The tragic paradox of Somalia – UN Security Council and AU Peace and Security Council meetings
The Somali problem continues unabated. The setback to Al-Shabaab during its Ramadan offensive created opportunities for the TFG to expand its areas of control in Mogadishu and surrounding areas. Al-Shabaab was forced to pull out of various parts of the capital, but this did not prevent it losing ground in Belet Weyn and its surrounding areas, as well as in the central region of Galgudud. Its forces were also ambushed twice on the road to El-buur this week and suffered heavy losses at the hands of local people. These setbacks have led to the foreign terrorists putting pressure on Al-Shabaab's divided leadership. Muktar Robow Abu Mansoor and Abdi Godane Abu Zubeyer have been told to sort out their differences or be fired.
Progress on the military front is no substitute for what the TFG should be doing politically. Time and again, when there is progress on the ground in Somalia, the leadership falters and fails to take the opportunity to make real progress in building institutions of governance and to consolidate peace. Now is the time for the TFG to put its house in order, to concentrate on priority activities to create a suitable situation for implementing the remaining transitional tasks. Dissension within the TFIs must stop. The
TFG now has the chance to show leadership in moving the peace process forward and consolidating its gains. As the IGAD Council and the AU Summit have reiterated, the Djibouti Peace Process remains the sole basis for achieving peace and reconciliation for Somalia. The IGAD Council called on the TFG to redouble its efforts to bring on board all those forces that reject violence. It also called on the leadership of Somalia to demonstrate its commitment to the people of Somalia in a concrete way.
These points were emphasized by the AU's Commissioner for Peace and Security, Ramtane Lamamra, when he addressed the Peace and Security Council's 245th meeting on Friday last week [15th Oct], delivering a report on developments in Somalia over the last months. Commissioner Lamamra itemized a number of positive political developments including the budget prepared by the TFG, the collection of revenues from the port and airport and the reopening of Radio Mogadishu. But he also noted that the political process had been challenged by recurrent wrangling in the TFIs, and the disagreements between the President and the Prime Minister who had resigned on 21st September. He mentioned the "disturbing development" of the withdrawal of Ahlu Sunna Wal Jama'a from its partnership with the TFG. He emphasized these problems were of particular concern since the transition period was due to end on 20th August next year. The Commissioner noted the results of the Mini-Summit on Somalia in New York (September 23rd), and of the International Contact Group's meeting in Madrid (September 28th), and stressed that the gains in the political and security areas could only be sustained if they were supported by the necessary reconstruction efforts to ensure long-term stability. At the request of the AU Summit in Kampala the Commissioner had appointed Jerry Rawlings, former President of Ghana, as the AU High Representative for Somalia, to mobilize increased support for efforts to promote peace and reconciliation in Somalia and generate greater attention from the international community.
Following the decision of the IGAD Chiefs of Defence Staff in July to adopt an action plan for increased troops, the AU Kampala Summit called for AMISOM's strength to be lifted to 20,000 troops. The Commission had initiated broad-based consultations to develop a revised Concept of Operations for AMISOM, allowing for an additional 12,000 troops with the requisite air and maritime capabilities. Initially, the objective would be to insert 4,000 additional troops in Mogadishu to consolidate the TFG's authority there. In the second phase, steps would be taken to expand gradually into other areas of central and south Somalia. The Commissioner stressed the need for other Member States to assist and not leave everything to Uganda and Burundi. He also noted that it was imperative for the Security Council to broaden the scope of the UN support package to AMISOM. He believed there should be real operational cooperation between AMISOM and other groups - the resources mobilized to combat piracy should be used to support AMISOM operations, with the imposition of a no-fly zone and a blockade of sea ports, to prevent the entry of foreign elements into Somalia, as well as flights and shipments carrying weapons and ammunitions to the armed opposition. The Commissioner said he looked forward to meeting the UN Secretary-General's Special Advisor on Legal Issues related to Piracy off the coast of Somalia, M. Jack Lang, to discuss how best the Commission could support his efforts. The Commission continued to emphasize that piracy is a symptom of the broader challenges to peace and security in Somalia.
The Commissioner noted that IGAD, the AU, the UN and other partners have made it clear that the Djibouti peace process remains the only acceptable roadmap for the restoration of peace and stability in Somalia, but he also added that Somalis, and their leaders, have the primary responsibility for the restoration of peace, security and stability in their country. They need to demonstrate leadership, resolve and unity of purpose. It is critical that the TFIs quickly develop a roadmap regarding the management of the remaining transition period, with clear political, security and reconstruction priorities, expeditiously complete the outstanding transitional tasks; continue to reach out to all peace-embracing Somalis; and urgently endorse the draft National Security and Stabilization Plan and the Security Sector Assessment report.
It was also imperative that other Member States step in and share the burden of Africa's collective responsibility in Somalia in addition to Uganda and Burundi, in order to send an unmistakable message of unity and strength to all those who, within and outside Somalia, have set for themselves the goal of undermining the quest for peace, while conveying solidarity to the people of Somalia in bringing to an end their suffering and plight.
The Commissioner said the UN Security Council should now take the decisions required in line with its primary responsibility for the maintenance of international peace and security These included authorization of an enhanced support package for AMISOM, and for action in response to the calls for a naval blockade and a no-fly zone, as well as effective implementation of sanctions against all those impeding the peace and reconciliation process in Somalia; approaching the issue of piracy in a holistic manner; the reaffirmation of its commitment to deploy a UN peacekeeping operation in Somalia through the re-hating of AMISOM and the establishment of a time frame for this. The larger international community and other AU partners had a key role to play. It was critical that they provide adequate and coordinated support for the effective reestablishment of the Somali institutions and the long-term reconstruction of the country. In its final communiqué, the Peace and Security Council endorsed the Commissioner's remarks and called on the UN Security Council to take these decisions, necessary for the maintenance of international peace and security.
Commissioner Lamamra repeated these points again when addressing the Security Council on Thursday this week. The Council meeting was also briefed by Secretary-General Ban ki-Moon and by Yusuf Hassan Ibrahim, the Minister for Foreign Affairs of the TFG. The session was a follow-up to the Mini-Summit on Somalia held in New York last month. Commissioner Lamamra said more efforts were required from the international community to rise to the challenge posed by the current situation. The African Union Peace and Security Council had urged the United Nations Security Council to endorse the newly authorized strength of AMISOM and to authorize an enhanced support package for AMISOM. The Security Council, Mr. Lamamra said, should now act to impose a naval blockade and no-fly zone over Somalia to prevent the entry of foreign fighters and flights carrying weapons and ammunition to armed groups. The Council could also request the Governments and organizations involved in naval operations off the coast to provide a more direct, tangible and operational support to AMISOM. There should be effective implementation of sanctions against those impeding the peace and reconciliation process. The Council should reaffirm the commitment to deploy, in due course, a United Nations peacekeeping operation through the "re-hating" of AMISOM, with an established timeline.
Despite the challenges, opportunities existed to "make peace happen in Somalia", Commissioner Lamamra said. The international community could decide to pursue its current policy of limited engagement in the false hope that the situation could be contained, and continue to make the existence of peace a precondition for the deployment of a United Nations operation, or stakeholders could decide to step up their efforts to give real meaning to the "much heralded notion of the responsibility to protect" and confront the threat which the prevailing situation posed to international peace and security. Commissioner Lamamra said the African Union was convinced that the latter was the right course of action. "We, therefore, call on the Council to stand along with the African Union in rising to the challenge, and responding decisively to the desperate call for assistance from the Somali people."
Secretary-General Ban ki-Moon commended the African Union and AMISOM for their efforts in assisting the TFG and noted recent successes against the insurgents. The UN, he said, would continue to work towards achieving the political objectives of the Djibouti Peace Process by supporting the Transitional Federal Government in outreach and reconciliation efforts and other priority tasks, the implementation of agreements between the Government and regional authorities, and the development of functioning State institutions, through its "light footprint". More international help, however, was needed. The Council, he suggested, might wish to consider phasing the additional support in line with the recommendations outlined in Commissioner Lamamra's report. He urged the Somalia authorities, in turn, to consolidate their efforts and unite against the threat of extremism, saying that the Transitional Federal Government must start delivering improved services to the Somali people, paying salaries to its security forces and building up its security sector institutions. The support of the international community, he stressed, was critical in that regard.
Despite the detailed report of Commissioner Lamamra, and its endorsement by the TFG’s Foreign Minister Yusuf, and Secretary-General Ban ki-Moon, the subsequent Presidential Statement, issued by Security Council President Ruhakana Rugunda of Uganda, was deeply disappointing, essentially confining itself to verbal support for the TFG and AMISOM. The Council expressed its concern at the continued instability in Somalia and the deteriorating humanitarian situation. It reaffirmed its support for the Djibouti Agreement and peace process as the basis for the resolution of the conflict in Somalia, and reiterated its full support to the TFG in its efforts to achieve peace, calling on the TFG to remain united, redouble its efforts at reconciliation and work for the completion of the transitional tasks, in particular the constitution-making process. The Council welcomed the appointment of Jerry Rawlings as the new African Union High Representative for Somalia and noted the decisions adopted by the African Union Summit held in Kampala on 10th July, and the recommendations of the Ministerial Meeting of the African Union Peace and Security Council held in Addis Ababa, on 15th October. The Council reiterated its full support for AMISOM and called on the international community to provide additional resources for it to better fulfil its mandate. It also stressed the importance of international assistance to train, equip and build the capacity of the Somali National Security Forces, as well as support in other sectors and State institutions. The Council condemned any attacks on the Transitional Federal Government, AMISOM and civilian population by armed groups, foreign fighters and their supporters, and called on all parties, especially the armed opposition groups, to abide by their obligations under international humanitarian law.