Prioritising policing for sustained peacebuilding
Balancing military and police intervention in conflicts would enhance continental peace efforts and support post-conflict recovery.
A defining characteristic of contemporary African security and governance challenges is the blurring of the lines between traditional threats, such as conflicts, and other forms of insecurity, such as terrorism, organised crime and political instability. For instance, in Somalia, the reported involvement of al-Shabaab, a violent extremist militant group, in charcoal trafficking to generate revenue for their operations illustrates the multifaceted nature of contemporary threats. It also indicates the group’s ability to sustain conflict with the federal and regional governments. As such, the outcomes of efforts to manage these issues depend on the ability to adopt and implement a comprehensive approach that incorporates several actors and methods to achieve progress.
Consequently, continental efforts have relied not only on traditional military interventions to respond to conflicts but also on policing tasks focused on community engagement, crime prevention, and rule of law restoration. These factors are uniquely positioned to address the root causes of instability and promote lasting peace. In peace support operations (PSOs), such policing roles complement the military to achieve sustainable outcomes. Accordingly, the African Union (AU) has often incorporated policing in its peace intervention strategies to address issues.
In 2018, this resulted in the adoption of a Policy for International Policing in AU PSOs and Special Operations to provide a strategic, legal, operational and administrative framework, and the establishment of the African Union Mechanism for Police Coordination (AFRIPOL) with the mandate to combat transnational organised crime, terrorism and cybercrime. Energy has also been expended on bolstering police involvement in AU missions to use its role in theatre and harness the outcomes of its contribution to promoting peace and security. However, the AU and the Peace and Security Council (PSC), in particular, have not fully harnessed this potential.
Is policing underused?
Despite the clear benefits of integrating policing into PSOs, the PSC has not adequately prioritised nor integrated policing into its conflict prevention, management and peacebuilding strategies. Since its inception in 2002, the Council has focused predominantly on military-led roles in PSOs, with policing often sidelined. Even with mechanisms such as the Africa Standby Force (ASF), African-led deployments PSOs, AFRIPOL and the AU Police Strategic Support Group, there has been little substantive discussion at the PSC on how to leverage police expertise in conflict prevention, management and resolutions.
Policing is also absent from the technical committees that support PSC work
The underuse of policing is further evident in the deployment of police officers in only two of the 22 PSC-authorised PSOs – Darfur (2004 to 2007) and Somalia (2009 to date). Against the backdrop of the continental appreciation of policing, this represents a heavy reliance on the military’s role in decision-making and operations. This is to the detriment of the important role policing could play in crime prevention, rule of law restoration, justice and post-conflict governance.
The 2018 Policy for International Policing in AU PSOs and Special Operations remains largely unimplemented. The position of Chief Police Adviser – central to the coordination of police contributions – has not been filled and structures for police involvement remain underdeveloped. This lack of institutional support reflects the broader neglect of policing in AU peace and security frameworks, something that should have been flagged and acted on by now.
Policing is also absent from the technical committees that support PSC work and the Specialised Technical Committee on Defence, Safety and Security. Without police representation, these bodies are unable to make informed decisions on the role of policing in peacebuilding and conflict prevention, management and resolution. Even in matters of information flow, challenges arise as communication between AU police bodies and member states is often hindered by overly military-centric communication channels, resulting in delays and further neglect of complementary police expertise.
This is attributable partly to the perception of policing as a localised, national-level task rather than an essential part of transnational peacebuilding. This misconception prevents the AU from fully integrating police into its continental peace and security architecture. Additionally, the lack of leadership to advocate and implement policing initiatives across Africa has left these efforts stagnant, despite political support.
Merits of a military/policing mix
The AU’s current over-reliance on military solutions in PSOs has had mixed outcomes. While the military is adept at halting active conflicts and preventing their relapse, long-term peace cannot be secured solely through force. Sustainable peace requires addressing underlying governance issues, rebuilding trust between citizens and institutions and preventing the re-emergence of crime and violence – tasks that policing is uniquely equipped to handle.
The military halts conflicts and stems relapses, but peace is not sustainable solely through force
A balance between military and policing forces would, therefore, significantly enhance the AU’s ability to manage conflicts and support post-conflict recovery. Policing’s community-focused approach fosters trust and cooperation, which are essential for rebuilding societies fractured by conflict. Military interventions may quell violence in the short term, but without police-led initiatives to restore law and order, prevent crime and promote justice, these gains falter in the longer term.
The police’s skill set, including crime prevention, investigation and law enforcement, is ideal for protecting civilians, reforming local police institutions and supporting judicial processes. These capabilities complement the military’s role and help establish the foundations for durable peace. Furthermore, studies have shown that police forces are often more agile and effective than the military in civilian protection.
This calls for the PSC to recognise that peacebuilding requires more than just military power but nuanced, long-term engagement that only the police can provide. Incorporating policing adequately into the peace and security governance architecture would allow the AU to better address the complex social, political and economic dimensions of conflict.
Achieving a balance
To fully leverage the complementary roles of military and police forces, the AU and PSC must integrate policing into their peace and security strategies. This requires both structural reforms and a shift in policy implementation at many levels. The first step is to fully implement the aforementioned 2018 AU Policy for international policing by appointing a chief police adviser and building police structures at AU headquarters in Addis Ababa. This office should coordinate the role of police in PSOs, AFRIPOL and the African Standby Force.
The PSC should mandate the inclusion of police forces in all pre- to post-conflict interventions
The AU should see that police representatives, particularly chiefs from PSC member states, are involved in key decision-making on conflict prevention, management and resolutions, rule of law and governance. This would ensure that policing perspectives are integrated into strategic planning for PSOs and peacebuilding.
The PSC should also receive regular briefings on the performance of AU police, particularly in ASF, PSOs and AFRIPOL. Thus, it could assess the impact of interventions and adjust approaches to enhance their contributions to peacebuilding. The PSC should mandate the inclusion of police forces in all pre and post-conflict operations, where their expertise in crime prevention, law enforcement and public trust-building is critical to long-term peace. A deliberate emphasis on policing in post-conflict governance will ensure that peace is not just achieved, but maintained.
The police’s ability to foster trust and maintain law and order is essential for securing the lasting peace that Africa’s citizens deserve. Achieving a balance between military and police roles will not only strengthen the AU’s response to conflicts but help realise its broader goals for a peaceful and secure Africa.
