Weak States in Africa: U.S. policy options in the democratic Republic of the Congo

DISAM Journal, Wntr, 2003 by Mark Bellamy

[The following was the speech presented to the Senate Committee on Foreign Relations Subcommittee on African Affairs, Washington, D.C., April 9, 2002.]

Introduction

The situation in the Democratic Republic of the Congo (DRC), the scene of a complex and devastating war involving six nations, two Congolese rebel groups, local Congolese militias, and Rwandan and Burundian Hutu rebels. The war has caused a tremendous loss of life, property, and economic development opportunities in a potentially rich country. The central African conflict has produced a major humanitarian crisis with some two million people displaced and an estimated 2.5 million deaths from war-related causes. Government and rebel troops have perpetrated gross abuses of human rights. The conflict has generated large refugee flows into neighboring countries, such as the Republic of Congo, and diverted scarce economic resources to military expenditures, particularly in the Congo, Rwanda, Uganda and Zimbabwe.

U.S. Interests

The U.S. interests are to:

* End the conflict;

* Restore stability in the Great Lakes region;

* Ameliorate the humanitarian and HIV/AIDS crises;

* Promote a democratic government and respect for human rights; and

* Promote economic development and reform.

The Lusaka Cease-Fire Agreement

The U.S. supports implementation of the Lusaka Cease-Fire Agreement as the best means to achieve a just and stable peace in the region. The agreement signed in 1999 by the Congo, Rwanda, Angola, Namibia, Rwanda, Zimbabwe, and the Congolese rebel groups known as the Congolese Liberation Movement (MLC) and the Congolese Rally for Democracy (RCD) provides a framework for resolution of the DRC conflict. It calls for a cease-fire, a national dialogue leading to a new political dispensation, the disarmament and repatriation of armed groups in the Congo, and United Nations monitoring of the withdrawal of foreign troops. We are working with the parties to the Lusaka Cease-Fire Agreement, the United Nations, the Organization of African Unity, our European allies and key regional leaders to help implement this agreement. President Bush met with President Kabila last fall to discuss ways to end the conflict. Secretary Powell has urged implementation of the agreement in meetings with Presidents Kabila and Kagame and othe r regional leaders.

I was in Kinshasa two weeks ago and reiterated to the Congolese government the importance of finding a negotiated settlement to the conflict. Walter Kansteiner, Assistant Secretary for African Affairs, visited the Congo and Rwanda in January. In his discussions with Congolese President Joseph Kabila and Rwandan President Paul Kagame, Mr. Kansteiner also urged both leaders to support the Lusaka Cease-Fire Agreement. We will continue to make peace in the Great Lakes region a top priority for the Administration.

Cease-Fire

Of the non-Congolese signatories, only Rwanda and Zimbabwe retain significant numbers of forces in the Congo. A cease-fife among the signatories to the Lusaka Agreement has mostly held, except in eastern Congo. Fighting in the East involves, among others, Rwandan-backed Congolese rebels, Congolese-backed Rwandan rebels, local Congolese militia, the Rwandan Army, and Congolese supported Burundian Hutu rebels. We have provided two million dollars for the Joint Military Commission, a commission of the signatories to the Lusaka Agreement whose duties are to resolve military problems connected with the agreement, including cease-fire violations. We intend to notify Congress shortly that we will provide additional assistance in fiscal year 2002.

The Inter-Congolese Dialogue

The Inter-Congolese Dialogue is currently taking place in Sun City, South Africa. The participants include all the Congolese signatories to the Lusaka Agreement, as well as representatives of Congolese opposition political parties and Congolese civil society. The United States has provided $1.5 million to support the work of former Botswanan President Ketumile Masire, the facilitator of the Dialogue. We are pleased that the talks in Sun City have occurred and hope that when the meeting ends this week, the participants will have charted the way forward to further negotiations and to a comprehensive and enduring political settlement.

At the same time, we believe that to end the war, meaningful demobilization and disarmament of militias and rebel groups, most importantly of Rwandan Hutu rebels, and a cessation of foreign support to Congolese rebels must occur.

Demobilization and Disarmament

Progress on demobilization and disarmament has been limited. We believe that a broad-based agreement between Presidents Kagame and Kabila will be necessary before any general demobilization and disarmament can occur. The Congolese government continues to give some supplies to the Rwandan rebels and the Congolese Mai-Mai militia, while the Rwandan government continues its support to Congolese rebels and its occupation of most of Eastern Congo. Both countries are reluctant to make the first move in fear that the other threatens their national security.