Deputy Minister on situation in Democratic Republic of Congo; Committee Report on Department of International Relations and Cooperation Strategic Plan 2013

Meeting report

Democratic Republic of Congo situation: Deputy Minister of International Relations & Cooperation briefing
Political and socio-economic situation in the DRC
The Hon. Ebrahim Ebrahim, Deputy Minister of International Relations and Cooperation, briefed Members on the political and socio-economic situation in the Democratic Republic of Congo (DRC). Significant progress had been achieved in the DRC over the pas decade. The local and regional peace processes initiated at the time laid the foundation for relative peace and stability in large parts of the country. However, eastern DRC had continued to suffer from recurring cycles of conflict and persistent violence by armed groups, both Congolese and foreign. The consequences of this violence had almost been devastating. Acts of violence and serious violations of human rights were used regularly and almost daily as weapons of war. Displacement figures were among the highest in the world and hovered near two million people. This happened notwithstanding the presence of the United Nations Organisation Stabilisation Mission (MONUSCO). The DRC remained a weak state, recovering from a series of civil wars and bad governance. The country was still unable to extend state authority over its territory, particularly in the east of the country. Despite these challenges, the recent crisis had created a window of opportunity to address the root causes of conflict and put an end to the recurring cycles of violence. DRC was endowed with mineral and natural resources. The country was one of the world's leading producers of copper and cobalt (mainly from the Katanga Province) and was a sizeable producer of diamonds, gold and rare earth metals. Mining was the country's biggest total export earner. However, the country’s economic potential was being impeded by various issues including limited government control over the entire territory and rebel activities.

International and regional response to security challenges in the DRC
There was increasing recognition that the current path was untenable. Regional bodies such as the African Union, the International Conference on the Great Lakes Region (ICGLR), and the Southern African Development Community (SADC) and international bodies - the United Nations (UN) were continuing their efforts to find lasting solutions to instability in the eastern DRC. This renewed engagement was a positive development for the sub-region's security prospects. One of the regional initiatives, under the ICGLR, involved the “Kampala talks”, where the Ugandan Government was facilitating talks between the DRC Government and the Mouvement du Mars 23 (M23) militia group who invaded Goma, the capital city of the North Kivu Province, during November 2012. M23 had since withdrawn, as a precondition of the talks, but continued to present a security threat. The essence of its demands was reintegration into the army and political participation. The reported clashes between M23 and the DRC national army, the Forces Armées de la République Démocratique du Congo (FARDC), were worrying and a clear demonstration of the continued security threat presented by the rebels.

African Union and United Nations: Framework AgreementOn 24 February 2013, a signing ceremony for the Peace, Security and Cooperation Framework for the Democratic Republic of Congo (DRC) and the Great Lakes Region (the Framework Agreement) was held in Addis Ababa. Aside from South Africa, other countries that took part in the ceremony were Angola, Burundi, Central African Republic, Republic of Congo, DRC, Rwanda, South Sudan, Tanzania, Uganda and Zambia. The Secretary-General of the UN and the AU Commission Chairperson signed as witnesses and guarantors along with the chairpersons of the International Conference on the Great Lakes Region (ICGLR) and SADC. The Framework Agreement articulated a set of commitments by the DRC, the region and the international community. For the DRC Government, it called for renewed commitment to continue and deepen security sector reform particularly with the Army and Police; consolidation of State authority particularly in the eastern DRC to prevent armed groups; make progress with regard to decentralisation; and further economic development expanding infrastructure and delivery of social services. For the region, it called for commitment not to interfere in internal affairs of neighbouring countries, not to provide support of any kind to armed groups; respect the sovereignty and territorial integrity of neighbouring countries; respect legitimate concerns of neighbours; and promote economic cooperation.  For the international community, the Security Council would remain seized of the importance of supporting long-term stability of the DRC and the region. An oversight mechanism was established to support this process.

Intervention Brigade
On 13 April 2013, when the mandate of MONUSCO was extended by another year, it was announced that a UN Intervention Brigade (IB), comprising of 3 069 troops should be established. The “Intervention Brigade” would consist, inter alia, of three infantry battalions, one artillery and one Special force and Reconnaissance company with headquarters in Goma, under direct command of the MONUSCO Force Commander. Under UN Resolution 2098, the main responsibility of the Intervention Brigade was to neutralise armed groups with the objective of reducing the threat poised by armed groups to state authority and civilian security in the eastern DRC. The Intervention Brigade was expected to carry out targeted operations, either unilaterally or jointly with the FARDC, in a robust, highly mobile and versatile manner and in strict compliance with international law. MONUSCO and its Intervention Brigade were to take all necessary measures to perform the following key main tasks: (a) protection of civilians, (b) neutralise armed groups, and (c) monitor the implementation of the arms embargo (Group of Experts) established through various resolutions, 2078 (2012); 1533 (2004).

UN Secretary-General’s Special Envoy for the Great Lakes RegionMrs Mary Robinson, former Irish President and UN Human Rights Commissioner, had been appointed as the UN Secretary-General’s Special Envoy for the Great Lakes Region. Her main role was to support efforts to reach durable solutions in a multi-track plan that allowed the convergence of all initiatives in progress. She would work closely with the Oversight Mechanism in support of the implementation of the Peace, Security and Cooperation Framework on the DRC which called [for] a “Framework of Hope”.

Contributing countries to the Intervention Brigade
Thus far only Tanzania, Malawi and South Africa had pledged troops to the Intervention Brigade. There was a need to encourage other SADC countries to contribute troops to the Brigade in keeping with the 8 December 2012 SADC Extra Ordinary Summit decision during which SADC decided to deploy in the Eastern DRC as a bloc. Noting that M23 had publicly threatened to engage the Intervention Brigade, there was a need for the international community to condemn M23’s utterances.

Southern African Development Community (SADC)
The latest Summit of the SADC Troika of the Organ on Politics, Defence and Security Cooperation took place in Cape Town on 10 May 2013. The Summit considered the political and security situation in the region, amongst others the latest developments in the DRC. The Summit received a progress report on the deployment of the Intervention Brigade in the eastern DRC. The Summit welcomed the adoption of the United Nations Security Council (UNSC) Resolution 2098 of 28 March 2013 which provided the mandate for the deployment of the Intervention Brigade (IB) in the eastern DRC under the auspices of MONUSCO. The Summit noted with appreciation the continued collaboration between SADC and the ICGLR, including the African Union and the UN on the deployment in the Eastern DRC. The Summit urged the Government of the DRC and the M23 to continue with the Kampala Talks with the view to concluding them expeditiously, to allow the people of the Eastern DRC to live in peace. The Summit reiterated its call for urgent attention to be given to the grave humanitarian situation in the Eastern DRC.

South Africa’s bilateral relations with the DRCSouth Africa and the DRC had signed a General Cooperation Agreement on 14 January 2004. The main objective of the Agreement was to promote political, economic and social cooperation between the two countries. This Agreement made provision for the establishment of the Bi-National Commission (BNC) as an annual strategic forum for exchange and dialogue between the two countries at the Heads of State level. Over the years, the focus of the BNC had been on Post Conflict Reconstruction and Development (PCRD), essentially assisting the DRC with Security Sector Reform (SSR), institutional capacity building (training of diplomats and civil servants, public servants census, etc), and economic development through projects like the Bas Congo Spatial Development Initiative (SDI).
In line with South Africa’s strategic objectives and engagements in the DRC, various Government departments were involved in various capacity building programmes.

The Department of International Relations and Cooperation assisted in the diplomatic training of the DRC diplomats. Training the diplomats of a country was an important and strategic task that was entrusted to South Africa.

The Department of Public Service and Administration assisted with the public servants census as well as the anti-corruption framework. The public servants census project had covered all but two provinces. This was one of the highlights of South Africa’s institutional assistance programmes in the DRC, a programme which had enabled the DRC Government for the first time to know the numbers of its public servants. Through this project, a number of ghost workers were discovered and thus the DRC Government had freed financial resources. The project was being rolled over to the remaining two provinces.

The Department of Defence was at the centre of South Africa’s assistance to the DRC. It assisted with training and integration of various security establishments through demobilisation, disarmament and
reintegration of militia members to civilian life and formal security structures. South Africa was charged with an important task of developing the DRC’s military doctrine. This was an envious assignment entrusted to South Africa. President Kabila of the DRC had requested the South African Government to train 4 000 new recruits for the DRC army. The South African National Defence Force (SANDF) would start training in May 2013.

The South African Police Service had trained the DRC police and facilitated the development of the regulatory framework for policing.

The Department of Trade and Industry was assisting in the development of viable economic projects including SDIs.

The Public Administration, Leadership and Management Academy (PALAMA) was assisting in the
establishment of a National School of Public Administration as well as the training of senior public servants.

Discussion
Mr B Elof (DA) asked where the money went. He voiced his concern as to whether there was sufficient control of funds allocated for the project.

Mr S Ngonyama (COPE) asked what made the DRC change its position. Further to this, he asked if it would be possible to get more detail on PALAMA. Ultimately he wanted to extend his appreciation for the work done by the Department.
 
Mr I Davidson (DA) wanted to sound a warning. He claimed that the real problem had not been analysed. Reintegration was superficial and President Kabila had no control over Eastern DRC. Military intervention without a political solution would not provide peace. The other concern was the number of troops sent to DRC. For the vast areas that had to be covered, the 3 000 troops were not enough. However, the real solution could not be based on a military but rather on a political outcome
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Mr M Booi (ANC) thanked the Deputy Minister for the insightful presentation. He asked whether the military had the capacity to carry out the plans. He said that the M23 was a rebel group and wanted to know who were behind it and to whom the Department was talking.

Mr Ngonyama asked if there was particular communication that could be sent out by the Department so that its intentions were not misunderstood.

Responses
The Deputy Minister replied that a military solution was not helpful in the long run. As a result a political solution had to be looked at in the Eastern DRC. The mandate was important and the framework had to deal with the rebel group. The approach taken by the Department was based on a multinational approach. The DRC had lots of potential and it was in the Department’s interest to stabilise the DRC. He denied that the Department acted like ‘Big Brother’. There had been a history of cooperation between South Africa and DRC since 1997.

Mr Edward Makaya, DIRCO Chief Director: Southern Africa, said that the situation in DRC was complex. This had been further complicated by the weakness of the state and bad governance. The country was not at peace. South Africa had played an important role in elections and it was going to take a long time for the country to stand on its own feet. It was clear that the Eastern DRC needed intervention. The Framework provided the mechanisms in how to deal with the problem.

The issue of capacity was going to there for a long time. For instance the army had not been paid regularly but the Framework dealt with the problem. South Africa looked at the problem long term. The intervention force would deal with the ‘bad guys’. The M23 played on the emotions of others, and in order to counter that training in the police and army was needed. A major success was that the number of civil servants was now known. The M23 received support from the neighbouring countries but the Framework aimed to put a stop to that.

The Acting Chairperson then posed the question how the Committee would be able to stay on top of the situation with regard to feedback.

Mr Makaya replied that he would go back to the Department to collate the information. He said that there had been concerns with regard to reintegration but the Kampala Talks would address the issue. The Eastern DRC was complex, for issues such as ethnicity, economy, and control of resources played a role in the violence. The DRC government should be placed in the position where it was able to extend its power to all the areas in order for the country to realise its dreams.

Follow-up discussion
Mr Booi said was interested in the M23 and the negotiations and that is why he raised the issue of capacity

Mr Davidson agreed that the issue was complex. He asked why South Africa should not play out its role as ‘Big Brother’. The Department should make use of its ‘big power’ in order to display its leadership role.        

The Acting Chairperson suggested that the Committee together with input from other Committees should take the matter further in order to provide answers.

The Deputy Minister concluded that the main driving power was based on economic and political solutions. The Framework had to play its role in that regard. The rebel groups relied for support on their neighbours. If the ties were to be cut then the threat would disseminate. With enough pressure from those countries that played a role the matter could be resolved. Much, however, depended on the effectiveness of the monitoring groups - this was provided for in the Framework.

Mr Makaya concluded that he had full confidence in the mechanisms of the Framework. The DRC needed a political solution. The mechanisms of the Framework made it possible for the parties to honour the agreement in order for the country to go forward.

Committee Report on Department of International Relations and Cooperation Strategic Plan 2013
The Acting chairperson tabled the report for consideration.

Mr Davidson stated that there should no obscurity and the prioritisation should be on the promotion of trade and investments which would ultimately culminate in the creation of jobs.

The Acting Chairperson asked if anyone had difficulty with the Report.

Mr Booi (ANC) replied that adoption of the Draft Report should be a priority.

Mr Ngonyama said he fully agreed with the previous speaker save for the point that related to clarity of regional integration. The target he claimed was wrong as it did not appear to make the regional integration the priority.

Mr Davidson agreed with Mr Ngonyama's comments.

The Acting Chairperson tabled the Draft Report and invited input from Members.

Members were satisfied and did not raise any issues. 

A Member moved for adoption and the motion was seconded.

The Draft Report was adopted.

The meeting was adjourned.