Context analysis
Peace, security and development are common interests and shared goals in relations between the EU and the AU and African partners in general. Both European and African actors acknowledge the close link between security and development. Since its creation in 2002 the AU has quickly established itself as the prime actor in peace and security affairs across the continent and the EU has been keen to support it in achieving this end. Working closely with the five designated RECs the AU expects to continue to build up the African ‘peace & security architecture’ over the next few years.
The EU has been stepping up efforts to develop a common policy framework to strengthen coherence and coordination of policies, resources and instruments at the EU level (including with member states) to better respond to the evolving African needs. Despite the progress in this rather recent area of cooperation between the EU and the AU and African regional organizations, various key questions need to be addressed by all players, both on the EU and the African side, if further progress and sustainable capacity in the planned African peace and security architecture (APSA) is to be properly consolidated and enduring results achieved.
Key questions
The current dialogue on a joint strategy provides an opportunity to develop and consolidate the rather recent EU-Africa partnership on peace and security by addressing the following issues:
1. What are the current key challenges in bringing peace and security to the African continent?
This entails not only identifying the key challenges to peace and security in Africa, but also clarifying whether the EU and the AU share a common vision and understanding of what these key challenges are; in what specific areas and stages of the conflict cycle from prevention to conflict resolution and post-conflict stabilization should cooperation be developed; and addressing in broad terms how this can and should this be done.
2. What is the added-value of a joint EU-Africa Strategy comprising peace and security issues?
EU collaboration with African states on peace and security is already covered by the existing MEDA, Cotonou and TDCA agreements. What specific features could a joint EU-Africa Strategy usefully add to these agreements? Possible areas of improvement include (i) strengthening complementarity with regional and international efforts to promote peace and security in Africa; (ii) developing more comprehensive joint EU-Africa strategies for moving beyond peacekeeping into addressing the need of post-conflict reconstruction (e.g. DDR, SSR, linking relief, rehabilitation and development) and (iii) further clarifying the role division between the various European institutional actors (at the level of the EC, the EU Council, the Member States).
3. How best to strengthen and support the AU in its efforts to develop the African peace and security architecture?
In addressing this question, it would be important to take stock of the specific partnership relation between the EU and the AU cooperation so far in the area of P&S, identify both parties’ advantages and constraints to fully and effectively address peace and security issues in Africa, and what is needed by both the EU and the AU and REC’s to build long-term capacity while supporting at the same time immediate needs to manage and resolve conflicts in Africa. It invites parties to consider whether current approaches are consistent with the proclaimed EU objectives and core principles of the EU-Africa partnership? Do they form a sufficiently coordinated and consistent package or are there still inconsistencies that need to be addressed to increase the effectiveness of the support?
On the African side, some outstanding issues are: the institutional development of the AU and RECs and their long-term capacity needs. Another important issue relates to the best use of the principle of subsidiarity in the APSA: which of the identified key challenges can best be dealt at the AU, RECs or national, or even at local level;
On the EU side outstanding issues include: the effectiveness of EU support in building African long-term capacity; the best way to collaborate with the AU and the RECs to address identified constraints; coherence of EU policies and coordination with MS; the need to create flexible and sustainable financial instruments.
4. What is the EU’s added-value for the AU, relative to international partner in helping Africans address peace and security issues on their continent?
The AU and RECs also work closely with and seek support on P&S issues from other international partners such as the UN, NATO and bilateral partners like the US and China. What is the specific added value of working with the EU and are there ways this collaboration could further emphasise these strong points? Although the EU is clearly an important partner, dealing with the EU institutions is not always an easy task for various reasons, such as its complex decision making processes or grant procedures. The APF has been a welcome tool for the AU but it could be further improved and some EU member states remain ambiguous about the way it has had to be funded. What are the main bottle-necks and disadvantages of having the EU as a partner when dealing with peace and security issues in Africa and how could these be overcome in a constructive fashion?
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