from continuing to collaborate. The EU, for instance, has continued to engage on Somalia, evident in its support of ATMIS. On 27 April 2023 in Kampala, Uganda held a successful meeting of heads of state and government of ATMIS troop-contributing countries.

We appreciate the partnership’s discussions on the EU’s willingness to support the Nairobi and Luanda processes to bring stability to the Democratic Republic of Congo and the Great Lakes region. We have worked together on other PSOs and the provision of humanitarian support, including in the Lake Chad Basin and the Sahel. Our partnership with the EU is informed by common objectives highlighted in the 2018 AU-EU memorandum of understanding on peace, security and governance.

How can the AU ensure that cooperation between the two unions delivers the best outcomes for Africa?

Engagement, sustained communication, transparency and mutual understanding are key to ensuring that the outcomes of the partnership are beneficial to both sides. It is important to think carefully about capacity building and mobilising adequate, predictable and sustainable funding to strengthen PSOs autonomously.

We also believe that the EU can support Africa’s advocacy efforts through accessing UN-assessed contributions for AU-led PSOs. This will help sustain counter-terrorism efforts in Africa. We are convinced that Africa has a shared responsibility to contribute to the global pursuit of peace and security but needs to be supported financially and otherwise.

The principle of ‘African solutions to African problems’ guides our partnership

Given rising conflict on the continent, there is a need to deepen and strengthen strategic coordination and enhance joint actions during all phases of the conflict cycle. These involve addressing the root causes of conflict to mitigate the effects on Africa’s youth and those who see migration to Europe as the best alternative to their present predicament.

What plans do you have to address the historically low implementation of decisions resulting from discussions?

This has been a challenge across the union, but many PSC decisions have either been implemented or are at various stages of implementation. The Council is also dealing with many conflicts in Africa and with early warning, mediation and PSOs. So, by the nature of the work of the Council, it is inevitable that many decisions will be made from time to time.

That said, this is an issue of interest not only to the PSC but to the entire AU. In 2021, the AU Executive Council directed the AU Commission and the AU Permanent Representatives Committee (PRC) to undertake a retreat where this matter would be considered. This event took place in December 2022 in Dakar.

Members agreed to improve decision-making, including ensuring that it must have a budget line before a decision is tabled. We also agreed that the drafting of decisions must be precise, effective and operational. There was also an understanding that a coordination unit must be responsible for sieving draft decisions to avoid duplication of effort.

Members agreed to improve decision-making, ensuring that tabled decisions must have a budget line

The need for a monitoring and evaluation mechanism to track progress on implementation was noted. In our view, the PSC will build on this and see how much more it can do to ensure effective and timely implementation of decisions.

We are pleased with the way members debate and deal with these issues in a manner that aims to build the Africa we want and silence the guns by 2030. Perhaps we could consider drawing up a matrix highlighting all Council decisions and their stage of implementation.

What work methods could ensure improved implementation of decisions?

Our delegation has ideas that it will share with colleagues on the Council and the PRC, but it would be premature to divulge them now. However, we shall build on the Dakar Process and the outcomes of the 2022 PSC retreat in Victoria Falls and other retreats. Uganda will do this not only during its chairship but well beyond.

Image : © AUC PAPS Twitter

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