Up to 400,000 people have died since February 2003 as a result of the war that broke out in the Darfur region of Sudan. This paper, by the Institute for Security Studies (ISS), examines the problems of civilian protection created by this war. It argues for the strengthening of the African Union (AU) force in the context of United Nations (UN) support and the fast-tracking of the peace process within Darfur between Khartoum and its neighbours.
A combination of attacks by government forces, state-sponsored militias, Darfur rebels, disease and malnutrition have killed up to 400,000 people, while 2.5 million others have been forced to flee their homes. The challenge of protecting Darfur’s citizens has focused attention on the AU and its Mission in Darfur (AMIS). The UN has authorised an international force (UNMIS) to replace AMIS, but has been unable to compel the Sudanese government to accept the mission. Although Sudan has accepted an AU-UN hybrid force, it has insisted that the force be based on the AU mission.
The article offers the following main conclusions:
- As the humanitarian crisis in Darfur deepened, troop levels were rapidly increased. However, no corresponding increase in its peacekeeping capacity through provision of equipment, logistical, financial, material and other resources occurred.
- The call for a UNMIS to replace AMIS had the negative effect of vilifying the work that AMIS had already undertaken and ignored the obstacles AMIS faced in getting Khartoum to allow it to monitor the ceasefire agreement and protect civilians.
- The proposed AU-UN hybrid force offers the best chance for a mission with the capacity to protect civilians and pave the way for a durable peaceful solution. Yet this challenges the UN peacekeeping orthodoxy whereby it would always take the lead in such operations.
- The involvement of Chad and the Central African Republic in a war that has become truly regional necessitates a peace agreement that incorporates Sudan’s neighbours.
Action must be taken on six fronts to move forwards in civilian protection in Darfur:
- While it remains the only protection force in Darfur, AMIS should be supported in offering protection to Darfur’s IDPs and civilians in villages. A protection gap would only expose civilians to more plunder, rape and killing;
- The government of Sudan should be pressured into permitting the deployment of a larger AU-UN peacekeeping force with a stronger mandate than civilian protection. China and the Arab League should use their special relationship with Sudan to this end. Both the AU and the G8 should give Sudan guarantees regarding its own national sovereignty;
- Restoring security is essential to improving the delivery of humanitarian assistance necessary to stem the death toll in the region;
- Those responsible for crimes against humanity in Darfur must be arrested. The difficulties in doing this can be overcome by the AU invoking its own protocol on civilian protection;
- Efforts to return all parties from the Abuja negotiations to a new forum should be intensified. This forum would review implementation problems and provide a platform for non-signatories and previously excluded stakeholders to discuss and resolve objections to the Darfur Peace Agreement; and
- The main problem confronting AMIS is funding. Thus the UN’s insistence on only paying for missions where it takes a leading role is costing civilians lives and should be reevaluated.
