Democratic Republic of Congo & Great Lakes Region: briefing

Meeting report

FOREIGN AFFAIRS PORTFOLIO COMMITTEE
31 October 2001
DEMOCRATIC REPUBLIC OF CONGO & GREAT LAKES REGION: BRIEFING

Chairperson: Mr. Ebrahim (ANC)

Relevant Documents
Developments in Great Lakes Region, with Specific Reference to the DRC and Burundi
Background Materials Distributed: Foreign Affairs Department Pamphlets on:
- Birth of the African Union & the New African Initiative
- Constituting Act of the African Union; Merger of MAP & the Omega Plan
Peacekeeping in the DRC: Monograph by Institute for Security Studies [email [email protected]]

SUMMARY
The Chief Director of the Department’s Equatorial Africa Directorate briefed the Committee on the situation in the Great Lakes Region, with specific reference to the DRC and Burundi.
The stability and security in the Great Lakes Region is integral for South Africa as it impacts directly on the process of democratisation, economic growth and related issues. It is important that South Africa takes a pro-active role in dispute resolution processes.

MINUTES
Ms L Zulu, Chief Director of the Department of Foreign Affairs Department's Equatorial Africa Directorate, and her colleague, Ms N Coetzer, presented the situation in the Great Lakes Region.

Several principles and issues were highlighted. South African policy is premised on the belief that stability in the Great Lakes is crucial for South Africa, given the spill-over effect that regional instability brings to all of sub-Saharan Africa, such as refugee and human rights problems. Further, conflicts in the region, which are inter-linked, retard the process of democratisation which is essential for economic progress and its related benefits, as contemplated by MAP and its successors. It is in South Africa's interest to take a pro-active role, and while there are still major problems progress can be seen in the commencement of dispute resolution processes. In the DRC, the Inter-Congolese Dialogue (ICD) which followed the 1999 Lusaka agreement, must be nurtured. Likewise in Burundi, the implementation of the Arusha Peace and Reconciliation Agreement for Burundi (Arusha agreement) which former president Mandela was instrumental in forging, needs to be nurtured.

More specifically concerning the DRC, while Laurent Kabila's murder was unfortunate, his removal created an opportunity for negotiation which has led to the stoppage of the war, typically a pre-condition for insertion of a UN peacekeeping mission like the one now deployed in the DRC. South Africa is actively participating in this mission. However, there are still difficulties caused by the failure of various parties to honour their agreements. This has led to trouble in launching the ICD in Addis Ababa, where even the formulation of the initial agenda proved contentious.

While the ICD had been scheduled to resume in South Africa next month, that cannot effectively occur until the agenda is set. To that end South Africa has suggested that less contentious issues be the initial focus in order to build momentum. Moreover, that all armed groups must be integrated into the process in order for a real peace to be achieved. Given the difficulty in working through these threshold issues, and the prospect of interruptions due to holiday schedules, it has been recommended that this next round of the ICD be held here in mid-January. Regarding costs, South Africa will not foot the entire bill, and is working with the talks' facilitator to receive contributions from other interested nations.

On the issue of multi-lateral participation, it was noted that SADC (South African Development Community) and the African Union also have roles to play and must not be marginalised. Also, the EU, under the rotating leadership of Belgium (the DRC's former colonial power) must also participate. Nonetheless, it was acknowledged that visible progress is necessary lest unsuccessful efforts be seen as a failure of South African diplomacy.

Regarding Burundi, Ms. Zulu noted that the Deputy President Zuma and the Department's Deputy Director General are en route there for the 1 November installation of President Buyoya for the first 18 month period called for under the Arusha agreement. During the second 18 month period Buyoya and his Hutu Vice-President will swap positions. The successful implementation of this power-sharing arrangement, and establishment of other democratic institutions, during this initial three year period are seen as critical to the long-term chances of establishing a lasting peace.

In the meantime, two rebel groups have not joined in the accord. Without their agreement, the UN will not approve deployment of a peace-keeping force, given its reluctance to play the role of "peacemaker". Due to the resulting vacuum, there have been suggestions that "private forces" be used in order to provide security in stabilizing the country. However, the Department, informed by the South African experience, has serious reservations about the use of such forces. As a stopgap, an agreement has been entered between Burundi and South Africa for the SANDF to provide VIP protection for political leaders whose return from exile is an integral part of the Arusha arrangements. At the same time, the Deputy President and Gabonese President Bongo continue efforts to reach an agreement with the holdout rebel groups. This would pave the way for deployment of peacekeepers under the auspices of recognized international bodies.

In conclusion it was noted that South Africa has established a mission in Rwanda, and a joint commission with the Rwandan government, which provide another framework for participation in the ongoing process of building democratic structures in the region.

Discussion
The Chair thanked the officials for an interesting and comprehensive briefing. He noted that with the presence of South African troops in the DRC and Burundi, the situations there are of vital interest to the Committee.

Concerning Burundi, in response to a member's question, Ms. Zulu confirmed that the population breakdown is roughly 80% Hutu, 20% Tutsi, and that democratic institutions, like the judiciary, must essentially be created again.

Replying to a query from Ms. Hajaij (ANC), Ms Zulu said that South Africa has elected to send troops there for limited VIP protection purposes facilitating the peace process. Citing Department Burundi specialists, she noted that Nigeria, Senegal, and Ghana have backed away from initial indications of interest in similarly participating. Efforts are continuing to enlist their assistance, and that of Belgium, with the belief that regardless of whether there is a recognised "peace" among all parties in place, a failure to act now will have dire regional consequences. While UN involvement is generally preferable, especially to the use of private forces (which South Africa is actively discouraging), the limited stop-gap use of the SANDF personnel to assist the regular Burundian army is believed appropriate and necessary in order to prevent the situation from degenerating.

Regarding a question concerning the rules of engagement of South African troops in Burundi, it was confirmed that the decision was taken to ensure that they are armed so that they may protect themselves if fired upon.

Mr. Eglin (DP) requested that a copy of the October 26, 2001 Memorandum of Agreement between
South Africa and Burundi on this matter be supplied to the Committee.

Ms. Zulu confirmed that this memorandum sets forth and effectively governs, in the absence of a formal multi-lateral international accord, the limited terms of the SANDF mission. Ms. Zulu agreed that this would be done.

The discussion on Burundi concluded with the Chair's comment that the lack of participation by the other African nations was troubling.

As a prelude to answering questions regarding the DRC, Ms Zulu noted that Laurent Kabila had been unreceptive to South African efforts to find a solution to the conflict, but that under his successor there are reasons to be encouraged about the chances of the ICD succeeding.

In response to a member's question about the cost of the ICD, she indicated that South Africa's contribution would be limited. Concerning a question about the UN ceasing funding ICD expenses to incentivize the parties to avoid costly, prolonged negotiations and quickly settle, she noted that the UN funding of the process is also limited. It did not subsidize the large retinues some contingents brought to the Addis round of talks.

Responding to a question from Ms Mahomed (ANC), she noted that contributions from the UN, Belgium, and France toward refugee assistance and poverty alleviation have also been limited, and that more is necessary. However, she acknowledged that there remain huge practical logistical difficulties in delivering aid to the Congolese people. This is due to fragmented territorial factional control of various parts of the DRC. Consequently the scale of human suffering is enormous, and difficult to imagine without seeing it.