Building Peace in the Horn of Africa: IGAD’s Peacemaking Efforts

Dr. Josephine Odera, 
Senior Researcher, Africa Peace Forum, Kenya

Abstract

The Intergovernmental Authority on Drought and Desertification (IGADD), comprising Djibouti, Ethiopia, Kenya, Somalia, Sudan and Uganda, was established in 1986. Eritrea joined after its independence in 1993. Initially IGADD was established to act as an early warning mechanism for alerting the international community of impending humanitarian emergencies and to coordinate resources in responding to crises on the Horn of Africa. Cooperation was thus confined to issues of drought, desertification and food security. However, as insecurity continued to curtail economic, social and political developments, IGADD member states started to confront these problems collectively. Out of these efforts emerged a decision to begin to transform the security architecture in the subregion. In March 1996, subregional leaders signed an agreement transforming IGADD into the Intergovernmental Authority on Development (IGAD). The organization’s mandate was expanded to include conflict management, prevention and resolution. 

Under the new agreement, IGAD prioritized the pursuit of peace and security, and had as its principal aim the maintenance of peace, security and stability on the Horn of Africa. Specifically, the agreement provided for: the creation of a subregional mechanism for the prevention, management and resolution of inter- and intrastate conflicts through dialogue,[1] as well as collective action to preserve peace, security and stability, seen as an essential prerequisite for economic development and social progress. The agreement proposed dealing with conflicts by eliminating threats to security; called for the establishment of a mechanism for consultation and cooperation for the pacific settlement of disputes; and agreed to deal with disputes among member states within the Horn of Africa before referring them to other regional or international organizations. Demonstrating unprecedented political commitment, IGAD states pledged themselves to resolving outstanding security problems and conflicts, and to preserving subregional stability.

In seeking security and peace, IGAD pursued a dual-track approach. To deal with conflicts likely to polarize the organization, IGAD often creates semiautonomous ad hoc mechanisms, outside of its secretariat, which are then mandated to deal with a particular issue. The secretariat on the Sudan Peace Process, based in Nairobi, is one such mechanism. The process that led to the restoration of a transitional government in Somalia in 1999 was another such mechanism. IGAD’s second peacemaking track revolves around its secretariat in Djibouti, which addresses issues on which its members have forged a consensus, such as the establishment of a Conflict Early Warning and Response Mechanism (CEWARN), a campaign against small arms, and a diverse range of humanitarian issues.

This paper examines the successes and failures of IGAD-led peace processes in the Horn of Africa. The paper will assess the institutional structure of IGAD and its evolving Conflict Early Warning and Response Mechanism (CEWARN). It will also address three key issues. First, the paper will analyze IGAD peace processes in Sudan and Somalia; second, the paper will outline some of the limits and strengths of IGAD’s institutional capacities; third the paper will address the role of civil society actors in peacemaking efforts in the region.