The African Union has underutilised policing in its peacebuilding efforts - it's time police had a voice in decision making.
The African Union (AU)'s ambitious development and free trade plans will struggle to bear fruit unless matched by new approaches to instability and security threats. Giving police, who bring a community-oriented approach, an enhanced role in peacebuilding and peace support operations (PSOs) could contribute to stability and development.
Violent conflict and organised crime remain major threats to human security across Africa. Between 1989 and 2022, the number of conflicts increased by 306%, from 34 in 1989 to 104 in 2022. In the past five years, organised crime rates have grown, with no indication of a decrease in sight as states' resilience remains low. Under these circumstances, Africa's current 'hard' security approach (characterised by military-heavy operations) is unlikely to deliver peace and stability.
Peacebuilding is the end state of all PSOs, and aims to support structures and policies that build peace and prevent a relapse into conflict. Peacebuilding encompasses various activities, including strengthening the rule of law, preventing crimes, promoting justice and human rights, enhancing democratic governance, and promoting conflict resolution and reconciliation.
Using community-oriented policing as a 'soft' approach to security would boost regional and continental peacebuilding. The invaluable role of the United Nations (UN) Police in peacebuilding, governance and development has been recognised at various levels, including by UN Secretary-General António Guterres and the Security Council.
Although the AU's role in peacebuilding has grown, it has underutilised policing in these efforts. Like the UN, the AU adopted a multidimensional approach to PSOs, drawing on military, civilian and police components rather than just soldiers. But most PSOs have remained military-heavy. Since early 2000, of the 27 PSOs authorised by the AU across Africa, police participated in only two missions - in Sudan's Darfur between 2004 and 2007 and in Somalia from 2009 to date.
The military cannot assume the work of the police, and vice versa. The police, military and civilian components have their own distinct advantages in conflict management and peacebuilding. While the military can stop ongoing armed clashes and prevent a relapse, the police can help in crime prevention and investigation, restoration of the rule of law, and justice.
Protecting civilians is a priority of today's peace missions mandate. Various studies indicate that police are more agile and responsive than the military and civilians in implementing this mandate due to their training, skill set, attitude and approach.
In post-conflict environments, the police can help reform and rebuild the capacities of local police and other law enforcement institutions. Community-oriented measures enable police to partner with and empower people at various levels, and provide security services based on the interests of the people. Through partnerships and community engagements, police can build public trust and confidence, which are essential for sustainable peace.
Still, several structural and operational constraints regarding policing in AU PSOs remain. Among others, the police are not represented in AU decision-making structures such as the Peace and Security Council and Specialised Technical Committee on Defence, Safety and Security. An advisory body is needed that provides timely professional and evidence-based advice to these structures on all policing matters.
The 2018 AU policy on policing in PSOs provides for police structures at headquarters in Addis Ababa and in the field. It says the office of the police component at headquarters should include the Chief Police Adviser, a deputy adviser and other units. But so far, no chief adviser has been appointed, and no policing structure has been set up.
The Police Strategic Support Group comprising member state representatives established by the AU Commission chairperson in 2013, has been formalised by the AU policy. But its advisory role and shortage of leadership and coordination limit its effectiveness.
Liaison between the AU police and African countries' police organisations is also poor. An absence of direct relations and communication channels means that all policing-related information is channelled along military lines, causing delays.
Various attempts to elevate policing on the AU agenda have been largely fruitless due to a persistent misunderstanding about the proper scope and function of policing in PSOs. Many perceive policing as a local undertaking, restricted to national boundaries. Another challenge is the lack of leadership on continent-wide policing. Although African leaders gave their backing by adopting the AU policy on policing in PSOs, a leader is needed to champion its implementation.
The AU must strengthen its continental police structure to benefit from policing for peacebuilding as part of its Agenda 2063 aspirations. Strictly applying the provisions of the AU policy would be a start.
The AU Commission should establish a separate office with teams of police experts, including the Chief Police Adviser. The chief adviser can also guide the work of the AU Mechanism for Police Cooperation (Afripol), the police component in the Africa Standby Force, and PSOs deployed in the field. This would harmonise the police's work in combatting crimes, conflict management and peacebuilding. The new police office could also coordinate the Police Strategic Support Group's role across Africa.
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Police chiefs of AU member states, particularly the 15 countries in the Peace and Security Council, should be involved in AU strategic decision-making processes on the rule of law, justice, conflict management and peacebuilding.
Member states must also include police liaison officers in their permanent diplomatic missions to the AU in Addis Ababa. The officers can facilitate communication between the AU Commission and countries, and enhance the sharing of information and best practices on policing and peacebuilding in Africa and beyond.
This article was first published in Africa Up Close, a blog of the Wilson Centre's Africa Program.
Meressa K Dessu, Senior Researcher and Training Coordinator, ISS Addis Ababa
