Chapter 1: Introduction, Background and Methodology of the Study
1.4. Significance of the Study
The Protocol establishing the PSC was adopted on 9 July 2002 and entered into force on 26 December 2003. It signalled the replacement of the OAU‟s Mechanism for Conflict Prevention, Management and Resolution (MCPMR) by the PSC as a standing decision-making organ for the prevention, management and resolution of conflict situations. Article 2 (1) of the PSC protocol states that the PSC is a collective security and early-warning arrangement to facilitate timely and efficient response to conflict and crisis situations in Africa.
Although there is general consensus and commitment among African leaders with regard to the PSC and its functions, the much-publicised failure of its predecessor (the OAU MCPMR), undoubtedly, raises some concerns about whether the AU PSC will fare any better (see Van Nieuwkerk, 2004: 41-46 and Field, 2004: 19-22).
The inability of the AU‟s predecessor (the OAU) to intervene effectively in the guaranteeing of human security was held by many to be an obstacle to its success. Some scholars have observed that the principle of non-interference often runs counter to a respect for human rights. Field (2004: 20) argues that the OAU was hamstrung by its original mandate, which stipulated that neither the organisation nor its members were permitted to intervene in the internal affairs of the member states.
It should also be noted that the OAU failed to resolve certain interstate conflicts (for example, between Algeria and Morocco in 1963; between Ethiopia and Somalia in 1966; in the Congo during the mid 1960s; and in Nigeria during its civil war of 1967 to 1970 even though it was not
12 prevented from doing so by the principle of non-interference (van Nieuwkerk 2004: 42-43). Due to the unimpressive record of the OAU member states largely avoided it on security matters in favour of non-regional countries and institutions. According to Ihonvebere (2003: 353), the unfortunate consequence was that Africa became a conflict-resolution testing ground for foreign powers.
Because Africa becomes meaningful to others only when their interests are involved (van Nieuwkerk, 2004: 56), some conflict situations in Africa were not accorded the significance they deserve. Rwanda‟s genocide of 1994 is a case in point. Even though the maintenance of international peace and security is the primary responsibility of the UN, the fact that the UN is controlled by non-African powers seems to be to Africa‟s disadvantage. In this connection, one tends to understand Mays‟ (2003: 108-111) argument that if a conflict in Africa has nothing to do with the interests of the big powers in the UNSC, the conflict does not hold importance and can consequently be ignored.
It is against this backdrop that scholars have called for African solutions to African problems.
Given that conflict situations in Africa affect Africans more than the external community, the advocacy for African solutions to African problems is not only critical but relevant. Scholars argue that Africans bring indigenous knowledge of conflict prevention, resolution and management to their interventions. They possess the advantage of shared knowledge, understanding, and frames of references (see Ihonvbere, 2003: 357; Mays, 2004: 106-125;
Saxena, 2004: 187). Scholars have also underscored the obstacle created by the OAU‟s policy of non-interference in the internal affairs of other states. The AU‟s subsequent attempt to deal
13 with the problems associated with non-interference (particularly through Article 4(h) of the Constitutive Act and Article 4(j) of the PSC Protocol, which guarantee the Union‟s right to intervene in a member state‟s affairs (pursuant to a decision of the Assembly in respect of grave circumstances, namely war crimes, genocide and crimes against humanity), has therefore caught the attention of numerous scholars (see van Nieuwkerk, 2000: 49; Field, 2004: 21 and Powell, 2005: 1).
The inauguration of the PSC in 2003 has led many hopeful individuals to believe that African insecurity problems would now be dealt with more effectively (Kagwanja, 2004: 4). Field (2004: 19) maintains that the formation of the AU in 2002 paved the way for African leaders to adopt new approaches for dealing with conflicts, and thus did away with the weakness of the AU‟s forerunner. When Nigeria decided to ratify the PSC Protocol, enabling the PSC to come into force, there was much optimism about the future and many envisaged peaceful settlement of disputes on the continent and the speedy resolution of existing conflict situations. Commenting after depositing the instrument of ratification, the Nigerian Chargé d‟Affairs said he expected that the activation of the PSC would reduce the burden of conflicts and give Africans a chance to pay particular attention to issues of socio-economic development.
Most of the literature on the PSC and its launch represents the PSC as an organ that can or should bring greater levels of peace and stability into the continent (see Van Nieuwkerk, 2000:
49; Field, 2000: 21; Powell, 2005: 1 and Kagwanja, 2004: 4). In other words, scholars view the PSC as having brought hope to Africa. Unfortunately, there have been virtually no substantive or systematic attempts to assess the prospects for the organ‟s success. This study bridges that
14 gap by placing a particular emphasis on cooperation as a perceived major contributing factor to such success. Deng and Zartman, (2002: 151) stated aptly: “If security, stability, and development form interlocked rings of values, cooperation is the calabash that holds them all.”
Indeed, Mays (2003: 123) adds that it is in the interest of both the West and African states to cooperate and find a formula that will make what she calls “the Africanisation of peace operations” a success. This study subscribes to the above Deng and Zartman‟s assertion and its emphasis on the importance of cooperation in bringing about stability in Africa.
In essence then, the PSC is a significant attempt by Africans to wrestle with issues of peace and security within the region. By examining the PSC, this pioneering study provides vital insights into its workings and potential effectiveness. It is hoped that the study will play a role in enhancing the PSC‟s success in dealing with conflict situations in Africa. As an important contribution to academia, the study adds to our understanding of regional efforts to promote political stability and economic development of the entire continent (hitherto elusive) by cultivating peace and security through conflict prevention, resolution and management, and through peacemaking and peace-building. More importantly, this study serves as a significant pointer to the root of the challenge likely to impede the PSC‟s effectiveness and success. The study‟s contention is that most challenges to the PSC could be mitigated through enhanced cooperation and coordination.