Africa’s Struggle with Violent Extremism: African Union’s Failed Peace & Security Implementation
Africa is facing a mounting challenge of violent extremism, entrenched local conflicts intertwined with organized crime, coups, and democratic backsliding. The African Union (AU) plays a vital role in addressing these issues, but even after 20 years since its establishment, the continental body continues to grapple with the implementation of its peace and security decisions.
The lack of reliable data makes it difficult to determine the exact scale of the problem. However, the failure to enact several crucial decisions reflects the gravity of the situation. For instance, the AU Peace and Security Council’s (PSC) resolution to establish a sanctions committee in 2009 took more than a decade to prioritize. Similarly, the resolution to deploy 3,000 troops to the Sahel, passed at the 2020 AU summit, remains only on paper.
Over the past two decades, the PSC has convened numerous times, with over 90% of these meetings resulting in multiple decisions on vital issues. However, a significant percentage of these decisions have seemingly yielded no action.
The issue of non-implementation has been a recurring theme at the PSC’s annual retreats since 2007, and it frequently appears on meeting agendas. Efforts are being made to address this problem, with the PSC secretariat developing a matrix to track decision implementation and discussions taking place among policy actors.
One of the reasons for the implementation crisis is the weakness in drafting outcome documents. Unlike the United Nations Security Council (UNSC), where member states initiate draft resolutions and secure buy-in before passing them, the AU’s decision-making process lacks the intense lobbying seen at the UNSC. This often results in incomplete and insufficiently refined draft decisions, making implementation a challenging task.
Moreover, the convoluted wording of PSC decisions hampers consistent and effective implementation. These decisions are made in a politically charged environment, leading to obscure language and lack of clarity. The current drafting culture does not prioritize clarity or clarification of complex text from previous outcome documents. This results in weak communiqués that fail to elicit strong political buy-in and support from PSC members.
Another issue is the failure to allocate resources for decision implementation. Some decisions lack the necessary funding, while in other cases, allocated funds are underutilized. Additionally, decisions are often made without providing details on responsibility, timelines, and reporting. This hampers the ability of AU organs and technical officers to take on additional work, as the allocation of tasks is not clearly assigned by the PSC.
To address these challenges, the PSC needs a mechanism that legally binds it to take prompt action and holds leaders accountable for their lack of action. Reactivating the AU Ministerial Committee on Counter-Terrorism and the PSC sanctions sub-committee could help expedite decision implementation.
In conclusion, Africa’s struggle with violent extremism requires the African Union to effectively implement its peace and security decisions. The AU must address the challenges of weak drafting, convoluted language, lack of resource allocation, and the absence of follow-up and accountability. By doing so, the continental body can enhance its role in resolving conflicts and promoting peace and security in Africa.
