Amid growing fears of widespread insecurity in West Africa and the Sahel, a senior United Nations official told the Security Council today of the need to reconfigure the region’s security coordination mechanism, including the possible deployment of an African Union standby team.
Over the past six months, the situation in the region has been marked by “diverging” developments, said Leonardo Santos Simaõ, Special Representative of the Secretary-General and Head of the United Nations Office for West Africa and the Sahel (UNOWAS) in his biannual briefing to the 15-member body. While the region has achieved significant progress in consolidating democracy, he observed that security and governance remain fragile.
“Against the multiple challenges, UNOWAS will stay the course and deploy its capacities, using good offices, urging for humanitarian access, and promoting the observance of human rights and the rule of law,” he pledged.
Also briefing the Council was Lori-Anne Theroux-Benoni, Regional Director of the Office for West Africa, the Sahel and the Lake Chad Basin of the Institute for Security Studies, who underscored challenges in the region, such as the rapid expansion of terrorism and a series of coups d’état. She also cited the withdrawal of the United Nations Multidimensional Integrated Stabilization Mission in Mali (MINUSMA) and the dissolution of the Group of Five for the Sahel (G5 Sahel) and its joint force as conditions for creating a regional security vacuum.
“There is no short-term miracle solution,” she asserted, stressing the need to strengthen national and regional coordination and implement a preventive approach to avoid creating the conditions for a subsequent coup d’état. “The time has come to be pragmatic,” she declared, noting that the goal is “not to encourage long-standing military transitions” but “to return to constitutional order”.
In the ensuing discussion, delegates underscored the imperative for countries in political transition to adhere to their electoral timelines and ensure democratic consolidation, good governance, the rule of law, respect for human rights, gender equality, and sustainable development.
Sierra Leone’s representative, speaking also for Algeria, Guyana and Mozambique, pointed to growing disengagement with the Economic Community of West African States (ECOWAS), expressing regret over “rising political tensions caused by the shift from democratic to unconstitutional changes of Government in some countries in the region.” There must be continuous engagement between the UN, African Union and ECOWAS to ensure support for enhancing governance and the rule of law in these countries, he emphasized.
Echoing such a view, many speakers called for the Council’s increased attention to the region, with Slovenia’s representative declaring: “This is not the time to turn a blind eye to the region, but a time to invest in prevention, peacebuilding and regional stabilization.”
To that end, Malta’s delegate expressed support for increased reporting on West Africa and the Sahel by the Secretary-General, supplemented by Council briefings, on the region’s multidimensional challenges. Her counterpart from the Russian Federation, however, objected to the establishment of additional reporting, saying the Secretary-General’s reports on UNOWAS sufficiently cover the region.
While several delegations, among them the Republic of Korea and Japan, called for a swift return to constitutional order in some countries, China’s representative cautioned that the imposition of governance models from the outside has proven of no value in addressing the root causes of armed unrest and has in some cases led to new chaos.
Switzerland’s representative stressed that mitigating the risk of a deepening regional crisis requires close collaboration with the African Union and subregional organizations. “Now is not the time to disengage,” she said.
Briefings
LEONARDO SANTOS SIMAÕ, Special Representative and Head of the United Nations Office for West Africa and the Sahel (UNOWAS), presented the Secretary-General’s latest report on UNOWAS’ activities (document S/2023/1075) from 30 June to 31 December 2023, highlighting that over the past six months, the situation in the region has been marked by “diverging” developments. While significant progress has been made in consolidating democracy, the security situation and governance challenges remain major concerns. Liberia’s presidential election has shown the capacity of institutions to conduct credible polls and establish a Government with constitutional legitimacy. In Senegal, the enthusiasm for choosing the country’s next leader in the upcoming 25 February presidential election is also palpable. Ghana has also shown its commitment to democracy with the engagement of the two main parties in a transparent process leading up to the December 2024 general elections.
Sierra Leone and Guinea-Bissau each saw confrontations among national security services, he observed. These events, in the wake of electoral processes, illustrate the need to build credible institutions and democratic governance in a sustained manner. In the central Sahel, another unconstitutional change of government in Niger in July created a belt of military-led Governments in the subregion adding to the existing substantial governance, humanitarian, and security challenges. Respect for basic freedoms, notably of assembly and expression, is indispensable for building trust between citizens and institutions. Regrettably, arrests of journalists and human rights defenders, as well as restrictions to internet access and freedom of the press, among other concerns, again fuelled perceptions of a decline of the civic and political space in some countries.
In Mali, there is great uncertainty about the status of the 2015 Agreement for Peace and Reconciliation and the political transition, he said, noting that a date has yet to be set for the country’s pre-agreed elections. Insecurity remains prevalent, as do attacks on military camps and civilians; swathes of the country are currently blockaded by terrorist groups. While human rights groups in Burkina Faso denounce a forced enrolment of critics into the security forces, a large-scale attack on the northern city of Djibo, after years of blockades and deprivation, has again highlighted the challenges faced by the transitional authorities to re-establish security across the national territory. “Against this background, the humanitarian situation in the Sahel remains dire,” he said. Despite marginal improvements in some areas, the number of people in the central Sahel requiring humanitarian assistance and protection jumped 80 per cent in 2023 to 34.5 million people.
The closure of United Nations Multidimensional Integrated Stabilization Mission in Mali (MINUSMA), the departure of foreign forces, and the uncertainty about the Group of Five for the Sahel (G5 Sahel) following the withdrawal of Burkina Faso and Niger portend a reconfiguration of regional security coordination mechanisms. Congratulating the Council for adopting a framework for assessed funding for African Union-led peace operations in resolution 2719 (2023), he expressed hope for the possible deployment of an African Union Standby Team as part of addressing regional security needs. “Against the multiple challenges, UNOWAS will stay the course and deploy its capacities, using good offices, urging for humanitarian access, and promoting the observance of human rights and the rule of law,” he pledged, also welcoming the decision by the Economic Community of West African States (ECOWAS) to resume dialogue with the respective transitional authorities and to consider reviewing sanctions. UNOWAS will continue to work with regional and international partners to consolidate peace, security and democracy in West Africa and the Sahel, he stressed.
LORI-ANNE THEROUX-BENONI, Regional Director of the Office for West Africa, the Sahel and the Lake Chad Basin, Institute for Security Studies, said that, with the drawdown of MINUSMA and the announced dissolution of G5 Sahel and its joint force, the Council’s biannual meetings remains one of the rare opportunities for exchange on West Africa and the Sahel with the 15-member body. Spotlighting the growing political, security, climate and humanitarian challenges faced by the region, she recalled the beginning of the crisis in Mali in 2012. “If we had been asked to project scenarios, the situation the region currently finds itself in would undoubtedly be one of the worst-case scenarios,” she said, pointing to the rapid expansion of insecurity due to terrorist groups and succession of anti-constitutional Government changes. Voicing concern over progressive weakening of regional cooperation and challenges to the peace process – primarily in Mali – she said lessons should be drawn from the past so that “the next 10 years will not be considered a lost decade”.
“There is no short-term miracle solution,” she asserted, adding that States’ immediate actions must be a part of a medium- and long-term approach to promote structural change for West African societies. Faced with growing insecurities and management of military transitions, the Institute for Security Studies has interviewed hundreds of people linked to terrorist groups in the affected countries of the region and determined that armed groups operating in the Sahel in 2012 were already supplying their groups primarily with fuel from some coastal countries and by selling stolen gold to finance some of them. On redirecting efforts and resources towards the coastal countries – guided by the logic that the Sahel is considered “lost” – she said: “that is misguided thinking”, with repercussions which will have a lasting effect on the region’s stability.
Instead, she underscored the need to “rethink our answers”, bearing in mind the connectivity and multidimensional nature of the supply chain and the financing and recruitment which fuel insecurity. The spillover from the Sahel to the coast has been “seriously underestimated”. Anticipating the inevitable withdrawal of terrorist groups is crucial, as “sooner or later, people linked to or associated with active terrorist groups in the Sahel and in the coastal countries will try to get out”. That was the case in the Lake Chad Basin where combatants from various Boko Haram factions withdrew after military victories of Governments in the region. States in the region as well as the United Nations should draw on the lessons learnt in the demobilization and reintegration process. Additionally, she underlined the need to strengthen national and regional coordination and implement a preventive approach to avoid creating conditions for a subsequent coup d’état. “The time has come to be pragmatic,” she declared, noting that the goal is “not to encourage long-standing military transitions” but “to return to constitutional order”.
Statements
MICHAEL IMRAN KANU (Sierra Leone), also speaking for Algeria, Guyana and Mozambique, underscored the need for countries undergoing political transition to adhere to their electoral timelines and ensure democratic consolidation, good governance, the rule of law, human rights, gender equality, sustainable development and the inclusion of civil society in democratic processes. On Mali, he reiterated the centrality of the 2015 Agreement on Peace and Reconciliation and urged all signatories to resume dialogue and commit to implementing that instrument. He also called on Mali to remain engaged with regional organizations, ECOWAS and the African Union in realizing peace and stability in that country. Expressing concern over the security situation in the region – especially in Sahel States – he also spotlighted growing disengagement with ECOWAS, the security vacuum created by the withdrawal of MINUSMA and the dissolution of the G5 Sahel. While reaffirming respect for the territorial integrity and sovereignty of all countries in the region, he called on the same to engage in dialogue with ECOWAS to create inclusive solutions to regional issues.
He went on to express regret over “rising political tensions caused by the shift from democratic to unconstitutional changes of Government in some countries in the region”, encouraging all States to fulfil their obligations under regional arrangements. Current transitional authorities must restore constitutional order, and there must be continuous engagement between the UN, African Union and ECOWAS to ensure support for enhancing governance and the rule of law in these countries. Turning to the security situation, he underscored that the spread of terrorism from the Sahel to coastal States remains a major concern. With MINUSMA’s closure, he urged coordinated action with neighbouring countries to minimize any further adverse security impact on Mali and the region. Among further points, he urged a comprehensive approach that addresses the root causes of socioeconomic challenges in West Africa and the Sahel, which requires support to address governance and development deficits, as well as commitment to building national consensus that will ensure meaningful participation by women and youth in decision-making processes.
PASCALE CHRISTINE BAERISWYL (Switzerland) expressed concern over the worrying security situation in some of the region’s countries, particularly in the Sahel, as well as growing humanitarian needs. On the political front, some transitional processes towards a return to constitutional order are not progressing as planned, she said, pointing to a new coup d’état and several attempts in 2023. Calling for urgent preventive action, notably through inclusive elections, she recalled that, in Nigeria, Switzerland supported national partners to reduce electoral violence during campaigns and elections, thus enabling a peaceful outcome. Further, UNOWAS is supporting Burkina Faso, Ghana, Mali, Mauritania, Senegal and Togo ahead of their elections in 2024. In light of the fragile security situation in some regions, with recurrent attacks on the civilian population by armed jihadist groups, the withdrawal of MINUSMA and the end of the G5 Sahel, she stressed: “Now is not the time to disengage”. Instead, it is crucial mitigate the risk of a deepening regional crisis through close collaboration with the African Union and subregional organizations.
ROBERT A. WOOD (United States), expressing support for the crucial role of UNOWAS in mitigating conflict and promoting inclusive dialogue, said the transition Government of Mali must fully cooperate in the safe and orderly liquidation of the Mission. Also voicing regret about the dissolution of the G5 Sahel, he said there should be an increase in the number of UNOWAS reports the Council receives per year. “This Council needs more, not less, visibility” regarding a region with complex security threats and development needs, he said. Welcoming the release of Salem Bazoum in Niger, he called for further negotiations between the National Council for the Safeguard of the Homeland and ECOWAS. Highlighting the need for United Nations resident coordinators in Burkina Faso and Niger, he said they are vital to the delivery of much-needed humanitarian assistance. The growing instability in coastal West Africa is exacerbated by internal political tensions as well as terrorism and violent extremism in the Sahel. Further, he said, the Wagner Group is committing human rights abuses and endangering the safety and security of civilians and peacekeepers.
JOONKOOK HWANG (Republic of Korea) said that West Africa and the Sahel is a fast-evolving region with heightened political tensions and instability. Establishing strong and inclusive democratic governance is essential to bringing stability there. He expressed concern about the slow restoration of constitutional order in transitional Governments of several countries and urged them to adhere to a timely return to constitutional order in collaboration with ECOWAS. Terrorism-related deaths have increased 20-fold over the past 15 years. In recent months, heightened insecurity has been observed in the central Sahel countries, particularly against the backdrop of MINUSMA’s withdrawal and the disbanding of the G5 Sahel and its joint force. The international community should prevent a security vacuum in the region, he said, calling for the Council’s continued engagement.
DAI BING (China), pointing to considerable efforts to maintain peace and stability in the region, said Nigeria, Sierra Leone and Côte d’Ivoire have successfully completed their elections, while Senegal and Togo are fully engaged in the political dialogue which has yielded positive results. However, the political situation in some countries remains volatile, with growing social tensions. In 2024, general elections are scheduled in several countries in West Africa and the political transition in Mali and Niger have entered a critical change, he observed. Expressing support for regional countries in bridging their internal differences through political dialogue to create conditions for peace and reconciliation, he stressed that the international community should support them in independently choosing their own path of development. The imposition of governance models from the outside has proven of no value in addressing the root causes of armed unrest and has in some cases led to new chaos, he added. Moreover, the international community should provide financial and technical support to the region’s countries for infrastructure, development and income generation.
VANESSA FRAZIER (Malta) welcomed 2023 elections in Nigeria, Liberia and Guinea-Bissau, also recognizing increased representation of women in political positions in Sierra Leone and Côte d’Ivoire following recent elections in those countries. Looking forward to elections in Senegal, Mauritania and Ghana in 2024, she called for free, fair and transparent electoral processes that allow all eligible citizens to participate as voters, candidates and observers. Turning to the situation in Mali – and spotlighting MINUSMA’s closure at the request of Mali’s transitional Government – she called on the international community to “continue to play its part” to support and safeguard the well-being of the Malian people. Further, she called on the transitional Government to openly engage with the UN and define a new role for UNOWAS and the UN country team in transferring the Mission’s tasks. Concluding, she expressed support for increased reporting on West Africa and the Sahel by the Secretary-General, supplemented by Council briefings, on the region’s multidimensional challenges.
JAMES KARIUKI (United Kingdom), expressing concern about the security situation Mali, encouraged UNOWAS to help bring all signatories to the 2015 Agreement on Peace and Reconciliation in Mali back to the negotiating table. Voicing support for the upcoming Africa Counter-Terrorism Summit, he stressed that the region’s security challenges cannot be resolved through the destabilizing chaos of the Russian mercenary group Wagner. Further, timelines for restoration of constitutional Governments in Mali, Burkina Faso and Guinea continue to slip. Calling on Niger to agree to a transition timeline with ECOWAS, he congratulated Liberia for its recent peaceful transfer of power. Noting that the Security Council has recognized the adverse effects of climate change on security and stability in the region, he welcomed UNOWAS’ work in the climate-security nexus. Turning to the dire humanitarian situation, he called on all actors to ensure safe and unimpeded access for humanitarian assistance.
SAMUEL ZBOGAR (Slovenia) said that his country can testify, from its own experience, how integral the support of regional and international partners is to ensure a successful political transition. Close coordination between UNOWAS, ECOWAS and the countries in such processes is crucial for a timely return to constitutional order. With MINUSMA’s withdrawal, the Council should consider reinforcing UN efforts through UNOWAS and the country team, he said, emphasizing: “This is not the time to turn a blind eye to the region, but a time to invest in prevention, peacebuilding and regional stabilization.” The Central Sahel urgently needs the Council’s increased attention on the impact of climate change on peace and security. The need was reaffirmed in the recently adopted landmark declaration on climate security at the Sahel Climate, Peace and Security Forum in Bamako.
JOSÉ JAVIER DE LA GASCA (Ecuador) emphasized that a solid institutional framework is needed to effectively address the root causes of violence. In recent years, Government changes outside the constitutional order have proliferated in the region, he observed, condemning any attempt to disrupt the constitutional order and, in particular, the coup d’état carried out in Niger. Highlighting positive developments, he welcomed the important steps taken by the countries in the region to consolidate their democratic processes and their institutions through the holding of peaceful elections in recent months, particularly Côte d’Ivoire and Liberia. He also expressed support for efforts by ECOWAS to restore constitutional order in Burkina Faso, Guinea, Mali and Niger. Further, he voiced concern over the constant deterioration of the security situation in the Central Sahel, particularly in Burkina Faso, Niger and Mali, and the persistent danger of the expansion of terrorist violence towards the south.
ANNA M. EVSTIGNEEVA (Russian Federation) stressed that achieving long-term stability requires the international community to collectively support Mali, Burkina Faso and Niger – the vanguard in the fight against transnational terrorist groups in the region. Welcoming such States’ coordinated efforts to combat terrorism, she called on ECOWAS, for its part, to establish dialogue with these three States, overcome internal divisions and focus on addressing regional threats. The leading role in maintaining regional security should by regional States themselves, she went on to say, emphasizing that efforts between Mali, Burkina Faso and Niger towards comprehensive integration are justified. Increased cooperation between these States is yielding positive results and effective joint counter-terrorism operations, and she also noted Bamako’s efforts to conduct political and institutional reform. She added that it is unnecessary to establish additional reporting on the situation in the Sahel or its constituent States, as the Secretary-General’s reports on UNOWAS sufficiently cover the region at this stage.
SHINO MITSUKO (Japan), applauding the laudable work of UNOWAS in enhancing regional cooperation and promoting good governance, said the Council must speak in one voice to support its mission through the adoption of a presidential statement. Noting some positive political developments in the region, including the peaceful election in Liberia, she added that the region continues to be marked by heightened political tensions, shrinking civic space and instability, such as the military takeover in Niger in July 2023. Stressing the need for a swift return to constitutional order in Burkina Faso, Guinea, Mali and Niger, she expressed concern about spillover effects to the littoral States of the Gulf of Guinea. Noting the upsurge in violence in Mali in the wake of MINUSMA’s withdrawal, she commended efforts by regional partners, including through the Accra Initiative. Now is not the time for the Council to lessen its attention on this region, she stressed.
NICOLAS DE RIVIÈRE (France), Council President for January, speaking in his national capacity, highlighted the populations made vulnerable by the political insecurity in the region, particularly the 26 million people in need of humanitarian assistance. Acknowledging some positive developments, such as the peaceful and inclusive elections held in Côte d’Ivoire and Liberia, he also highlighted the Truth, Reconciliation and Reparations Commission in The Gambia. Further, he commended the tireless efforts of ECOWAS to promote democracy and a return to constitutional order in various countries. National political situations must not lead the international community to lose sight of the cross-cutting threats that affect the entire region, he said, pointing to terrorism, maritime insecurity, food insecurity and climate change. His country will continue “to collaborate with stakeholders in the region who wish to do so”, he said, calling for the Council’s continued attention to West Africa.
