The Africa Growth Initiative at Brookings has continued its tradition of asking its experts and colleagues to identify what they consider to be the key issues for Africa in the coming year in “Foresight Africa: Top Priorities for the Continent in 2014.” The format of the report is as follows (and includes a contribution from yours truly):
- Pushing the Employment Frontiers for Africa’s Rural and Urban Youth by John McArthur
- The Not-So-Jolly Roger: Dealing with Piracy off the Coast of Somalia and in the Gulf of Guinea by Vanda Felbab-Brown
- International Justice: The International Criminal Court and Africa by John Mukum Mbaku
- Africa’s Capital Market Appetite: Challenges and Opportunities for Financing Rapid and Sustained Growth by Vera Songwe
- The Post-2015 Development Agenda: What Are the Priorities For Africa? by Haroon Bhorat
- Leap-frogging in African Agriculture: The Case of Genetically Modified Crops by Calestous Juma and Katherine Gordon
- Shifts in Financing Sustainable Development: How Should Africa Adapt in 2014? by Amadou Sy
- Climate Change and Growth in Africa: Challenges and the Way Forward by Temesgen Deressa
- Harnessing Africa’s Emerging Partnerships by Mwangi Kimenyi
- Three Myths about African Industry by John Page
In my section on Meeting the Demand for African-led, Internationally Supported Peace Interventions, I argue call for regional and sub-regional organizations in Africa to better prepare their troops for rapid deployment in responding to escalating conflicts on the continent.
Following the release of the Foresight Africa Report, Brookings is hosting a discussion with leading Africa experts on the most important challenges the continent will face in 2014 on January 7 (today) from 10 to 1130am EST. You can register for the live webcast and join the conversation on Twitter using #ForesightAfrica.
If you’re following the news on Mali, you’ve no doubt seen the most recent developments in the political crisis in Bamako in which the military junta “encouraged” or “facilitated” the resignation of PM Cheikh Modibo Diarra on Tuesday. (For thorough roundup of analyses and reactions to this incident, I would refer you here).
Two months ago, I wrote a post called “UN inches closer to approving ECOWAS intervention in Mali” and I thought I’d add some additional insights to it in light of recent developments.
In recent months, there have been no fewer than a gajillion (to use an analytical term) reports of ECOWAS drafting a plan for intervention and the UNSC telling them they’re on the right track, but not quite there. Amidst reports that a military intervention is inevitable, some differences have come to light vis-à-vis how the international community should approach said intervention.
- France favors swift approval by the UNSC of ECOWAS’ most recent intervention plan – a process complicated by the fact that Captain Sanogo has consistently been opposed to foreign intervention, and has successfully removed one of the key figures calling for such an intervention – PM Diarra.
- The United States has been more cautious in its support, favoring a dual-phase intervention that commences in the south with the training of the Mali Armed Forces (MAF) that would ideally complement (an actual, rather than cosmetic) political transition in Bamako. The second phase would then involve a mandate for military intervention to reconquer the north.
The way I see it, the United States’ reticence to throw unconditional support behind an ECOWAS-led intervention is primarily influenced by two factors.
- The first is the legacy of the arguably haphazard intervention in Libya that did not consider the broader regional implications of military intervention. I sense little appetite on the part of the United States to be held responsible for endorsing an ECOWAS intervention if it goes north and exacerbates the situation, or fails outright.
- To understand the second factor, you really need to take a closer look at the lessons of the African Union intervention in Somalia. In particular, the United States touts the African Union Mission in Somalia (AMISOM) as a potential model for an ECOWAS-led intervention in Mali. Notably, AMISOM came into being because of a regional and international demand signal for such an intervention force in Somalia. However, it was continually plagued with trying to determine how to achieve its objectives when troop contributions and funding were either unpredictable or altogether not forthcoming. As a result, it was only four and a half years into its mandate and over $385 million USD later that it started to see success. I think that although the U.S. sees AMISOM as a model for African-led conflict resolution supported by the international community, it simply lacks the time or the money to make the same mistake – in spite of a similar demand signal for intervention in Mali. Hence the requirement for extensive planning for concept of operations, troop commitments, and a resourcing plan prior to a mandate for intervention.
I think there’s a general consensus that Mali is a festering sore in the Sahel and that someone needs to do something about it, but the means and modalities are still TBD. In the mean time, I don’t foresee U.S. boots on the ground – at least the kind of boots you or I would even be aware of (wink, wink). But I would not be surprised if the U.S. approach to northern Mali is containment. Like in Somalia and the broader Horn of Africa, I see this as an approach in which the U.S. focuses on ensuring that the activities of AQIM, Ansar Dine, and MUJAO are confined to northern Mali and do not spread to Algeria, Niger, or Mauritania. I could also see this approach utilizing kinetic means (i.e., drone strikes) to disrupt terrorist operations in northern Mali, as well as non-kinetic means (i.e., public diplomacy programs) focused on countering violent extremism in Niger and Mauritania.
Until the political situation in Bamako becomes less unstable, the U.S. and European allies can agree on an approach to intervention, and ECOWAS can get boots on the ground (perhaps not until late 2013), I think containment is going to be the name of the game in northern Mali.
You could argue that the President of Uganda, Yoweri Museveni, seeks to replace Muammar Qadhafi as the alpha male of Africa and Meles Zenawi as the pan-African mediator. But those aspirations may have to be put on hold.
In the UN Group of Experts (UN GoE) report that was leaked last month, Uganda and Rwanda were accused of supporting M23, an armed group that has been operating in the eastern Congo since the spring. Although Rwanda’s reputation as the donor darling and example of Singaporean-style economic development has been damaged, it unlike its neighbor, lacks the regional security clout and leverage that Uganda holds.
On Thursday night, Uganda’s Prime Minister Amama Mbabazi announced to the country’s parliament that the Ugandan People’s Defence Force (UPDF) would be withdrawing from regional peacekeeping operations to protect the country’s western border with the Democratic Republic of the Congo (DRC). Accusing Western powers of failing to recognize Uganda’s contribution of peace in the region, Mbabazi asked, “Why should we continue involving Uganda where the only reward we get is malignment? Why should the children of Ugandans die and we get malignment as a reward? Why should we invite retaliation by the al-Shabaab by standing with the people of Somalia, only to get malignment by the UN system?” This announcement was the other shoe to drop, following last month’s statements by Uganda’s State Minister for Foreign Affairs Okello Oryem that the accusations leveled in the report were “rubbish and absurd,” and that the country was “reassessing all its peacekeeping engagements and operations in the region.” The Ugandan government has now sent an envoy to UN Headquarters to inform them of its ‘irreversible’ decision.
As of late September, Uganda only had 47 personnel assigned to UN peacekeeping operations in Darfur, Côte d’Ivoire, South Sudan, Liberia, and East Timor. Therefore, the brunt of Uganda’s threats would fall upon the African Union Mission in Somalia (AMISOM), to which the UPDF contributes approximately 6,500 troops (about a third of AMISOM’s authorized force strength of 17,731). The UPDF also provides the force commander – a position that has been held by a Ugandan since the mission began in 2007. To a lesser extent, these threats could also affect Uganda’s contribution of at least 2,000 troops to the African Union-initiated Regional Task Force to hunt down the Lord’s Resistance Army (LRA) in the Central African Republic and DRC.
Aside from its regional military footprint, Uganda has been chairing the International Conference of the Great Lakes Region (ICGLR) effort to facilitate a dialogue with the M23 rebels and, if necessary, plan a multinational military intervention in the eastern Congo. The accusations leveled in the UN GoE report certainly hurt Uganda’s credibility as a mediator in this process, but also threaten Museveni’s legacy as the man who brought an element of stability to Somalia in what many believed to be a suicide mission, when other nations refused to commit troops. (By the way, details for an ICGLR intervention force are still being worked out, and I believe a UN mandate would help facilitate financial and logistical support. Without that kind of support, an intervention would be highly unlikely.)
In reality, however, I doubt that Uganda can pull all of its troops out of peacekeeping operations. Quite simply put, it’s going to cost too much. Museveni’s survival is, in part, contingent on maintaining a large military deployed outside the country’s borders in case he needs them for internal security. While 8,000+ UPDF are deployed in support of AU or UN peacekeeping operations, Museveni doesn’t have to worry about paying them. However, if he brings them home, he’ll need to find a way to keep them occupied – and paid – so they stay out of trouble. Unless there’s a war in Uganda (unlikely) to rally the troops around him, he needs to keep them deployed on someone else’s dime. In addition, one of the reasons Uganda is so important for regional security is due to its involvement in peacekeeping operations. If you take that away, you also lose the justification for allocating the same level of security assistance from international partners to train and equip the UPDF in the future. This is income that Museveni would now have to find a way to make up for.
So to be clear, I don’t expect Uganda’s threats to come to anything. It’s just putting the UN and the West on notice to back the (insert expletive here) off over allegations of providing support to M23.
In possibly unrelated news, the United States’ Under Secretary of State for Political Affairs Wendy Sherman visited Uganda to discuss advancing regional security and to extend U.S. appreciation for Uganda’s peacekeeping efforts. This was the same day the PM made the announcement to withdraw from peacekeeping operations. #Awkward.
The International Maritime Bureau (IMB) released its Piracy and Armed Robbery Against Ships Report for the Period 1 January – 30 September 2012. I often find these reports helpful in tracking trends with regard piracy and armed robbery at sea, but it is important to read the reports with two things in mind. First, unlike IMB’s Annual Report, the Quarterly Reports only cover trends from the beginning of that calendar year to the end of Q1 (March), Q2 (June), or Q3 (September). Therefore, many of the facts and figures quoted in the media and here below may only be for the first 9 months of 2012. It is important to draw comparisons between these numbers and the corresponding time periods in previous years, as opposed to 2010 or 2011 as a whole. Second, these reports only account for reported incidents. Thus, it is possible that the scale of pirate attacks is underrepresented due to underreporting on the part of the targeted vessels for a variety of reasons (i.e., fears over spike in insurance rates, fears of scaring away other commercial activity from those waters, etc).
According to the report, global piracy incidents are decreasing – with 233 attacks worldwide, down from 352 for the corresponding time period in 2011. However, of the 233 attacks that took place between January and September 2012, 131 of these occurred in Africa. Of the 131 attacks that occurred in Africa, 70 took place off the coast of Somalia (to include the Gulf of Aden, Red Sea, Arabian Sea, Indian Ocean, and Oman) and 34 took place in the vicinity of Nigeria (to include the area off the coasts of Benin and Togo).
Looking at these numbers compared with last year, there’s good news and some kind of bad news. The good news is that last year, there were 199 actual or attempted attacks off the coast of Somalia between January and September, compared with 70 for the corresponding time period in 2012. IMB attributes this drop to a combination of factors such as 1) multinational naval patrols, 2) employment of Best Management Practices for Protection against Somalia Based Piracy (Version 4 – August 2011), 3) use of Privately Contracted Armed Security Personnel (PCASP), and the effects of the SW monsoons.
The kind of bad news is that attacks off the coasts of Nigeria, Togo, and Benin (hereafter referred to collectively as the Gulf of Guinea) have increased – slightly – from 30 to 34. What’s important with regard to the Gulf of Guinea is not the numbers themselves, but the shifting locale of the attacks. Between January and September 2011:
there were 6 attacks off the coast of Nigeria, compared with 21 in 2012 (3x increase)
there were 5 attacks off the coast of Togo, compared with 11 in 2012 (2x increase)
there were 19 attacks off the coast of Benin, compared with 2 in 2012 (9x decrease)
Notice that even as attacks in the Gulf of Guinea are increasing, attacks in Benin in particular have been drastically reduced. According to an Africa maritime security SME I spoke with recently (on an unrelated matter), Benin is apparently far ahead of its West African neighbors in developing a strategy to secure its maritime domain. This may be why, when faced with a sudden spike in attacks, Benin and Nigeria commenced joint counter-piracy patrols last fall. The IMB attributes the decreased number of attacks to these patrols. When compared with Nigeria, which has a 530 mile coastline, smaller countries like Benin and Togo which have coastlines of 75 miles and 35 miles respectively, have a relatively smaller area to monitor and patrol. So this may explain why these joint patrols have been successful for Benin, but not for Nigeria. Although I don’t know much about Togo’s maritime capabilities, I suspect that one reason pirates have expanded their range to Togo may be because Benin’s patrols pushed would-be pirates into Togolese waters, where the authorities may not be doing enough to counter these threats.
Anyway, if you have any interest in seeing the full 2012 IMB Q3 report, you can request it by filling out a form on IMB’s website. A few minutes later, you’ll get an email with a broken link, but if you email them back saying it doesn’t work, they’ll email you a PDF right away.
(Originally published on RUSI.org on September 5, 2012)
In October 2011, the Kenya Defence Forces (KDF) invaded southern Somalia with the stated purpose of dismantling Al-Shabaab and seizing the port city of Kismaayo, from which the Islamist militant organisation earns the majority of its revenues. After an initially swift invasion, Kenyan forces languished in southern Somalia for seven months before conquering the city of Afmadow, which lay only 90 miles from its common border with Somalia. Upon seizing Afmadow, both Kenyan Prime Minister Raila Odinga and KDF Chief of General Staff, General Julius Karangi projected that Kismaayo would fall by 20 August – the date of the expiration of the mandate of Somalia’s Transitional Federal Government (TFG). Like previous targets articulated during the course of the Kenyan military’s involvement in Somalia, the attack on Kismaayo has since been delayed, but is imminent nonetheless.
When Kenya sent troops across the border last autumn, there were many reservations about the KDF’s prospects for success. The failure, to date, of successive military interventions by the United States, Ethiopia, the United Nations (UN) and, until recently, the African Union (AU) was but one of these concerns. Although the KDF is a professional military that has formerly participated in AU and UN peacekeeping operations, it had no expeditionary experience outside of these deployments, and has had limited experience fighting an unconventional adversary like Al-Shabaab. Compounding these challenges, Kenyan forces entered Somalia right at the outset of the rainy season and were stalled for several months, burdened by the logistical challenges imposed by the poor infrastructure of southern Somalia.
(Read the rest of the article on the RUSI website.)