国际事务研究院-非盟-欧盟和平与安全关系（英）-2021.11-19页_1mb

Summary of AU-EU Relations on Peace and Security

Core Content

The African Union (AU) and the European Union (EU) have developed significant relations in the field of peace and security (P&S), which is a central pillar of their cooperation. The EU is the second-largest financial partner of the AU in this domain, following the United Nations (UN). P&S has become a key area of convergence between the two partners, particularly in addressing armed conflicts and violent extremism. However, the evolving nature of EU financial instruments and the increasing focus on security as a means to achieve development goals have created new challenges and asymmetries in their partnership.

Main Viewpoints

• Peace and Security as a Priority: P&S has remained a core area of cooperation between the AU and EU, especially since the adoption of the Joint Africa-EU Strategy (JAES) in 2007. The EU has consistently emphasized the importance of linking security and development, often through the "security-development nexus" framework.
• EU's Role and Approach: The EU has adopted a more integrated and "principled-pragmatism" approach since 2016, aiming to align its instruments with African capacities. However, its focus on security has also led to the externalization of the migration agenda, which is perceived by the AU as a one-way dialogue.
• AU's Perspective: The AU sees its role as promoting "African solutions to African problems" through its Peace and Security Council and Regional Economic Communities (RECs). It is concerned about the EU's increasing influence and the risk of being sidelined in favor of bilateral military support.
• Financial Dynamics: The EU's financial support for P&S has been primarily through the African Peace Facility (APF), which has been criticized for being too European-centric and not adequately reflecting African priorities.

Key Information

1. State of the Art: Trends and Practices

• P&S has been a key priority in AU-EU relations, with the EU being a major financial contributor.
• The Joint Africa-EU Strategy (JAES) has been instrumental in shaping the cooperation framework.
• The EU's external projection has increasingly focused on security and development linkages.
• The 2020 communication "Towards a Comprehensive Strategy with Africa" emphasizes strategic cooperation and integrated approaches, but it is perceived as more European-centric than reciprocal.

2. Lessons Learned

• The APF has been a significant financial tool for P&S, but its focus on security has overshadowed development aspects.
• The APF has allocated most of its funding (93%) to Peace Support Operations (PSOs), with limited resources for capacity building and early response.
• EU CSDP missions in Africa have had mixed success, with limited integration of governance reforms into security operations.
• The lack of coordination and communication between the AU and EU has limited the impact of their security dialogue.

3. Structural Asymmetries

• Dependency on External Funding: The AU's reliance on foreign funds, particularly from the EU, has hindered its ability to act autonomously in P&S matters.
• Limited Bargaining Power: African states have limited influence in shaping EU policies on security and development, especially when it comes to security-related funding.
• Lack of Institutional Accountability: The AU lacks comparable mechanisms to the EU for expressing concerns, which affects the legitimacy and coordination of the partnership.
• Security-Development Nexus Criticism: While the EU promotes the security-development nexus, African stakeholders often view it as a tool to advance European interests rather than a balanced partnership.

4. The Way Forward: European Peace Facility (EPF)

• The EPF is a new financial instrument that allows the EU to finance security-related activities, including lethal arms, without the need for AU or REC approval.
• This could lead to a shift in the balance of power, with the EU potentially taking a more direct role in African security affairs.
• The EPF may undermine the AU's role in conflict prevention and mediation, as it enables bilateral military support without the involvement of regional bodies.
• The EU's move towards "strategic autonomy" could further reduce the role of the AU in P&S, especially in light of the NATO failure in Afghanistan.

5. Conclusions and Recommendations

• For the AU-EU Partnership:

  • Increase funding for mediation, conflict prevention, and peacebuilding.
  • Strengthen institutional cooperation and early warning mechanisms.
  • Ensure more predictable and consistent financial support for African-led peace initiatives.

• For the AU:

  • Develop a clear and comprehensive strategy on P&S to align with its long-term vision of a peaceful and secure continent.
  • Leverage lessons from past initiatives, such as the "Silencing the Guns" program, to improve its approach.
  • Promote a more balanced and reciprocal relationship with the EU, emphasizing African agency and priorities.

Summary of Policy Recommendations

Key Figures and Data

• APF Funding (2004–2019): Approximately €2.9 billion was allocated to the African Peace and Security Architecture (APSA).
• EPF Budget: The European Peace Facility has a budget of €5 billion, which can be used beyond Africa.
• CSDP Missions: The EU has nine CSDP missions in Africa, including three in the Sahel and three in Somalia.
• APF Allocation: 93% of APF funds go to Peace Support Operations (PSOs), 6% to capacity building, and 1% to the Early Response Mechanism (ERM).

Conclusion

The AU-EU relationship on peace and security is evolving, with the EU's new financial instruments potentially altering the dynamics of cooperation. While P&S remains a key area of collaboration, the EU's growing emphasis on security and the launch of the EPF may challenge the AU's role in shaping the continent's security agenda. To ensure a more effective and equitable partnership, both parties need to address structural asymmetries and prioritize African agency and priorities.