Annex 1. IDENTIFICATION

Transcription

1 Annex 1. IDENTIFICATION Title/Number Total cost Aid method / Method of implementation Support to the African Training Centres in Peace and Security Cris decision: 2011/ European Union (EU) contribution EUR from the three-year action programme of the African Peace Facility for the period , budget heading "Operationalisation of the African Peace and Security Architecture (APSA) and Africa- EU dialogue" Project approach joint management through signature with the African Union Commission (AUC) of a contribution agreement with in-built precautionary measures and Regional Economic Communities/Regional Mechanisms (RECs/RMs) as implementing partners DAC-code n.a. Sector n.a. 2. RATIONALE 2.1. Sector context The African Peace and Security Architecture (APSA) aims to give the African Union (AU), the Regional Economic Communities (REC) and Regional Mechanisms (RM) for Conflict Prevention, Management and Resolution the necessary instruments to fulfil the tasks of prevention, management and resolution of conflict in Africa, as set out in the AU Constitutive Act and the Protocol establishing the Peace and Security Council (PSC). The APSA, as enshrined in the Protocol, embraces an expanded and comprehensive agenda for peace and security that includes conflict prevention, early warning and preventive diplomacy, peace-making and peace building, the encouragement and promotion of democratic practices and intervention and humanitarian action and disaster management. The African Peace Facility (APF) was established by the EU in 2004 as a response to a request by African leaders at the AU Summit in Maputo (2003). The APF addresses peace and security priorities jointly defined in the Partnership on Peace and Security of the 2007 Joint Africa-EU Strategy (JAES), which defines the longterm policy orientations between the two continents, based on a shared vision and common principles. The JAES was reviewed at the 3rd Africa EU Summit in Tripoli, Libya, in November 2010, and it was agreed to build upon the operationalisation of APSA to address peace and security challenges in the African continent. The Summit adopted the 2nd Action Plan for the JAES ( ) which listed actions to undertake within the Partnership on Peace and Security with a view to meeting the objective of operationalisation of the APSA, including the African Standby Force as the main operational tool of the Architecture. 1

2 2.2. Lessons learnt Following the first joint experts group meeting on the Peace and Security Partnership between the African Union (AU) and the European Union (EU) on 18 November 2008, it was recommended that a joint AU/EU assessment study of current and future training capabilities for African-led peace support operations be undertaken to identify training gaps for possible EU support. This recommendation was approved by the ministerial Troika on 21 November Consequently a joint team of AU and EU experts assembled to undertake the study. The aim of the study was to assess and elaborate an EU long-term programme of support to African Training Centres with a regional/continental vocation in training for the three components (police, civilian and military) of the African Standby Force (ASF). The study was concluded by the first Workshop on EU Support to African Centres of Excellence in Nairobi, Kenya, from 8 12 February Amongst other aspects, this workshop agreed on an action plan for the support programme. The action plan covered a phased implementation programme, comprising priority actions, including the implementation of short-term support measures that could be delivered by the end of 2010 followed by long-term measures thereafter. These measures were supposed to set up the framework allowing for a long-term and sustainable support programme, including reinforcement of financial management capabilities of the beneficiaries (Training Centres and RECs/RMs), reinforcement of the training cells of the RECs/RMs; formalisation of the link between them and the regional Training Centres. Consequently, a second workshop on EU support was held in Nairobi from July 2011, to review activities so far undertaken and to identify a way forward on implementation. It was agreed that a first set of support measures should be implemented taking into account the preparatory work undertaken so far and lessons learned from other APF funded APSA support programmes Complementary actions In line with the priorities of the joint Partnership on Peace and Security funding available under the 10 th EDF for the operationalisation of APSA has substantially increased. Within the APF, 10th EDF, an envelope of EUR has been allocated to the operationalisation of APSA. Under this envelope, a Joint Salaries Financing Arrangement for personnel in the AU Peace and Security Programme, amounting to EUR , has been in place since 1 July A first EUR programme out of a global EUR APSA support programme has been signed in July The basis of the APSA Support Programme is the overall APSA Roadmap and the linked peace and security elements in the strategic plans of the AU and RECs/RMs. The rationale of the programme provides for the integration of the activities funded through the APSA Support Programme in the AUC and the RECs/RMs work plans. APSA support programme activities are implemented under the direct responsibility of the divisions, departments and units concerned at African Union Commission (AUC) and RECs/RMs respectively. In line with the overall APSA Roadmap the APSA support programme is expected to deliver six outputs to achieve its specific objective, namely: 2

3 OUTPUT 1: More synergy built between AU Peace and Security Council and regional entities dealing with conflict prevention, management and resolution in the framework of the AU/REC Memorandum of Understanding in the area of Peace and Security; OUTPUT 2: Capacity of Continental Early Warning System (CEWS) to anticipate threats and thereby to prevent conflicts enhanced; OUTPUT 3: Panel of the Wise and mediation structures function optimally; OUTPUT 4: African Standby Force operational; OUTPUT 5: Capacity to develop and implement strategies and policies in the other peace and security areas enhanced; OUTPUT 6: Project and finance management capacity in support of the APSA enhanced. The present programme is complementary to the APSA support programme, particularly its component 4, and will be implemented in close coordination. Most Regional Strategies and Indicative Programmes under the 10th EDF include a substantial political integration component, including peace and security aspects; a substantial part of this support will be devoted to APSA at regional level. The support to the regional Training Centres is a possible component of the Regional Indicative Programmes (RIPs), provided that they focus only on police and civilian conflict prevention and management capabilities. In addition the EU is taking part in some training activities in Africa through the European Union Police Services Training (EUPST), and the European Group on Training (EGT) Donor coordination The APSA operationalisation process is benefiting from a wide range of partner support for the various components, including training activities for the African Standby Force (ASF). Coordination of partners' support takes place at several levels: 1) between the AU-RECs/RMs and the EU and their respective member states in the framework of the Joint Expert Groups (which were established with the aim of coordinating the implementation of the JAES), as well as during the annual ASF training implementation workshop; 2) between the AU and international partners represented in Addis Ababa in the framework of the AU Partners Group, where the Subgroup on Pillar 1 of the AU Strategic Plan deals with Peace and Security; and 3) between some RECs/RMs and partners in the framework of regional Partners Groups. 3

4 3. DESCRIPTION 3.1. Objectives The overall programme goal is to achieve initiative 1 of the 2nd Action Plan for Peace and Security of the joint Africa-EU Strategy concerning the operationalization of the African Peace and Security Architecture (APSA): "As a follow-up to the first action plan and of different evaluations regarding African training needs and capacities for the Africa Standby Force (ASF), implement operational and concrete African Union/Regional Economic Communities/European Union (AU/RECs/EU) agreed measures to improve the required capacities and capabilities of African training centres. The secondary objective is to initiate within the African Union Commission (AUC) and the RECs a "demand-based" training policy progressively replacing the current "offer-based" system. This training policy should be implemented and "operated" by African Training Centres, with the support of the RECs Expected results and main activities The EU/AU Support Programme to African Training Centres is based on the reports of the two Workshops held in Nairobi in February 2010 and July 2011, and other documents such as reports of the two additional consultancies conducted at Economic Community of Central African States (ECCAS) and the Economic Community of West African States (ECOWAS) in The guiding principle is the ASF training policy defining the roles and responsibilities of the different stakeholders: - The AU is responsible for specialized strategic training for senior leadership to be delivered by regional centres as directed, and is in charge of providing guidance and policy coordination and harmonization. - The RECs/RMs are responsible for training the mission management personnel and staff in peace support operations, and are in charge of complementing national training on basic peace support operations and specialised training through appropriate Regional training centres; On the above basis, and in line with the overall APSA Roadmap, the programme is expected to deliver the following outputs: OUTPUT 1: Increase the coordinating and steering role of the African Union for the implementation of the ASF training policy. This output will be achieved through the following indicative activities: 1) Creation and establishment by the African Union of an "ASF e-library", accessible across the Continent, for training purposes. 2) Support to the African Peace Support Trainers Association (APSTA) secretariat. During 2011 support to the APSTA has been provided through the APSA Support Programme and follow up support should be taken over through this programme, based on a clear definition of the role and responsibilities of APSTA in relation to the ASF training policy. 4

5 3) Continental Training needs assessment and ASF Policy development studies in collaboration with APSTA, in line with the AUC/PSOD (Peace Support Operations Department) orientations which came out of the lessons learned from the AMANI AFRICA cycle (a cycle of activities designed to contribute towards and validate the operational readiness of the African Standby Force). 4) Feasibility/scoping study on the Continental Peace Academy, in line with Nairobi workshop recommendation. OUTPUT 2: Enhance the capacity of the RECs/RMs to conduct their own training activities through their own regional training capabilities and in line with the ASF training policy. This output will be achieved through following indicative activities: 5) Establishment of regional training pillars. This activity will be closely coordinated with those conducted under component 4 of the APSA Support programme. It will consist in achieving, when necessary, the link between the RECs and the identified training institutions. 6) Training activities in regional training centres, sponsored by the RECs/RMs. Based on the regional training plans, these training activities will be identified, requested, and financed by the RECs/RMs. OUTPUT 3: Improve the capacity of the Training centres designated by the RECs/RMs. This output will be achieved through the following activity: Targeted support measures to designated training centres, in accordance with recommendations of agreed reports. The aim is to initiate the long-term support measures to the training centres by the RECs/RMs. The priority beneficiaries will be those Training Centres that have established a formal and agreed link with the REC/RM. The support will be provided on the basis of and in line with the different recommendations made in February 2010, which had been agreed upon by the AU. The inputs required to implement the activities include the recruitment of long-term professional and support staff, the mobilisation of specialised short-term expertise for policy and strategy development, as well as for achieving the formalization of the link between the RECs and some Training Institutions. The list of Training centres which will benefit from this programme can be found below: Economic Community of Central African States (ECCAS) 1. Awae lnternational Forces School (EIFORCES), Cameroun 2. Joint Services Defense Forces (CSID), Cameroun 3. Ecole des Services de Sante (Libreville), Gabon 5

6 4. Ecole du Génie (Brazzaville) Economic Community of West African States (ECOWAS) 5. Centre de Perfectionnement de la Gendarmerie Mobile (CPGM) Senegal 6. Ouagadougou Military Engineers College (EMTO) Burkina Faso 7. Nigeria Army Peace keeping Center (NAPKC) JAJI, Nigeria 8. Ghana Armed Forces Staff College (GAFCSC) 9. Ouidah West African Demining School (CPADD ) Benin 10. Legon Center for lnternational Affairs and Diplomacy (LECIAD)Ghana 11. Centre de Perfectionnement de la Police Judiciaire (CPPJ) Benin 12. Alioune Blondin Beye Peacekeeping School (EMPABB) Mali 13. African Center for Strategic Research and Studies (ACSR.5) Abuja, Nigeria The Eastern Africa Standby Force (EASF) 14. The International Peace Support Training Center (IPSTC) North African Regional Capability (NARC) 15. The Algerian Peace Keeping Center (ROUIBA) 16. The Cairo Regional Center for Conflict and Reconstruction (CCCPA) Southern African Development Community (SADC) 17. SADC Regional Peacekeeping Training Center (RPTC) 3.3. Risks and assumptions The major risks associated with the project are as follows: Unpredictable global, regional and national political, social and economic conditions may affect programme implementation. The audit exercises related to the programme may reveal amounts of ineligible expenditures that may subject the implementing organisation to further scrutiny and a series of Recovery Orders. The complexity of implementation modalities may have an impact on the beneficiaries' capacity to provide timely reports as well as on their absorption capacity. The financial management capability of the Training Centres. Several key assumptions underlie the implementation of the programme i.e. Willingness of the RECs to push for a strong and formal link with their regional training institutions. 6

7 Willingness and capacity of designated Training Centres to comply with financial management directives given by the AU through the RECs. Improvement of reporting flow. Acceptance of Technical Assistance to support the implementation. Leading role of the AU Peace Support Operations Department (PSOD), in liaison with AU Peace and Security Finance Division, and Project Management Team (PMT). Regional EU delegations to consider complementary actions through the Regional Indicative Programmes (RIPs) Crosscutting Issues The establishment of the EU/AU Support Programme to African Training Centres in peace and security provides for a long-term structured dialogue between the AU, REC/RMs and the EU with regard to the reinforcement of capacities of the African institutions in the area of peace and security. It therefore leads to a considerable increase of communication and transparency between the partners in this area as well as to improved strategic planning and management Stakeholders The main beneficiaries of this support are: the African Union, the RECs and RMs and the Training Centres. 4. IMPLEMENTATION ISSUES 4.1. Method of implementation The Support Programme to African Training Centres in peace and security is to be implemented under the system of joint management through signature with the AUC of a Contribution Agreement with in-built precautionary measures The AU is committed to ensuring adequate implementation of the European Commission/AUC Aide Memoire on measures to strengthen AUC Financial Management signed in Addis Ababa on 27 August 2009, as well as any revision and update of this document. The Support programme to the training centres will be managed, and monitored under the same conditions and by the same stakeholders as for the African Peace and Security Architecture (APSA) support programme. The replacement of the existing Memorandum of Understanding (MoU) between African Union (AU) and the Regional Economic Communities/Regional Mechanisms (RECs/RMs) on the Capacity Building programmes with an Implementation Agreement has taken place and is now guiding the implementation of the APSA Support programme, highlighting the rights and obligations of the respective partners. The Implementation Agreement has been complemented by an Implementation Manuals. 7

8 The AUC and the RECs/RMs have decided that these two documents will be extended to the Support to the Training Centres. Thus the Steering Committee of the APSA Support Programme will also provide guidance to the Support to the African Training Centres following strategic direction set by the Meeting of AU Chairperson and Chief Executives of RECs/RMs with participation of the EU. A primary task of the Steering Committee will be to endorse the Annual Work Plan. The overall management, coordination and monitoring function for this Support programme will be ensured by the existing AUC Programme Management Team (PMT). The PMT shall work in support of overall AUC Peace and Security Department objectives as defined in the AU Strategic Plan and Departmental Work Plan, in line with the APSA Roadmap agreed upon between the AUC and the RECs/RMs, as well as the second Action Plan of the Peace and Security Partnership within the Joint Africa-EU Strategy (JAES). It will be tasked to provide administrative and management oversight functions to support the Peace Support Operations Department (PSOD) as well as backstopping of RECs/RMs in the identification, implementation, monitoring and evaluation of all activities and reporting to donors. The Head of Programme Management Team (PMT) shall report directly to the Director of Peace and Security and all staff of PMT would report to the Head of PMT. Focal points within the PMT shall support day-to-day management and coordination within this support programme, including liaison, coordination and communication with REC/RM counterparts (including REC/RM Liaison Officers in Addis Ababa), the production of a detailed work plan and providing support to, and implementing decisions of the Steering Committee. The PSOD retains the policy-lead on the African Standby Force (ASF) training issues and remains responsible for initiation and implementation of activities and policy coordination with REC/RM counterparts. RECs/RMs, as implementing partners, retain management and implementation responsibility for their respective activities within the Annual Work Plans. They shall put in place adequate controls to ensure the accuracy and completeness of the programme accounts and to ensure that assets purchased under the programme are safeguarded. The overall responsibility of financial management of the overall programme lies with AUC Peace and Security Directorate Finance (PSDF) which is responsible for consolidating and verifying financial reports submitted by all the RECs/RMs at specific intervals. PSDF also ensures that the financial reporting is effectively recorded in the double entry accounting system as prescribed in the general conditions and is responsible for possible recovery orders to the RECs/RMs. The change of management mode constitutes a substantial change except where the Commission "re-centralises" or reduces the level of tasks previously delegated to the beneficiary country, international organisation or delegated body under, respectively, decentralised, joint or indirect centralised management. 8

9 4.2. Procurement and grant award procedures All contracts implementing the action are awarded and implemented in accordance with the procedures and standard documents laid down and published by the relevant International Organisation Budget and calendar On 27 October 2011, the African Union Commission requested the EU to contribute an amount of EUR from the three-year action programme of the African Peace Facility for the period , budget heading "Operationalisation of APSA and Africa- EU dialogue", for this action. Organisation EUR Economic Community of Central African States Economic Community of West Africa The Eastern Africa Standby Force North African Regional Capability Southern African Development Community African Union Commission Total amount of the programme The implementation duration of the programme is 24 months from 1 February 2012 to 31 January The closure phase will not exceed 12 months following the end of the implementation period. Prior to disbursement of the first instalment of the first work plan the AUC will open a separate bank account used for the receipts and the payments related to the programme Performance monitoring The African Union Commission (AUC) will monitor the overall implementation of the project. As implementing partner, the AUC will assume its obligations regarding information, financial and narrative reports, as specified in the General Conditions of the contribution agreements. In supplement to the General Conditions, the AUC and REC/RMs will present interim narrative and financial reports every six months and a final narrative and financial report upon completion of the project. The AUC will bring to the attention of the European Commission any other issues which are relevant for the implementation of the operation. The EU Delegation to the African Union will be responsible for conducting the day-to-day monitoring required by the EU. The Steering Committee will provide a structured opportunity to discuss and agree on the content of progress reports, build a common understanding of key issues/concerns and of actions that need to be taken. 9

10 A review shall be launched towards the end of the first year of implementation. This review will notably entail an assessment of the implementation and degree of alignment with AUC and REC/RM training plans Evaluation and audit A mid-term evaluation of the African Peace Facility took place in late It concluded that the APF had been highly relevant and that the strategy adopted had proved to be appropriate and effective. A full evaluation of the APF is currently ongoing. The evaluation has started with its part one, aimed specifically at reviewing the procedures of the APF as well as the possibilities of alternative future sources of funding, including common foreign and security policy funding. Part two will be launched in early For sound financial management, an external financial audit shall be conducted at the end of the implementation period on the basis of an Annual Work Plan and the corresponding funds disbursed by the European Commission Communication and visibility There exist a number of communication and visibility activities on the African Peace Facility, including capacity building initiatives: a brochure, an annual report and a promotional video (English and French versions available). The APF website ( contains updated information and links to the AU website. Additional activities will be implemented by the Commission under centralised management, in accordance with 10th EDF rules and procedures, funded from the budget line "visibility" of the APF Three Year Action Programme