What's In Blue

Posted Mon 20 Jan 2025
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Counter-Terrorism in Africa: Open Debate

Tomorrow (21 January), the Security Council will hold an open debate on counter-terrorism in Africa under the agenda item “Maintenance of international peace and security”. Algerian Minister of Foreign Affairs Ahmed Attaf will chair the meeting, which is one of Algeria’s signature events during its presidency. Deputy Secretary-General Amina J Mohammed; African Union (AU) Commissioner for Political Affairs, Peace and Security Bankole Adeoye; and former UN and AU official Said Djinnit are expected to brief. Council members are currently negotiating a draft presidential statement proposed by Algeria in connection with this meeting; however, at press time it was unclear if it would be adopted tomorrow.

Ahead of the meeting, Algeria circulated a concept note titled “African-led and development-focused counter-terrorism: strengthening African leadership and implementation of counter-terrorism initiatives”. The concept note highlights the threat posed by terrorism in Africa, noting that the AU Counter-Terrorism Centre documented over 3,200 terrorist attacks and 8,400 civilian casualties between January and September 2024. It refers to several African initiatives aimed at countering the terrorist threat on the continent, including the Organisation of African Unity Convention on the Prevention and Combatting of Terrorism, the AU Special Fund on Prevention and Combatting Terrorism and Violent Extremism, the AU Ministerial Committee on Counter-Terrorism, and the Comprehensive Continental Strategic Plan of Action on Countering Terrorism in Africa. (For more information on terrorism in Africa, see our January monthly forecast).

Several objectives related to combatting terrorism in Africa are mentioned in the concept note, including:

  • supporting African-led counter-terrorism efforts by integrating socio-economic development and security measures;
  • enhancing state capacities while respecting national sovereignty;
  • improving collaboration between African institutions and UN mechanisms;
  • identifying sustainable funding mechanisms for counter-terrorism in Africa; and
  • disrupting financial networks that support terrorism and violent extremism.

The concept note also outlines several questions to help guide the meeting, including:

  • How can the Security Council support AU counter-terrorism initiatives while ensuring African leadership and solutions?
  • How can existing mechanisms ensure sustainable and predictable funding for African peace and security, particularly in counter-terrorism?
  • How can socioeconomic development strengthen counter-terrorism efforts and support the AU’s Agenda 2063?
  • How can coordination between UN and African mechanisms, especially the Nouakchott Process and Accra Initiative, be improved?
  • How can efforts to combat terrorism and transnational organised crime, particularly financing, be strengthened?

During tomorrow’s meeting, Mohammed might reiterate concerns that she has expressed in recent months about the spread of terrorism in Africa and the need to address its root causes.  In remarks delivered during the “High-Level African Counter-Terrorism Meeting” held in Abuja, Nigeria in April 2024, Mohammed referred to the changing nature of the terrorist threat in Africa, noting that “the epicentre of terrorism has shifted from the Middle East and North Africa into sub-Saharan Africa, concentrated largely in the Sahel region”. She also emphasised the role that strong democratic institutions, people-centred governance, human rights, access to basic services, and inclusive development have to play in countering terrorism.  Mohammed may also share insights from her recent visit to the region in her statement.

In his statement, Adeoye may cover some of the key observations of the AU Commission’s October 2024 report on “Combatting terrorism in the continent”. Among other matters, the report notes that several terrorist groups active in Africa—including Jama’at Nusrat al-Islam wal-Muslimin, Islamic State in the Greater Sahara, Boko Haram, Islamic State West Africa Province, and Al-Shabaab—have retained significant operational capabilities despite sustained military operations across several regions. The report mentions the spillover of terrorism into coastal West Africa, particularly Benin, Togo, and Ghana, and suggests that this trend indicates that previously unaffected regions are now becoming new theatres of conflict. It also highlights the situation in the Sahel, noting that political instability and unconstitutional changes of government have undermined counter-terrorism operations and observing that the dissolution of the Group of Five for the Sahel has created a significant security vacuum and weakened regional coordination of counter-terrorism efforts. The report further says that many of the root causes of terrorism remain unaddressed, and indicates that local grievances continue to fuel recruitment for terrorist groups, particularly in the Sahel. Adeoye may also highlight certain AU initiatives intended to assist Africa member states in managing the terrorist threat, and could refer to the AU Peace and Security Council’s 23 October 2024 communiqué on counter-terrorism in Africa, which welcomed the AU Commission’s October 2024 report.

Council members are worried about the spread of terrorism in Africa and are expected to express concern regarding recent developments during tomorrow’s meeting. Some members may emphasise the importance of whole-of-society approaches to counter-terrorism that respect human rights, align with international law, address the root causes of violence and extremism, and take gender considerations into account. Some members might refer to the role played by law enforcement and strong border security measures in efforts to counter terrorism. Members may also mention the linkages between terrorist activity and transnational organised crime, including by noting that terrorist groups can profit from illegal activity, such as the illicit exploitation of natural resources.

Council members might express concern about the use of new and emerging technologies by terrorist groups in Africa. In this context, members could refer to recent reports of the Monitoring Team assisting the 1267/1988/2253 ISIL/Da’esh and Al-Qaida Sanctions Committee and the Panel of Experts assisting the 2713 Al-Shabaab Sanctions Committee, both of which note that Al-Shabaab is seeking to exploit new technologies, including weaponised uncrewed aerial vehicles (UAVs).

Members are also likely to highlight the importance of cooperation between the UN and regional and subregional organisations in Africa, including the AU, and express support for African-led efforts to counter the terrorist threat on the continent. Some members may further call for increased funding for African-led counter-terrorism initiatives.

In addition to negotiating a draft presidential statement in connection with this meeting, it appears that Council members are also currently negotiating a draft press statement regarding a recent attack on Benin’s armed forces near its border with Niger and Burkina Faso.

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